Patient Protection and Affordable Care Act; Program Integrity: Exchange, SHOP, Premium Stabilization Programs, and Market Standards, 37031-37095 [2013-14540]
Download as PDF
<![CDATA[
Vol. 78
Wednesday,
No. 118
June 19, 2013
Part III
Department of Health and Human Services
tkelley on DSK3SPTVN1PROD with PROPOSALS3
45 CFR Parts 144, 147, 153, et al.
Patient Protection and Affordable Care Act; Program Integrity: Exchange,
SHOP, Premium Stabilization Programs, and Market Standards; Proposed
Rule
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
PO 00000
Frm 00001
Fmt 4717
Sfmt 4717
E:\FR\FM\19JNP3.SGM
19JNP3
37032
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
DEPARTMENT OF HEALTH AND
HUMAN SERVICES
45 CFR Parts 144, 147, 153, 155, and
156
[CMS–9957–P]
RIN 0938–AR82
Patient Protection and Affordable Care
Act; Program Integrity: Exchange,
SHOP, Premium Stabilization
Programs, and Market Standards
Centers for Medicare &
Medicaid Services (CMS), HHS.
ACTION: Proposed rule.
tkelley on DSK3SPTVN1PROD with PROPOSALS3
AGENCY:
SUMMARY: This proposed rule sets forth
financial integrity and oversight
standards with respect to Affordable
Insurance Exchanges; Qualified Health
Plan (QHP) issuers in Federallyfacilitated Exchanges (FFEs); and States
with regard to the operation of risk
adjustment and reinsurance programs. It
also proposes additional standards with
respect to agents and brokers. These
standards, which include financial
integrity provisions and protections
against fraud and abuse, are consistent
with Title I of the Patient Protection and
Affordable Care Act as amended by the
Health Care and Education
Reconciliation Act of 2010, referred to
collectively as the Affordable Care Act.
DATES: To be assured consideration,
comments must be received at one of
the addresses provided below, no later
than 5 p.m. on July 19, 2013.
ADDRESSES: In commenting, please refer
to file code CMS–9957–P. Because of
staff and resource limitations, we cannot
accept comments by facsimile (FAX)
transmission.
You may submit comments in one of
four ways (please choose only one of the
ways listed):
1. Electronically. You may submit
electronic comments on this regulation
to https://www.regulations.gov. Follow
the ‘‘Submit a comment’’ instructions.
2. By regular mail. You may mail
written comments to the following
address ONLY: Centers for Medicare &
Medicaid Services, Department of
Health and Human Services, Attention:
CMS–9957–P, P.O. Box 8010, Baltimore,
MD 21244–8010.
Please allow sufficient time for mailed
comments to be received before the
close of the comment period.
3. By express or overnight mail. You
may send written comments to the
following address ONLY: Centers for
Medicare & Medicaid Services,
Department of Health and Human
Services, Attention: CMS–9957–P, Mail
Stop C4–26–05, 7500 Security
Boulevard, Baltimore, MD 21244–1850.
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
4. By hand or courier. Alternatively,
you may deliver (by hand or courier)
your written comments ONLY to the
following addresses prior to the close of
the comment period:
a. For delivery in Washington, DC—
Centers for Medicare & Medicaid
Services, Department of Health and
Human Services, Room 445–G, Hubert
H. Humphrey Building, 200
Independence Avenue SW.,
Washington, DC 20201
(Because access to the interior of the
Hubert H. Humphrey Building is not
readily available to persons without
Federal government identification,
commenters are encouraged to leave
their comments in the CMS drop slots
located in the main lobby of the
building. A stamp-in clock is available
for persons wishing to retain a proof of
filing by stamping in and retaining an
extra copy of the comments being filed.)
b. For delivery in Baltimore, MD—
Centers for Medicare & Medicaid
Services, Department of Health and
Human Services, 7500 Security
Boulevard, Baltimore, MD 21244–
1850.
If you intend to deliver your
comments to the Baltimore address, call
telephone number (410) 786–7195 in
advance to schedule your arrival with
one of our staff members. Comments
erroneously mailed to the addresses
indicated as appropriate for hand or
courier delivery may be delayed and
received after the comment period.
For information on viewing public
comments, see the beginning of the
SUPPLEMENTARY INFORMATION section.
FOR FURTHER INFORMATION CONTACT:
Leigha Basini at (301) 492–4307, or
Noah Isserman at (301) 492–4401 for
general information. Ariel Novick at
(301) 492–4309, for matters related to
cost-sharing reductions and advance
payments of the premium tax credit.
Adam Shaw at (410) 786–1091, for
matters related to the risk adjustment,
reinsurance and risk corridors
programs.
Shelley Bain at (301) 492–4453, or Anne
Pesto at (410) 786–3492, for matters
related to Part 155, Subpart M.
Cindy Yen at (301) 492–5142, for
matters related to Part 155, Subparts
C and E, and Part 156.
Scott Dafflitto at (301) 492–4198, for
matters relating to SHOP.
Jacob Ackerman at (301) 492–4179, for
matters related to Parts 144 and Part
147 and the single risk pool.
Rebecca Zimmermann at (301) 492–
4396, for matters related to quality
standards, Part 156, Subpart L.
SUPPLEMENTARY INFORMATION:
PO 00000
Frm 00002
Fmt 4701
Sfmt 4702
Inspection of Public Comments: All
comments received before the close of
the comment period are available for
viewing by the public, including any
personally identifiable or confidential
business information that is included in
a comment. We post all comments
received before the close of the
comment period on the following Web
site as soon as possible after they have
been received: https://
www.regulations.gov. Follow the search
instructions on that Web site to view
public comments.
Comments received timely will also
be available for public inspection as
they are received, generally beginning
approximately 3 weeks after publication
of a document, at the headquarters of
the Centers for Medicare & Medicaid
Services, 7500 Security Boulevard,
Baltimore, Maryland 21244, Monday
through Friday of each week from 8:30
a.m. to 4 p.m. To schedule an
appointment to view public comments,
phone 1–800–743–3951.
Electronic Access
This Federal Register document is
also available from the Federal Register
online database through Federal Digital
System (FDsys), a service of the U.S.
Government Printing Office. This
database can be accessed via the
internet at https://www.gpo.gov/fdsys.
Acronyms and Short Forms
Because of the many organizations
and terms to which we refer by acronym
in this proposed rule, we are listing
these acronyms and their corresponding
terms in alphabetical order below:
Affordable Care Act The Affordable Care
Act of 2010 (which is the collective term
for the Patient Protection and Affordable
Care Act (Pub. L. 111–148) and the Health
Care and Education Reconciliation Act
(Pub. L. 111–152))
ALJ Administrative Law Judge
APTC Advance payments of the premium
tax credit
ARF Allowable rating factor
AV Actuarial Value
CAHPS® Consumer Assessment of
Healthcare Providers and Systems
CFR Code of Federal Regulations
CMP Civil money penalty
CMS Centers for Medicare & Medicaid
Services
DOI State Department of Insurance
DOL U.S. Department of Labor
FEHB Federal Employees Health Benefits
FFE Federally-facilitated Exchange
FFE API Federally-facilitated Exchange
application programming interface
FF–SHOP Federally-facilitated Small
Business Health Options Program
GAAP Generally-accepted accounting
principles
GAAS Generally accepted auditing
standards
E:\FR\FM\19JNP3.SGM
19JNP3
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
GAGAS Generally accepted governmental
auditing standards
GAO United States Government
Accountability Office
HHS U.S. Department of Health and Human
Services
HIPAA Health Insurance Portability and
Accountability Act of 1996 (Pub. L. 104–
191)
IRS Internal Revenue Service
MLR Medical Loss Ratio
NAIC National Association of Insurance
Commissioners
NCQA National Committee for Quality
Assurance
OIG Office of the Inspector General of the
U.S. Department of Health and Human
Services
OMB Office of Management and Budget
PHS Act Public Health Service Act
PII Personally Identifiable Information
PRA Paperwork Reduction Act
QHP Qualified Health Plan
SHOP Small Business Health Options
Program
The Code Internal Revenue Code of 1986
TIN Taxpayer Identification Number
tkelley on DSK3SPTVN1PROD with PROPOSALS3
Executive Summary
Starting on January 1, 2014, qualified
individuals and qualified employers
will be able to be covered by private
health insurance through competitive
marketplaces called Affordable
Insurance Exchanges, or ‘‘Exchanges’’
(also called Health Insurance
Marketplaces). This proposed rule sets
forth oversight and financial integrity
standards with respect to Exchanges,
QHP issuers in Federally-facilitated
Exchanges (FFEs), and States with
regard to the operation of risk
adjustment and reinsurance programs. It
also proposes additional standards for
special enrollment periods, survey
vendors that may conduct enrollee
satisfaction surveys on behalf of QHP
issuers in Exchanges, issuer
participation in an FFE, and States’
operation of a SHOP. Finally, it
proposes additional standards for agents
and brokers, geographic rating areas,
and guaranteed availability and
renewability. Nothing in these proposed
regulations would limit the authority of
the Office of the Inspector General of the
U.S. Department of Health and Human
Services (OIG) as prescribed by the
Inspector General Act of 1978 or any
other law.
Although many of the proposed
provisions in this proposed rule would
become effective by 2014, we do not
believe that affected parties will have
difficulty complying with the provisions
by their effective dates, because most of
the proposed standards are based on
existing standards currently in effect in
the private market, were previously
proposed through the Blueprint process,
discussed in agency-issued sub-
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
regulatory guidance, or were discussed
in the preambles to the Exchange
Establishment Rule,1 Premium
Stabilization Rule,2 and the HHS Notice
of Benefit and Payment Parameters for
2014.3 In addition to general comments
on the substance of the proposed
provisions, we seek input on ways to
implement these proposed policies to
minimize burden.
Table of Contents
I. Background
A. Legislative Overview
B. Stakeholder Consultation and Input
C. Structure of the Proposed Rule
II. Provisions of the Proposed Rule
A. Part 144—Requirements Related to
Health Insurance Coverage
B. Part 147—Health Insurance Reform
Requirements for the Group and
Individual Health Insurance Markets
C. Part 153—Standards Related to
Reinsurance, Risk Corridors, and Risk
Adjustment under the Affordable Care
Act
1. Subpart A—General Provisions
2. Subpart C—State Standards Related to
the Reinsurance Program
3. Subpart D—State Standards Related to
the Risk Adjustment Program
4. Risk Adjustment Methodology
5. Subpart E—Health Insurance Issuer and
Group Health Plan Standards Related to
the Reinsurance Program
6. Subpart F—Health Insurance Issuer
Standards Related to the Risk Corridors
Program
7. Subpart G—Health Insurance Issuer
Standards Related to the Risk
Adjustment Program
8. Subpart H—Distributed Data Collection
for HHS-Operated Programs
D. Part 155—Exchange Establishment
Standards and Other Related Standards
Under the Affordable Care Act
1. Subpart A—General Provisions
2. Subpart B—General Standards Related to
the Establishment of an Exchange
3. Subpart C—General Functions of an
Exchange
4. Subpart D—Exchange Functions in the
Individual Market: Eligibility
Determinations for Exchange
Participation and Insurance Affordability
Programs
5. Subpart E—Exchange Functions in the
Individual Market: Enrollment in
Qualified Health Plans
6. Subpart H—Exchange Functions: Small
Business Health Options Program
(SHOP)
1 Patient Protection and Affordable Care Act;
Establishment of Exchanges and Qualified Health
Plans; Exchange Standards for Employers, 77 FR
18310 (March 27, 2012).
2 Patient Protection and Affordable Care Act;
Standards Related to Reinsurance, Risk Corridors
and Risk Adjustment, 77 FR 17220 (March 23.
2012).
3 Patient Protection and Affordable Care Act; HHS
Notice of Benefit and Payment Parameters for 2014
and Amendments to the HHS Notice of Benefit and
Payment Parameters for 2014, 78 FR 15410 and
15541 (Mar. 11, 2013).
PO 00000
Frm 00003
Fmt 4701
Sfmt 4702
37033
7. Subpart M—Oversight and Program
Integrity Standards for State Exchanges
E. Part 156—Health Insurance Issuer
Standards Under the Affordable Care
Act, Including Standards Related to
Exchanges
1. Subpart A—General Provisions
2. Subpart C—Qualified Health Plan
Minimum Certification Standards
3. Subpart D—Federally-facilitated
Exchange Qualified Health Plan Issuer
Standards
4. Subpart E—Health Insurance Issuer
Responsibilities with Respect to
Advance Payments of the Premium Tax
Credit and Cost-sharing Reductions
5. Subpart H—Oversight and Financial
Integrity Standards for Issuers of
Qualified Health Plans in Federallyfacilitated Exchanges
6. Subpart I—Enforcement Remedies in
Federally-facilitated Exchanges
7. Subpart J—Administrative Review of
QHP Issuer Sanctions in Federallyfacilitated Exchanges
8. Subpart K—Cases Forwarded to
Qualified Health Plans and Qualified
Health Plan Issuers in Federallyfacilitated Exchanges by HHS
9. Subpart L—Quality Standards
10. Subpart M—Qualified Health Plan
Issuer Responsibilities
III. Collection of Information Requirements
IV. Response to Comments
V. Regulatory Impact Analysis
I. Background
A. Legislative Overview
The Patient Protection and Affordable
Care Act (Pub. L. 111–148) was enacted
on March 23, 2010. The Health Care and
Education Reconciliation Act of 2010
(Pub. L. 111–152), which amended and
revised several provisions of the Patient
Protection and Affordable Care Act, was
enacted on March 30, 2010. In this
proposed rule, we refer to the two
statutes collectively as the ‘‘Affordable
Care Act.’’ Subtitles A and C of Title I
of the Affordable Care Act reorganized,
amended, and added to the provisions
of part A of Title XXVII of the Public
Health Service Act (PHS Act) relating to
health insurance issuers in the group
and individual markets and to group
health plans that are non-Federal
governmental plans. As relevant here,
these PHS Act provisions include
section 2701 (fair health insurance
premiums), section 2702 (guaranteed
availability of coverage), and section
2703 (guaranteed renewability of
coverage).
Starting on October 1, 2013 for
coverage starting as soon as January 1,
2014, qualified individuals and
qualified employers will be able to
purchase QHPs—private health
insurance that has been certified as
meeting certain standards—through
competitive marketplaces called
Exchanges or Health Insurance
E:\FR\FM\19JNP3.SGM
19JNP3
tkelley on DSK3SPTVN1PROD with PROPOSALS3
37034
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
Marketplaces. The Departments of
Health and Human Services, Labor, and
the Treasury have been working in close
coordination to release guidance related
to QHPs and Exchanges in several
phases. The word ‘‘Exchanges’’ refers to
both State Exchanges, also called Statebased Exchanges, and Federallyfacilitated Exchanges (FFEs). In this
proposed rule, we use the terms ‘‘State
Exchange’’ or ‘‘FFE’’ when we are
referring to a particular type of
Exchange. When we refer to ‘‘FFEs,’’ we
are also referring to State Partnership
Exchanges, which are a form of FFEs.
In this proposed rule, we encourage
State flexibility within the boundaries of
the law. Sections 1311(b) and 1321(b) of
the Affordable Care Act provide that
each State has the opportunity to
establish an Exchange. Section
1311(b)(1) gives each State the
opportunity to establish an Exchange
that both facilitates the purchase of
QHPs and provides for the
establishment of a Small Business
Health Options Program (SHOP) that
will help qualified employers enroll
their employees in QHPs. Section
1311(b)(2) contemplates the separate
operation of the individual market
Exchange and the SHOP under different
governance and administrative
structures, because it permits the
individual market Exchange and SHOP
to be merged only if States have
adequate resources to assist both
populations (individual and small
employers) as a merged entity.
Section 1311(c)(4) of the Affordable
Care Act directs the Secretary to
establish an enrollee satisfaction survey
system that would evaluate the level of
enrollee satisfaction of members in each
QHP offered through an Exchange with
more than 500 enrollees in the previous
year.
Section 1321(a) of the Affordable Care
Act provides general authority for the
Secretary to establish standards and
regulations to implement the statutory
requirements related to Exchanges,
QHPs, and other components of Title I
of the Affordable Care Act.
Section 1321(c)(1) requires the
Secretary of Health and Human Services
(referred to throughout this rule as the
Secretary) to establish and operate an
FFE within States that either: do not
elect to establish an Exchange; or, as
determined by the Secretary, will not
have any required Exchange operational
by January 1, 2014.
Section 1321(c)(2) of the Affordable
Care Act authorizes the Secretary to
enforce the Exchange standards using
civil money penalties (CMPs) on the
same basis as detailed in section 2723(b)
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
of the PHS Act.4 Section 2723(b) of the
PHS Act authorizes the Secretary to
impose CMPs as a means of enforcing
the individual and group market
reforms contained in Title XXVII, Part A
of the PHS Act when a State fails to
substantially enforce these provisions.
Section 1311(d)(5)(A) of the
Affordable Care Act provides that
States, when establishing Exchanges,
must ensure that such Exchanges are
self-sustaining beginning in 2015,
including allowing Exchanges to charge
assessments or user fees to participating
issuers to generate funding to support
their operations. Section 1311(d)(5)(B)
contains a prohibition on the wasteful
use of funds. When operating an FFE
under section 1321(c)(1) of the
Affordable Care Act, HHS has the
authority under sections 1321(c)(1) and
1311(d)(5)(A) to collect and spend such
user fees. In addition, 31 U.S.C. 9701
permits a Federal agency to establish a
charge for a service provided by the
agency. Office of Management and
Budget (OMB) Circular A–25 Revised
establishes Federal policy regarding
user fees and specifies that a user charge
will be assessed against each
identifiable recipient for special benefits
derived from Federal activities beyond
those received by the general public.
Section 1311(e)(1)(B) of the
Affordable Care Act specifies that an
Exchange may certify a health plan as a
QHP if the Exchange determines that
making available such a health plan
through the Exchange is in the interests
of qualified individuals and qualified
employers in the State or States in
which the Exchange operates.
Section 1312(c) of the Affordable Care
Act directs a health insurance issuer to
consider all enrollees in all health plans
(other than grandfathered health plans)
offered by such issuer to be members of
a single risk pool for each of its
individual and small group markets.
Section 1312(c) of the Affordable Care
Act gives States the option to merge the
individual and small group markets
within the State into a single risk pool.
Section 1312(e) of the Affordable Care
Act directs the Secretary to establish
procedures under which a State may
permit agents and brokers to enroll
qualified individuals and qualified
employers in QHPs through an
Exchange, and to assist individuals in
applying for advance payments of the
premium tax credit and cost-sharing
reductions.
4 Section 1321(c) of the Affordable Care Act
erroneously cites to section 2736(b) of the PHS Act
instead of 2723(b) of the PHS Act. This was clearly
a typographical error, and we have interpreted
section 1321(c) of the Affordable Care Act to
incorporate section 2723(b) of the PHS Act.
PO 00000
Frm 00004
Fmt 4701
Sfmt 4702
Section 1313 of the Affordable Care
Act, combined with section 1321 of the
Affordable Care Act, provides the
Secretary with the authority to oversee
the financial integrity, compliance with
HHS standards, and efficient and nondiscriminatory administration of State
Exchange activities. Section
1313(a)(6)(A) of the Affordable Care Act
specifies that payments made by,
through, or in connection with an
Exchange are subject to the False Claims
Act (31 U.S.C. 3729, et seq.) if those
payments include any Federal funds.
Section 1341 of the Affordable Care
Act establishes a transitional
reinsurance program which begins in
2014 and is designed to provide issuers
with greater payment stability as
insurance market reforms are
implemented and Exchanges facilitate
increased enrollment. Section 1342 of
the Affordable Care Act establishes a
temporary risk corridors program which
permits the Federal government and
QHPs to share in gains or losses
resulting from inaccurate rate setting
from 2014 through 2016. Section 1343
of the Affordable Care Act establishes a
permanent risk adjustment program
which is intended to provide increased
payments to health insurance issuers
that attract higher-risk populations,
such as those with chronic conditions,
and eliminate incentives for issuers to
avoid higher-risk enrollees.
Section 1401 of the Affordable Care
Act amended the Internal Revenue Code
(26 U.S.C.) to add section 36B, allowing
a refundable premium tax credit to help
individuals and families afford health
insurance coverage. Under sections
1401, 1411, and 1412 of the Affordable
Care Act and 45 CFR part 155, subpart
D, an Exchange will make a
determination of advance payments of
the premium tax credit for individuals
who enroll in QHP coverage through an
Exchange and seek financial assistance.
Section 1402 of the Affordable Care Act
provides for the reduction of cost
sharing for certain individuals enrolled
in a QHP through an Exchange, and
section 1412 of the Affordable Care Act
provides for the advance payment of
these reductions to issuers.
Section 1411(g) of the Affordable Care
Act specifies that information provided
by an applicant or received from a
Federal agency may be used only for the
purpose of, and to the extent necessary
in ensuring the efficient operation of the
Exchange, including for the purpose of
verifying the eligibility of an individual
to enroll through an Exchange, to claim
a premium tax credit or cost-sharing
reduction, or for verifying the amount of
the tax credit or reduction.
E:\FR\FM\19JNP3.SGM
19JNP3
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
Section 1411(h) of the Affordable Care
Act sets forth civil penalties that any
person will be subject to if a person
provides inaccurate information as part
of the application or improperly uses or
discloses information.
Unless otherwise specified, the
provisions in this proposed rule related
to the establishment of minimum
functions of an Exchange are based on
the general authority of Secretary under
section 1321(a)(1) of the Affordable Care
Act. Nothing in these proposed
regulations would limit the authority of
the OIG as prescribed by the Inspector
General Act of 1978 or any other law.
B. Stakeholder Consultation and Input
HHS has consulted with stakeholders
on a number of polices related to the
operation of Exchanges, including the
SHOP, and premium stabilization
programs. HHS has held a number
listening sessions with consumers,
providers, employers, health plans, and
State representatives to gather public
input. HHS consulted with stakeholders
through regular meetings with the
National Association of Insurance
Commissioners (NAIC), regular contact
with States through the Exchange grant
process, and meetings with tribal
leaders and representatives, health
insurance issuers, trade groups,
consumer advocates, employers, and
other interested parties. We considered
all of the public input as we developed
the policies in this proposed rule.
tkelley on DSK3SPTVN1PROD with PROPOSALS3
C. Structure of the Proposed Rule
The regulations outlined in this
proposed rule would be codified in 45
CFR parts 144, 147, 153, 155, and 156.
Part 153 outlines select oversight
provisions related to the premium
stabilization programs, such as
maintenance of records, and sanctions
for failing to establish a dedicated
distributed data environment. Part 155
outlines the standards relative to the
establishment, operation, and minimum
functionality of Exchanges, including
oversight provisions related to State
Exchanges, such as those pertaining to
financial integrity and maintenance of
records. It also includes standards for
States’ establishment of a SHOP and
agents and brokers. Part 156 outlines the
standards for health insurance issuers
with respect to participation in an
Exchange, including minimum
certification standards for QHPs and
select oversight provisions related to
QHP issuers in FFEs, such as those
pertaining to maintenance of records,
compliance reviews, and sanctions. It
also includes provisions related to
quality, the handling of consumer cases
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
by issuers, and issuer standards related
to the SHOP.
We note that this rule includes
standards for the SHOP to coordinate
with the functions of the individual
market Exchange for determining
eligibility for insurance affordability
programs in § 155.705(c). This provision
was previously proposed in recent
rulemaking and published in the
Federal Register (78 FR 4723) on
January 22, 2013. We received several
comments on this provision. Some
commenters supported the proposal in
§ 155.705(c), while other commenters
raised concerns that the proposed rules
were overly burdensome and unrealistic
in scope and practicability.
After review of comments, and in
light of the proposal included in this
rule permitting a State to operate only
a SHOP including the changes to part
155 of this rule, we are reproposing
§ 155.705(c) in this rulemaking.
37035
A. Part 144—Requirements Related to
Health Insurance Coverage
In § 144.102(c), we propose a
technical correction to clarify whether
coverage sold through associations is
group or individual coverage under the
PHS Act. The Market Reform Rule 5
provided, among other things, that if
health insurance coverage ‘‘is offered to
an association’s employer-member that
is maintaining a group health plan that
has fewer than two participants who are
current employees on the first day of the
plan year,’’ the coverage is considered
individual health insurance coverage for
purposes of Title XXVII of the PHS Act.
This statement reflects the definition of
‘‘individual market’’ under the Health
Insurance Portability and
Accountability Act of 1996 (HIPAA), but
does not reflect the amendments made
by the Affordable Care Act redefining
‘‘small employer’’ to include an
employer with an average of at least one
employee.6 Accordingly, we propose to
delete the reference to group health
plans with fewer than two participants
who are current employees on the first
day of the plan year from the rule. We
propose conforming amendments to the
definitions of ‘‘group market’’ and
‘‘individual market’’ in § 144.103.
In § 144.103, we propose to amend the
definition of ‘‘policy year’’ with respect
to non-grandfathered coverage in the
individual market or in a market in
which the State has merged the
individual and small group risk pools,
pursuant to section 1312(c)(3) of the
Affordable Care Act and implementing
regulations at 45 CFR 156.80(c). Under
this proposal, ‘‘policy year’’ means a
calendar year for which health
insurance coverage provides coverage
for health benefits. This is consistent
with the proposed technical
clarification to § 147.104 discussed
below.
We also propose to amend the
definitions of ‘‘small employer’’ and
‘‘large employer’’ in § 144.103,
consistent with PHS Act section
2791(e), as amended by the Affordable
Care Act. Section 2791(e)(2) generally
defines a large employer as an employer
with an average of at least 101
employees. Section 2791(e)(4) generally
defines a small employer as an
employer with an average at least one
but not more than 100 employees.
Pursuant to section 1304(b)(3) of the
Affordable Care Act, each State has the
option to limit small employers to
having no more than 50 employees until
2016.
Although the Affordable Care Act
amended the definitions of ‘‘small
employer’’ and ‘‘large employer’’ for
purposes of the PHS Act, ERISA and the
Code continue to define a small
employer as one that has 50 or fewer
employees.7 Additionally, although the
Affordable Care Act removed an
exception for very small plans
contained in PHS Act section 2721(a)
(providing that title XXVII of PHS Act
generally does not apply to plans (and
health insurance coverage offered in
connection with such plans) with less
than two participants who are current
employees), parallel provisions in
ERISA (section 732(a)) and the Code
(section 9831(a)(2)) generally continue
to provide that the requirements of part
7 of ERISA, and chapter 100 of the
Code, do not apply to such plans. The
Departments of HHS, Labor, and the
Treasury recognize that these statutory
changes may create a conflict between
the provisions of title XXVII of the PHS
Act and part 7 of ERISA and chapter 100
of the Code with respect to insured
group health plans. We solicit
comments on what interpretations of the
statute, if any, are necessary to ensure
smooth implementation across the PHS
Act, ERISA, and the Code, including
comments to help ensure that shared
provisions are administered to have the
same effect at all times, as required
under HIPAA section 104 and the
5 Patient Protection and Affordable Care Act;
Health Insurance Market Rules; Rate Review’’ 78 FR
13406 (February 27, 2013).
6 Section 2791(e)(1)(B) and (e)(4) of the PHS Act.
7 See Affordable Care Act Implementation
FAQs—Set 5, Q8 (December 22, 2010). Available at:
https://www.cms.gov/CCIIO/Resources/Fact-Sheetsand-FAQs/aca_implementation_faqs5.html.
II. Provisions of the Proposed
Regulations
PO 00000
Frm 00005
Fmt 4701
Sfmt 4702
E:\FR\FM\19JNP3.SGM
19JNP3
37036
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
Departments’ Memorandum of
Understanding.8
tkelley on DSK3SPTVN1PROD with PROPOSALS3
B. Part 147—Health Insurance Reform
Requirements for the Group and
Individual Health Insurance Markets
1. Fair Health Insurance Premiums
(§ 147.102)
Section 2701 of the PHS Act, as added
by the Affordable Care Act, and
implementing regulations at 45 CFR
147.102, direct a health insurance issuer
offering non-grandfathered health
insurance coverage in the individual
and small group markets, beginning
with plan or policy years starting in
2014, to limit any variation in premium
rates with respect to a particular plan or
coverage to family size, age, tobacco use,
and geographic rating area. Under
§ 147.102(c), generally, issuers in the
individual and small group markets
must calculate premiums on a permember basis by adding the rate of each
covered family member or employees
and their dependents to determine the
total family or group premium,
respectively.
HHS has received several inquiries
since the issuance of the Market Reform
Rule asking whether geographic rating
in the small group market is based on
employee or employer address. HHS has
also received several inquiries asking
which rating areas should be used for
individual market coverage if family
members live in multiple locations.
PHS Act section 2701(a)(4) and
§ 147.102(c) require any rating variation
for age and tobacco use to be applied on
a per-member basis, but do not impose
the same requirement on rating for
geography. Accordingly, consistent with
guidance released on April 26, 2013
describing our intended clarification,9
we propose to clarify in
§ 147.102(a)(1)(ii) that the rating area is
determined in the small group market
using the principal business address of
the group policyholder, and in the
individual market, using the address of
the primary policyholder, regardless of
the location of other individuals
covered under the plan or coverage.
This would apply both inside and
outside of the Exchange and SHOP. We
seek comment on this proposal.
Additionally, to clarify the connection
between the premium rating
requirements of PHS Act section 2701
and the single risk pool requirement of
section 1312(c) of the Affordable Care
Act, we propose in § 147.102(a) to add
8 See
64 FR 70164 (December 15, 1999).
and Answers Related to the Health
Insurance Market Reforms, (April 26, 2013).
Available at: https://www.cms.gov/CCIIO/Resources/
Fact-Sheets-and-FAQs/qa_hmr.html.
a cross-reference to the single risk pool
standard codified in 45 CFR 156.80.
Because of this connection, HHS
considers both provisions to be subject
to the general enforcement authority
under PHS Act section 2723.
availability and guaranteed renewability
requirements. The proposed
clarifications would make clear, for
example, that a health insurance issuer
must offer to a large employer all
products that are approved for sale in
the large group market, but not those
products approved for sale only in the
small group market, and vice versa. We
propose similar amendments
recognizing the distinction of the large
group and small group segments of the
group market for purposes of the
guaranteed renewability provisions.
Also, in § 147.104(b)(2), we propose a
clarification that, as of January 1, 2015,
all non-grandfathered coverage in the
individual market or in a market in
which the State has merged the
individual and small group risk pools,
pursuant to section 1312(c)(3) of the
Affordable Care Act and implementing
regulations at 45 CFR 156.80(c), must be
offered on a calendar year basis. This
simply clarifies the intent of the Market
Reform Rule. It is essential that all nongrandfathered coverage in the
individual and merged markets be on a
calendar year basis as of January 1, 2015
to line up with coverage in the
Exchanges and also to be consistent
with the requirements of the single risk
pool in § 156.80. For purposes of new
enrollment effective on any date other
than January 1, the first policy year
following such enrollment may
comprise a prorated policy year, ending
on December 31.
2. Guaranteed Availability and
Renewability of Coverage (§§ 147.104,
147.106)
Section 2702 of the PHS Act, as
amended by the Affordable Care Act,
generally directs a health insurance
issuer that offers health insurance
coverage in the individual or ‘‘group
market’’ in a State to accept every
individual or employer in the State that
applies for such coverage. Section 2703
of the PHS Act, as amended by the
Affordable Care Act, generally requires
an issuer in the individual or ‘‘group’’
market to renew or continue in force
coverage at the option of the plan
sponsor or individual, as applicable.
Both of these statutes and their
implementing regulations, codified at 45
CFR 147.104 and 147.106, do not
distinguish between the different
segments of the group market, meaning
the large group and small group
markets. We explained in the preamble
of the Market Reform Rule (78 FR
13419), in the context of the market
withdrawal exception to guaranteed
renewability, that because the statutory
language refers only to the ‘‘group
market,’’ the regulations implement the
statute without segmenting the group
market.
After further review and
consideration of the statutory
provisions, we are proposing to clarify
that the guaranteed availability and
renewability requirements apply within
the applicable market segment (the
individual, small group, or large group
market). This clarification is consistent
with the information we provided in a
document titled, ‘‘Frequently Asked
Questions on Health Insurance
Marketplaces,’’ dated May 14, 2013.10
We recognize that issuers in the large
group and small group markets may be
subject to distinct requirements under
the PHS Act (for example, requirement
to cover the essential health benefits
package under section 2707(a)) and that
failing to segment the markets for
purposes of guaranteed availability and
guaranteed renewability would have
consequences not contemplated by the
PHS Act. Accordingly, we propose
amendments recognizing the distinction
of the large group and small group
markets for purposes of the guaranteed
C. Part 153—Standards Related to
Reinsurance, Risk Corridors, and Risk
Adjustment under the Affordable Care
Act
In this part, we propose certain
provisions related to program integrity
for State-operated risk adjustment and
reinsurance programs. Specifically, we
propose an accounting requirement for
State-operated reinsurance and risk
adjustment programs, and requirements
relating to summary reports and
independent external audits for these
programs. We also propose a provision
restricting the use of reinsurance funds
for administrative expenses, which we
discussed in the preamble to the HHS
Notice of Benefit and Payment
Parameters for 2014 11 (2014 Payment
Notice). In addition, we propose record
retention standards for States operating
risk adjustment, and for contributing
entities and reinsurance-eligible plans
when HHS operates reinsurance on
behalf of a State. We seek comment on
these proposals. We set forth a general
10 Available at: https://www.cms.gov/CCIIO/
Resources/Fact-Sheets-and-FAQs/Downloads/
marketplace-faq-5-14-2013.pdf.
11 Patient Protection and Affordable Care Act;
HHS Notice of Benefit and Payment Parameters for
2014, 78 FR 15410 (March 11, 2013).
9 Questions
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
PO 00000
Frm 00006
Fmt 4701
Sfmt 4702
E:\FR\FM\19JNP3.SGM
19JNP3
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
description of these provisions in a
document titled, ‘‘Frequently Asked
Questions on Health Insurance
Marketplaces,’’ dated May 14, 2013.12
We intend to engage in further
consultations with stakeholders, and to
propose additional standards related to
the oversight of the premium
stabilization programs in future
regulations and guidance, including
standards governing data validation for
risk adjustment when HHS operates that
program on behalf of a State.
tkelley on DSK3SPTVN1PROD with PROPOSALS3
1. Subpart A—General Provisions
a. Definitions (§ 153.20)
In this section, we propose an
amendment to the definition of a
‘‘contributing entity.’’ The current
definition states that ‘‘Contributing
entity means a health insurance issuer
or self-insured group health plan. A selfinsured group health plan is responsible
for the reinsurance contributions,
though it may elect to use a third party
administrator or administrative services
only contractor for transfer of the
reinsurance contributions.’’ This
definition does not address the situation
in which the benefit provided to a
participant under a group health plan is
partially insured, and partially selfinsured (for example, the medical
benefits are provided under a selfinsured arrangement but the
prescription drug benefits are provided
under an insured arrangement, or vice
versa). However, the reinsurance
contribution counting rules at 45 CFR
153.405(f), which we promulgated in
the 2014 Payment Notice, do address
this situation, and place liability for
reinsurance contributions on the plan.
We propose to amend the definition of
‘‘contributing entity’’ to clarify that for
purposes of that definition, a selfinsured group health plan includes a
group health plan that is partially selfinsured and partially insured, but only
where the insured coverage does not
constitute major medical coverage
(whether or not the self-insured
coverage is major medical coverage).13
This amendment would clarify that if a
group health plan is structured in such
a manner, the group health plan would
be liable for reinsurance contributions
under the counting rules applicable to
self-insured group health plans at 45
CFR 153.405(f), but if the insured
coverage is major medical coverage, the
issuer is liable for the contributions. For
12 Available at: https://www.cms.gov/CCIIO/
Resources/Fact-Sheets-and-FAQs/Downloads/
marketplace-faq-5-14-2013.pdf.
13 We described some of the characteristics of
major medical coverage in the 2014 Payment
Notice, at 78 FR 15456. We propose further
clarification of this concept below.
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
a discussion of group health plans
under which certain coverage options
under the plan are insured and other
coverage options are self-insured, see
the last paragraph of the preamble
discussion of proposed § 153.400 below.
2. Subpart C—State Standards Related
to the Reinsurance Program
Section 1341 of the Affordable Care
Act provides for the establishment of a
transitional reinsurance program in each
State to help stabilize premiums for
coverage in the individual market from
2014 through 2016. The reinsurance
program is designed to alleviate the
need to build into premiums the
unknown costs of enrolling individuals
with significant unmet medical needs.
In subparts C and E of 45 CFR part 153,
finalized on March 23, 2012 in the
Premium Stabilization Rule (77 FR
17220), we established standards for the
administration of the reinsurance
program. Below, we propose certain
provisions related to the oversight of
State-operated reinsurance programs.
a. Maintenance of Records (§ 153.240(c))
We propose to amend 45 CFR
153.240(c), a maintenance of records
requirement applicable when a State
establishes the reinsurance program, to
be consistent with proposed
§ 153.310(c)(4), a maintenance of
records requirement for State-operated
risk adjustment programs, which is
discussed below. We propose to amend
§ 153.240(c) such that if a State
establishes a reinsurance program, the
State would be directed to maintain
documents and records relating to the
reinsurance program, whether paper,
electronic, or in other media, for each
benefit year for at least 10 years, and
make them available upon request from
HHS, the OIG, the Comptroller General,
or their designees, to any such entity.
The documents and records must be
sufficient to enable an evaluation of the
State-operated reinsurance program’s
compliance with Federal standards.
States would also be directed to ensure
that their contractors, subcontractors,
and agents similarly maintain and make
relevant documents and records
available upon request from HHS, the
OIG, the Comptroller General, or their
designees. We note that a State may
satisfy this standard by archiving these
documents and records and ensuring
that they are accessible if needed in the
event of an investigation, audit, or other
review. We seek comment on this
proposal.
PO 00000
Frm 00007
Fmt 4701
Sfmt 4702
37037
b. General Oversight Requirements for
State-Operated Reinsurance Programs
(§ 153.260)
HHS expects that States will operate
the reinsurance program under section
1341 of the Affordable Care Act in an
effective and efficient manner, and in
accordance with the provisions of
subpart C of 45 CFR part 153. We are
therefore proposing, pursuant to our
authority under sections 1321(a)(1) and
1341 of the Affordable Care Act, certain
general oversight requirements for Stateoperated reinsurance programs. In
§ 153.260(a), we propose that a State
establishing the reinsurance program
would be directed to ensure that its
applicable reinsurance entity keeps, for
each benefit year, an accounting of the
following: (1) All reinsurance funds
received from HHS for reinsurance
payments and for administrative
expenses; (2) all claims for reinsurance
payments received from issuers of
reinsurance-eligible plans; (3) all
reinsurance payments made to issuers of
reinsurance-eligible plans; and (4) all
administrative expenses incurred for the
State’s reinsurance program. This
accounting must be kept in accordance
with generally accepted accounting
principles (GAAP), consistently applied.
This accounting would enable HHS to
ensure that the appropriate amount of
reinsurance funds collected by the
Federal government is spent for
reinsurance payments and
administrative expenses. We seek
comment on this proposal.
In § 153.260(b), we propose that a
State that establishes the reinsurance
program would be directed to submit to
HHS and make public a summary report
on its reinsurance program operations
for each benefit year, in the manner and
timeframe specified by HHS. This report
must include a summary of the
accounting for the benefit year as set
forth in proposed § 153.260(a). We note
that, in the interest of transparency,
HHS intends to publish periodic reports
on its operation of the reinsurance
program on States’ behalf. We anticipate
that these reports will not correspond
entirely in format and substance to
those required of States that operate the
reinsurance program due to the fact that
HHS is already subject to a number of
auditing and program integrity
requirements, including requirements
relating to periodic reviews of improper
payments of Federal funds under the
Improper Payments Elimination and
Recovery Act of 2010.
In § 153.260(c), we propose that a
State that establishes the reinsurance
program engage an independent
qualified auditing entity to perform a
E:\FR\FM\19JNP3.SGM
19JNP3
37038
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
financial and programmatic audit of the
program for each benefit year in
accordance with generally accepted
auditing standards (GAAS). This
auditing entity would be licensed, be in
good standing in one or more States,
and be free from bias or the appearance
of bias. This entity may be a government
entity. Pursuant to proposed
§ 153.260(c)(2), the State would be
directed to ensure that this audit
addresses the prohibitions set forth in
proposed § 153.265 (concerning
improper use of reinsurance funds for
administrative expenses). We seek
comment on this proposal, and intend
to provide more information on auditing
standards in future guidance.
In paragraph (c)(1), we propose that
the State provide to HHS the results of
the independent external audit for each
benefit year, and in paragraph (c)(3), we
propose that the State identify to HHS
any material weakness or significant
deficiency identified in the audit (as
these terms are defined in GAAS issued
by the American Institute of Certified
Public Accountants, and Government
Auditing Standards issued by the
Government Accountability Office
(GAO) 14). We further propose that the
State address in writing to HHS how it
intends to correct any such material
weakness or significant deficiency. To
ensure transparency and accountability
of a State-operated reinsurance
program’s finances and activities, we
propose in paragraph (c)(4) that the
State make public a summary of the
results of the external audit, including
any material weakness or significant
deficiency in a manner and timeframe
specified by HHS. We believe that these
measures are necessary to ensure the
proper use of reinsurance contributions
under the national contribution rate,
which HHS will collect from all
contributing entities pursuant to 45 CFR
153.220. We seek comment on this
proposal.
c. Restrictions on Use of Reinsurance
Funds for Administrative Expenses
(§ 153.265)
tkelley on DSK3SPTVN1PROD with PROPOSALS3
To achieve the intended purposes of
the reinsurance program, reinsurance
contributions collected must be spent
on reinsurance payments, payments to
the U.S. Treasury, and on reasonable
expenses to administer the reinsurance
14 See, Government Auditing Standards (2011
Revision), available at: https://www.gao.gov/
yellowbook. For public companies, the Public
Company Accounting Oversight Board (PCAOB)
sets audit standards. See, https://pcaobus.org/
Standards/Auditing/Pages/default.aspx. For nonpublic companies, the AICPA sets audit standards.
See, https://www.aicpa.org/Research/Standards/
AuditAttest/Pages/SAS.aspx.
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
program. As stated in the 2014 Payment
Notice, the total reinsurance
contributions to be collected for Federal
administrative expenses for operating
reinsurance for the 2014 benefit year is
$20.3 million, resulting in a national per
capita contribution rate of $0.11
annually for HHS administrative
expenses. The funds for administrative
expenses will be collected by HHS from
all contributing entities, and will be
apportioned as follows: $0.055 of the
total administrative expenses collected
per capita will be allocated to
administrative expenses incurred in the
collection of contributions from
contributing entities; and $0.055 of the
total administrative expenses collected
per capita will be allocated to expenses
incurred for activities supporting the
administration of payments to issuers of
reinsurance-eligible plans.
The total amounts allocated towards
administrative expenses for reinsurance
payments will be allocated in
proportion to the State-by-State total
requests for reinsurance payments made
under the national reinsurance payment
parameters. Thus, if a State that operates
reinsurance receives total requests for
reinsurance payments under the
national reinsurance payment
parameters that represent 5 percent of
the total requests received for all States,
then the State would receive a
disbursement of 5 percent of the
reinsurance contributions allocated to
expenses incurred to support
administration of payments to
reinsurance-eligible plans to support its
administration of reinsurance payments
in that State. Pursuant to proposed
§ 153.260(a), a State operating
reinsurance would be directed to keep
an accurate accounting of the
reinsurance funds received from HHS
for administrative expenses and all the
administrative expenses incurred for the
State-operated reinsurance program. If a
State incurs fewer expenses in operating
reinsurance for a benefit year than are
allocated to it under the national
reinsurance contribution rate, the State
would be directed to carry over those
funds for use in operating reinsurance
in subsequent benefit years.
Section 1311(d)(5)(B) of the
Affordable Care Act prohibits an
Exchange from utilizing any funds
intended for the administrative and
operational expenses of the Exchange
for staff retreats, promotional giveaways,
excessive executive compensation, or
promotion of Federal or State legislative
and regulatory modifications. In
§ 153.265, we propose to extend these
prohibitions to State-operated
reinsurance programs so that a State
establishing the reinsurance program
PO 00000
Frm 00008
Fmt 4701
Sfmt 4702
would be directed to ensure that its
applicable reinsurance entity does not
use any funds for the support of
operations of the reinsurance program,
including any reinsurance contributions
collected under the national
contribution rate for administrative
expenses, for any of the prohibited
purposes stated in section 1311(d)(5)(B)
of the Affordable Care Act. We seek
comment on this proposal.
3. Subpart D—State Standards Related
to the Risk Adjustment Program
The risk adjustment program is a
permanent program created by section
1343 of the Affordable Care Act that
transfers funds from lower-risk, nongrandfathered plans to higher-risk, nongrandfathered plans in the individual
and small group markets, inside and
outside of the Exchanges. In subparts D
and G of 45 CFR part 153, finalized
March 23, 2012 (77 FR 17220), we
established standards for the
administration of the risk adjustment
program. A State approved (or
conditionally approved) by the
Secretary to operate an Exchange may
establish a risk adjustment program.
Alternatively, a State may have HHS
operate a risk adjustment program on its
behalf. Pursuant to our authority under
sections 1321(a)(1) and 1343 of the
Affordable Care Act, we propose below
certain provisions related to the
oversight of State-operated risk
adjustment programs.
a. Maintenance of Records
(§ 153.310(c)(4))
In § 153.310(c)(4), we propose that a
State operating a risk adjustment
program would be directed to maintain
documents and records relating to the
risk adjustment program, whether
paper, electronic, or in other media, for
each benefit year for at least 10 years,
and make them available upon request
from HHS, the OIG, the Comptroller
General, or their designees, to any such
entity. The documents and records must
be sufficient to enable the evaluation of
a State-operated risk adjustment
program’s compliance with Federal
standards. States would also be directed
to ensure that their contractors,
subcontractors, and agents maintain and
make those documents and records
available upon request from HHS, the
OIG, the Comptroller General, or their
designees. We note that a State may
satisfy this standard by archiving these
documents and records and ensuring
that they are accessible if needed in the
event of an investigation, audit, or other
review. This provision is consistent
with the requirements set forth in
proposed § 153.240(c), which contains
E:\FR\FM\19JNP3.SGM
19JNP3
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
tkelley on DSK3SPTVN1PROD with PROPOSALS3
record retention standards for Stateoperated reinsurance programs. We seek
comment on this proposal.
b. Interim Report and State Summary
Report (§ 153.310(d))
In § 153.310(d)(3), we propose that, in
addition to the requirements set forth in
45 CFR 153.310(d)(1) and (d)(2), to
obtain recertification from HHS to
operate risk adjustment for a third
benefit year, a State would be directed
to, in the first benefit year for which it
operates risk adjustment, provide to
HHS an interim report, in a manner
specified by HHS, that includes a
detailed summary of its risk adjustment
activities in the first 10 months of the
benefit year. We propose that this report
would be due no later than December
31st of the first benefit year for which
a State operates risk adjustment. The
interim report is intended to provide
HHS with the information needed to
assess the State’s compliance with the
applicable Federal standards related to
risk adjustment. We note that because
the process for receiving certification to
operate risk adjustment begins more
than one year before the beginning of
the applicable benefit year, the first
benefit year for which an interim report
based on the first year’s operations
could be used for certification purposes
is the third benefit year. We intend to
provide more information on the risk
adjustment interim report in future
guidance, and we seek comment on the
content and format of this report.
We propose to amend 45 CFR
153.310(f) and re-designate it as
§ 153.310(d)(4). In § 153.310(d)(4), we
propose that in order to obtain
recertification from HHS to operate risk
adjustment for each benefit year after
the third benefit year for which it is
certified, each State operating a risk
adjustment program would be directed
to submit to HHS and make public a
detailed summary of risk adjustment
program operations for the most recent
benefit year for which risk adjustment
operations have been completed, in the
manner and timeframe specified by
HHS. We propose in § 153.310(d)(4)(i)
that this summary report include the
results of a programmatic and financial
audit for the benefit year of the Stateoperated risk adjustment program
conducted by an independent qualified
auditing entity in accordance with
GAAS. As discussed above, this entity,
which may be a government entity,
must be licensed and in good standing
in one or more States, and must be free
from bias or the appearance of bias. In
§ 153.310(d)(4)(ii), we propose that the
summary report would identify to HHS
any material weakness or significant
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
deficiency (as these terms are defined in
GAAS issued by the American Institute
of Certified Public Accountants, and
Government Auditing Standards issued
by the GAO 15) identified in the external
audit and address in writing to HHS
how the State intends to correct any
such material weakness or significant
deficiency.
We seek comment on these proposals,
including on the content and format of
the summary reports.
c. General Oversight Requirements for
State-Operated Risk Adjustment
Programs (§ 153.365)
To enable HHS to recertify States to
operate risk adjustment pursuant to 45
CFR 153.310(d), HHS proposes in
§ 153.365 that a State operating a risk
adjustment program keep an accounting
of all receipts and expenditures related
to risk adjustment payments and
charges and the administration of risk
adjustment-related functions and
activities for each benefit year. This
accounting would be kept in accordance
with GAAP, consistently applied. This
requirement parallels proposed
§ 153.260(a), which applies to the
reinsurance program when operated by
a State.
4. Risk Adjustment Methodology
a. Modification to the Transfer Formula
in the HHS Risk Adjustment
Methodology (78 FR at 15430–15434)
In the Payment Notice (78 FR 15430–
34), we noted our intent to modify the
risk adjustment payment transfer
formula in order to accommodate
community rated States that utilize
family tiering rating factors. In noncommunity rated States, family policy
premiums must be developed by
summing the applicable rates of each
individual covered under the policy, as
required under 45 CFR 147.102(c)(1). In
the case of families with more than
three children in non-community rated
States, only the applicable rates of the
three oldest covered children under age
21 are counted towards the family
policy premium rate (for example, for a
family with four children under age 21,
only the applicable individual rates of
the three oldest children would count
towards the family policy premium).
These family rating requirements do not
apply to community rated States that
15 See, Government Auditing Standards (2011
Revision), available at: https://www.gao.gov/
yellowbook. For public companies, the Public
Company Accounting Oversight Board (PCAOB)
sets audit standards. See, https://pcaobus.org/
Standards/Auditing/Pages/default.aspx. For nonpublic companies, the AICPA sets audit standards.
See, https://www.aicpa.org/Research/Standards/
AuditAttest/Pages/SAS.aspx.
PO 00000
Frm 00009
Fmt 4701
Sfmt 4702
37039
utilize family tiering rating factors. In
community rated States, family tiering
rating factors do not have to yield
premiums that are equal to the sum of
each policy member’s applicable rate,
nor do they have to be set in a way that
only counts the rates of the oldest three
children under age 21 within a family
policy. For example, a community rated
State could establish a family tiering
rating factor of 1.0 for an adult policy,
1.8 for a policy covering one adult and
one or more children, 2.0 for a policy
covering two adults, and 2.8 for a policy
covering two adults and one or more
children.
In order to account for the differences
in family rating practices between
family tiering States and non-family
tiering States, we are proposing two
changes to the risk adjustment payment
transfer formula that HHS will use when
operating risk adjustment on behalf of a
State. These changes would only apply
to States that are using family tiering
rating structures. In the 2014 Payment
Notice, we stated that billable members
exclude children who do not count
towards family rates (that is, children
who do not count toward family policy
premiums are excluded) (78 FR 15432,
15434). We propose to clarify that in the
case of family tiering States, billable
members would be based on the number
of children that implicitly count
towards the premium under a State’s
family rating factors. For example,
assume a State has the following four
family tiers: One adult; one adult plus
one or more children; two adults; and
two adults plus one or more children.
Under this tiering structure, only one
child would be counted as a billable
member in the payment transfer
formula, because additional children
covered under a family policy would
not affect the policy’s premium.
Additionally, we are proposing a
modification to the allowable rating
factor (ARF) formula that would be used
for family tiering States. In the Payment
Notice (78 FR 15433), the ARF is
calculated as the member month
weighted average of the age factor
applied to each billable enrollee. In nonfamily tiering States, the ARF is
intended to measure the extent to which
plans are increasing or decreasing their
premiums based on allowable age rating
factors. In the case of family tiering
States, premium revenue will not vary
by age-specific rating factors. Rather,
policy level premiums will vary only
based on the family tiering factors. In
order to capture the impact of the family
tiering factors on plans’ premium
revenue we are proposing that the ARF
formula for family tiering States be
E:\FR\FM\19JNP3.SGM
19JNP3
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
based on the family tiering factors
instead of age rating factors.
Specifically, for family tiering States,
the ARF would be calculated at the level
of the subscriber, as follows:
Where:
ARFs is the rating factor for the subscriber (s)
(based on family size/composition) and
Ms is the number of billed personmonths that are counted in determining
the subscriber (s) premium.
We note that aside from the changes
to the billable member months
definition and the ARF formula
discussed above, payment transfers in
family tiering States will be calculated
using the formulas provided in the
Payment Notice (78 FR at 15431–34).
Additionally, the changes to the billable
member month definition and the ARF
formula would not apply to community
rated States that do not implement
family tiering rating factors.
tkelley on DSK3SPTVN1PROD with PROPOSALS3
5. Subpart E—Health Insurance Issuer
and Group Health Plan Standards
Related to the Reinsurance Program
a. Reinsurance Contribution Funds
(§ 153.400)
In some health coverage
arrangements, an insured group health
plan may provide benefits through more
than one policy to the same covered
lives, where each policy standing alone
does not constitute major medical
coverage, but the total benefits do.16
Under such an arrangement, a group
health plan could, for example, have
two policies with different issuers, one
providing benefits for hospitalization
and the other providing benefits for
outpatient treatments and prescription
drugs, with the same individuals
simultaneously enrolled in both
policies. In such a situation, the
question has been raised as to whether
the issuers would be required to make
reinsurance contributions for the
insured policies since neither policy
would constitute major medical
coverage, and whether the group health
plan would be required to make
reinsurance contributions because it
would not be a self-insured plan.
Therefore, to clarify the application of
the rules (solely for the purpose of
reinsurance contributions), we propose
to amend paragraph (a)(1)(i) of 45 CFR
16 We note that, after 2014, such arrangements
generally would only be permissible in the large
employer group context, as issuers of small
employer group market insurance coverage are
required to provide all essential health benefits
under any policy they offer that does not qualify as
‘‘excepted benefits.’’
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
153.400(a) and add a new paragraph
(a)(3) that would address liability for
reinsurance contributions in cases
where an insured group health plan
provides health insurance coverage
through more than one policy to the
same covered lives, where, as described
above, none of the policies provides
major medical coverage individually,
but their combined benefits meet the
definition of major medical coverage.
This paragraph (a)(3) would be an
exception to the rule under paragraph
(a)(1)(i), which provides that an issuer
of health insurance coverage is not
required to make reinsurance
contributions for coverage to the extent
the coverage is not major medical
coverage.
Under the proposed paragraph (a)(3),
notwithstanding paragraph (a)(1)(i), a
health insurance issuer providing
coverage under a group health plan
would make reinsurance contributions
for lives under its health insurance
coverage even if the insurance coverage
does not constitute major medical
coverage, if (i) The group health plan
provides health insurance coverage for
the same covered lives through more
than one insurance policy that in
combination constitute major medical
coverage but individually do not; (ii) the
lives are not covered by self-insured
coverage of the group health plan
(except for self-insured coverage limited
to excepted benefits); and (iii) the health
insurance coverage under the policy
offered by the health insurance issuer
represents a percentage of the total
health insurance coverage offered in
combination by the group health plan
greater than the percentage offered
under any of the other policies. Clause
(i) describes the arrangement described
in the paragraphs above. Clause (ii)
makes clear that this exception would
apply where group health coverage was
divided only among insurance policies,
and no portion of the coverage is selfinsured.17 Finally, clause (iii) describes
how to determine which issuer is liable
for reinsurance contributions in the
situation described above—where
multiple insurance policies cover the
same lives in an insured group health
plan and each insurance policy is not
major medical coverage, but in
combination they are. We propose in
that clause that an issuer of health
insurance coverage providing a
percentage of the benefits provided by
the group health plan that is greater
17 As discussed in relation to the amendment to
45 CFR 153.20 above, where a group health plan
has mixed self-insured and insured coverage,
liability for reinsurance contributions, if any, falls
upon the self-insured plan, as already established
under our rules.
PO 00000
Frm 00010
Fmt 4701
Sfmt 4702
than the percentage provided by any of
the other insurance policies would be
liable for the reinsurance contributions.
We further propose that for purposes of
paragraph (a)(3), the percentage of
coverage offered under various policies
would be determined based on the
average premium per covered life for
those policies. In the event that the
percentage of coverage for two or more
insurance policies is equal, the issuer of
the policy that provides the greatest
portion of in-network hospitalization
benefits will be responsible for
reinsurance contributions. For example,
if an insured group health plan covered
the same lives under two different
health insurance policies, one with a
monthly average premium per covered
life of $250 and the other with a
monthly average premium per covered
life of $200, the issuer of the insurance
policy with the monthly average
premium per covered life of $250 would
be liable for the reinsurance
contributions.
Because an issuer of group health
insurance coverage that does not, by
itself, constitute major medical
coverage, may not be aware of the
existence of, or premium for, other
health insurance coverage obtained by a
plan sponsor covering the same lives
under a group health plan, we are
considering directing such an issuer to
seek a representation from the plan
sponsor regarding the relative
percentage of coverage offered by the
issuer. We seek comment on whether
and in what circumstances an issuer
should be entitled to rely upon such
representations and what other means
we should consider for ensuring that the
relevant issuer knows of its obligation to
make the reinsurance contributions,
including with respect to any role that
the employer should have in ensuring
that issuers have information necessary
to determine which issuer is responsible
for reinsurance contributions.
We seek comment on these proposals,
as well as alternative approaches that
should be considered for determining
responsibility for reinsurance
contributions in such circumstances.
For example, the liability rules could
impose responsibility for the
reinsurance contributions on the issuer
of the coverage that provides the
hospitalization coverage or the rules
could allocate liability among the
issuers in proportion to the benefits
offered under the respective policies.
We are also considering proposing a
definition for ‘‘major medical coverage’’
that would provide additional clarity
around the responsibility to make
payments. While HHS believes that
responsibility for issuers and group
E:\FR\FM\19JNP3.SGM
19JNP3
EP19JN13.013</GPH>
37040
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
tkelley on DSK3SPTVN1PROD with PROPOSALS3
health plans is clear, we seek comment
on what further clarification is needed
and what the definition should be.
Finally, we have received inquiries as
to how reinsurance contribution
obligations would be addressed in the
case of a group health plan under which
some benefit options for employees are
insured by an issuer, and some options
offer benefits without the involvement
of an issuer in insuring the benefits
(because either the group health plan or
some non-issuer entity assumes the risk
for that coverage option). We are
proposing that in such a case, if a
coverage option is insured by an issuer,
the issuer would be responsible for the
reinsurance contribution associated
with that coverage option. If an
employee coverage option under such a
group health plan is not insured
(because either the group health plan or
other non-issuer assumes the risk), then
the group health plan would be
responsible for the reinsurance
contribution associated with that
coverage option. We seek comment on
this proposed approach.
b. Maintenance of Records (§ 153.405(h)
and § 153.410(c))
Pursuant to our obligation to
safeguard Federal funds, we propose to
amend § 153.405 by adding paragraph
(h), in which we propose that a
contributing entity would be directed to
maintain documents and records,
whether paper, electronic, or in other
media, sufficient to substantiate the
enrollment count submitted pursuant to
that section for at least 10 years, and
make that evidence available upon
request from HHS, the OIG, the
Comptroller General, or their designees,
to any such entity, for verification of
reinsurance contribution amounts. We
also propose to amend § 153.410 by
adding paragraph (c), in which we
propose that an issuer of a reinsuranceeligible plan in a State where HHS
operates reinsurance would be directed
to maintain documents and records,
whether paper, electronic, or in other
media, sufficient to substantiate the
requests for reinsurance payments made
pursuant to that section for at least 10
years, and make that evidence available
upon request from HHS, the OIG, the
Comptroller General, or their designees,
(or, in a State where the State is
operating reinsurance, the State or its
designee), to any such entity, for
verification of reinsurance payment
requests. We note that these standards
may be satisfied if the contributing
entity or issuer of a reinsurance-eligible
plan archives the documents and
records and ensures that they are
accessible if needed in the event of an
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
investigation, audit, or other review.
These proposed provisions are
consistent with the requirements for
record retention under the False Claims
Act and those set forth in proposed
§ 153.620(b), which apply to issuers of
risk adjustment covered plans. We seek
comment on these proposals.
6. Subpart F—Health Insurance Issuer
Standards Related to the Risk Corridors
Program
Section 1342(a) of the Affordable Care
Act provides that ‘‘a qualified health
plan offered in the individual or small
group market’’ is to participate in the
risk corridors program. In the Exchange
Establishment Rule, we stated that a
stand-alone dental plan is ‘‘a type of
qualified health plan.’’ However, we did
not intend for all requirements
applicable to a QHP to apply to standalone dental plans. For example, under
45 CFR 155.1065(a)(3), certain QHP
standards are not applicable to a standalone dental plan if they cannot be met,
given the limited benefit package
offered by the plan. We believe that it
would not be appropriate to subject
stand-alone dental plans to the risk
corridors program because such plans
are considered excepted benefits plan
under section 2791(c) of the PHS Act,
meaning that these plans are not subject
to the Federal prohibition on
underwriting premiums or the
requirement to base pricing using the
single risk pool or fair health insurance
premiums limitations. Thus, although
States have the option to prohibit
underwriting for excepted benefits
plans, and issuers of stand-alone dental
plans in an FFE may voluntarily choose
to underwrite these plans, we believe
that, in general, an issuer of a standalone dental plan will not be subject to
the same rate-setting uncertainty in
2014 as the issuer of a major medical
plan, and will not need the premium
risk-sharing protections of risk
corridors.18
We note that stand-alone dental plans
are similarly excluded from
participation in the two other premium
stabilization programs—reinsurance and
risk adjustment. We also note that,
18 In the preamble to the Exchange Establishment
Rule, we note that each Exchange can require, as
a condition of certification, comprehensive medical
QHPs to offer and price the pediatric dental EHB
(if covered) separately, if doing so would be in the
best interest of consumers. For the 2014 coverage
year, CMS will not require comprehensive medical
QHP issuers that provide pediatric dental coverage
to offer and price the pediatric dental EHB
separately from the rest of the plan in connection
with certification by an FFE. We have provided this
guidance in Chapter 4 of the 2014 Letter to Issuers
on Federal and Partnership Marketplaces (April 5,
2013).
PO 00000
Frm 00011
Fmt 4701
Sfmt 4702
37041
consistent with the exclusion of
excepted benefits plans from the
medical loss ratio (MLR) requirements,
stand-alone dental claims would not be
pooled along with an issuer’s other
claims for the purposes of determining
‘‘allowable costs’’ in the risk corridors
calculation, as defined at 45 CFR
153.500. We seek comment on this
approach.
7. Subpart G—Health Insurance Issuer
Standards Related to the Risk
Adjustment Program
We propose to amend § 153.620(b) to
add a standard that would direct an
issuer that offers risk adjustment
covered plans to maintain documents
and records, whether paper, electronic,
or in other media, sufficient to enable
the evaluation of the issuer’s
compliance with applicable risk
adjustment standards, and to make that
evidence available upon request from
HHS, OIG, the Comptroller General, or
their designees (or in a State where the
State is operating risk adjustment, the
State or its designee), to any such entity.
This standard, which is consistent with
other records maintenance standards in
this proposed rule, would direct an
issuer of a risk adjustment covered plan
to retain additional records—not only
those pertaining to data validation—to
substantiate its compliance with risk
adjustment standards, whether risk
adjustment is operated by HHS or a
State. We note that we anticipate that
the bulk of the record maintenance
obligations will relate to data validation,
but that certain records, for instance
those relating to premium rating or
small group status, will not. We seek
comment on this proposal.
8. Subpart H—Distributed Data
Collection for HHS-Operated Programs
a. Failure To Comply With HHSOperated Risk Adjustment and
Reinsurance Data Requirements
(§ 153.740)
In § 153.740(a), we propose that HHS
may pursue an enforcement action for
CMPs against an issuer in a State where
HHS operates the reinsurance or risk
adjustment program, if an issuer fails to:
(a) establish a secure, dedicated
distributed data environment pursuant
to 45 CFR 153.700(a); (b) provide HHS
with access to enrollee-level plan
enrollment information, enrollee claims
data, or enrollee encounter data through
its dedicated distributed data
environment pursuant to 45 CFR
153.710(a); (c) otherwise comply with
the requirements of 45 CFR 153.700
through 153.730; (d) adhere to the
reinsurance data submission
E:\FR\FM\19JNP3.SGM
19JNP3
tkelley on DSK3SPTVN1PROD with PROPOSALS3
37042
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
requirements set forth in 45 CFR
153.420; or (e) adhere to the risk
adjustment data submission and data
storage requirements set forth in 45 CFR
153.610 through 153.630.
Risk Adjustment: For risk adjustment
covered plans, HHS will need access to
the risk adjustment enrollee-level plan
enrollment information, enrollee claims
data, or enrollee encounter data from
the issuer by April 30th of the year
following the applicable benefit year in
order to calculate payment transfers
based on claims experience and
premiums as set forth in 45 CFR
153.730. Pursuant to section 1321(c)(2)
of the Affordable Care Act, in HHS’s
role in operating risk adjustment on
behalf of a State, to enforce the risk
adjustment standards, we propose to
apply the standards in proposed
§ 156.805 in connection with the
imposition of CMPs under this section.
If a risk adjustment covered plan does
not comply with the requirements set
forth in 45 CFR 153.610 through
153.630 and 45 CFR 153.700 through
153.730, we intend to apply the
proposed sanction so that the level of
the enforcement action would be
proportional to the level of the
violation. While we would reserve the
right to impose penalties up to the
maximum amounts proposed in
§ 156.805(c), as a general principle, we
intend to work collaboratively with
issuers to address problems in
establishing dedicated distributed data
environments in 2014. In our
application of the proposed sanction,
we would take into account the totality
of the issuer’s circumstances, including
such factors as an issuer’s previous
record (if any), the frequency and level
of the violation, and any aggravating or
mitigating circumstances. Our intent is
to encourage QHP issuers to address
non-compliance and not to severely
affect their financial condition,
especially where the issuer
demonstrates good faith in monitoring
compliance with applicable standards,
identifies any suspected occurrences of
non-compliance, and attempts to
remedy any non-compliance. We note
that HHS would reserve the right to
impose, or not impose, CMPs as
appropriate. For instance, if an issuer of
a risk adjustment covered plan does not
establish a dedicated distributed data
environment or provide access to the
necessary risk adjustment data to permit
HHS to timely calculate the applicable
risk adjustment transfer amounts, we are
proposing that HHS will assess the
default risk adjustment charge described
below. However, HHS may elect to
pursue CMPs in conjunction with the
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
imposition of the default risk
adjustment charge if an issuer failed to
comply with applicable data security or
privacy standards, putting the interests
of third-parties at risk.
Reinsurance: Similar to our proposal
for risk adjustment covered plans, we
propose that an issuer of a reinsuranceeligible plan may be subject to CMPs for
failure to comply with 45 CFR 153.420,
or 45 CFR 153.700 through 153.730. In
our application of the proposed
sanction, we would take into account
the totality of the issuer’s
circumstances, including such factors as
an issuer’s previous record (if any), the
frequency and level of the violation, and
any aggravating or mitigating
circumstances. In certain cases, we may
not pursue CMPs. For example, if an
issuer of a reinsurance-eligible plan fails
to set up a dedicated distributed data
environment or meet certain data
requirements stated above, and as a
consequence, HHS would not have the
necessary data to calculate or distribute
reinsurance payments for the
reinsurance-eligible plan, the
reinsurance-eligible plan would not
receive reinsurance payments that it
otherwise might have received.
However, HHS would reserve the right
to pursue CMPs irrespective of whether
or not an issuer becomes ineligible for
reinsurance payments as a result of
failing to comply with 45 CFR 153.420,
or 45 CFR 153.700 through 153.730.
b. Default Risk Adjustment Charge
As described in the Premium
Stabilization Rule and the 2014
Payment Notice, HHS will employ a
distributed data collection approach for
risk adjustment. Under this approach,
issuers in States where HHS operates
risk adjustment will be required to
establish dedicated, secure data
environments, and provide HHS with
access to ‘‘masked’’ 19 enrollee-level
plan enrollment information, enrollee
claims data, and enrollee encounter data
pursuant to 45 CFR 153.710 and 45 CFR
153.720. We would not store any
enrollee PII or individual claim-level
information in connection with this data
collection, except for the purposes of
data validation and audit. We believe
that this approach minimizes issuer
burden while protecting enrollees’
privacy. Issuers must provide access to
required risk adjustment data by April
30th of the year following a benefit year
in order for HHS to calculate risk
19 As described at 45 CFR 153.720(b), masked
data means data associated with a unique identifier,
where the unique identifier does not include the
enrollee’s PII.
PO 00000
Frm 00012
Fmt 4701
Sfmt 4702
adjustment payment transfer amounts
pursuant to 45 CFR 153.730.
In cases where an issuer does not set
up a dedicated distributed data
environment or submits inadequate risk
adjustment data, HHS would not have
the required risk adjustment data from
the issuer to calculate risk scores or
payment transfers. This data is
necessary to properly calculate risk
adjustment payments and charges for
the entire applicable market for the
State. If HHS cannot perform this
calculation for a particular issuer, risk
adjustment payment transfers would be
affected for all other issuers in the State
market because payments transfers are
determined within a market within a
State such that they will net to zero.
Therefore, we believe that we must
establish an administrative capability to
calculate payments and charges for all
plans, to avoid penalizing those plans
that submit timely, complete risk
adjustment data.
Pursuant to section 1343(b) of the
Affordable Care Act, we have the
authority to develop and apply criteria
and methods for carrying out risk
adjustment activities, such as applying
a default charge to issuers in the
individual or small group market that
fail to provide complete data. Under the
HHS-operated risk adjustment
methodology, we require a balanced
payment transfer approach in which
issuers with a higher risk enrollee
population will receive a payment,
while issuers with a lower risk enrollee
population will be assessed a charge in
order to stabilize premiums; these
transfers will be calculated
simultaneously and will net to zero in
each market in each State. Under the
balanced payment transfer approach, we
believe we must calculate risk
adjustment transfers for issuers that fail
to provide data in a timely fashion into
the risk adjustment payment transfer
formula so that compliant issuers are
not penalized. If issuers that would
otherwise be subject to risk adjustment
charges do not comply with these
standards, payments to compliant
issuers would be smaller and charges
owed by compliant issuers would be
larger.
Therefore, in § 153.740(b), we propose
that if an issuer of a risk adjustment
covered plan fails to establish a
dedicated distributed data environment
or fails to provide HHS with access to
risk adjustment data in such
environment by April 30th of the year
following the applicable benefit year in
accordance with § 153.610(a), § 153.700,
§ 153,710, or § 153.730, such that HHS
cannot apply its Federally certified risk
adjustment methodology to calculate the
E:\FR\FM\19JNP3.SGM
19JNP3
tkelley on DSK3SPTVN1PROD with PROPOSALS3
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
plan’s risk adjustment payment transfer
amount in a timely fashion, HHS would
assess a default risk adjustment charge.
We note that delaying our calculation of
risk adjustment payment transfers in a
market in a State until all risk
adjustment covered plans submit
complete risk adjustment data would
weaken the integrity of the April 30th
data submission deadline and would
jeopardize related deadlines for the risk
corridors and MLR programs. We seek
comment on our proposed default
charge approach. We intend to provide
future guidance on any applicable
review processes available to those
issuers for whom we propose to assess
a default charge.
We are considering two different
methods for calculating the default risk
adjustment charge. One option would be
to use the highest per-member-permonth charge among risk adjustment
covered plans in a risk pool in the
market in the plan’s geographic rating
area. A second option would be to use
a per-member-per-month default charge
that is two standard deviations above
the mean charge in the market in the
plan’s geographic rating area. With
respect to this second option, we believe
that a two standard deviation
calculation will adequately encourage
compliance with the applicable data
requirements while remaining tied to
the market realities of the applicable
geographic rating area.
In order to calculate a plan’s risk
adjustment payment transfer amount,
we must consider the enrollment data of
the plan. As such, if a risk adjustment
covered plan fails to provide HHS with
enrollment data, we propose that the
default charge would be based on the
average enrollment in the State market.
If enrollment data is provided, we
propose that the default charge would
be based on average annual enrollment
for the plan in a risk pool in the State
market. We seek comment on these
methods, other appropriate methods for
calculating a default risk adjustment
charge, and other sources of data HHS
could use to determine enrollment data
for non-compliant issuers, such as MLR
or NAIC filings, or information supplied
by a State Department of Insurance
(DOI). We also seek comment on
whether to allocate a non-compliant
issuer’s default charge to issuers in the
market as part of payments and charges
in the concurrent benefit year, during a
subsequent benefit year, or sometime
between annual payments and charges
processes.
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
D. Part 155—Exchange Establishment
Standards and Other Related Standards
Under the Affordable Care Act
1. Subpart A—General Provisions
a. Definitions (§ 155.20)
Section 1311(b) of the Affordable Care
Act provides States with the
opportunity to establish and operate an
Exchange that both facilitates the
purchase of QHPs and provides for the
establishment of a SHOP. Previously,
we have interpreted this provision to
mean that a State must elect to carry out
both these functions in order to
establish an ‘‘Exchange’’ in accordance
with the Affordable Care Act.20
However, since we advanced that
interpretation of the statute, some States
in which HHS would otherwise operate
both the individual market Exchange
and the SHOP have expressed a desire
to establish and operate only a SHOP,
and not to establish and operate an
individual market Exchange. In light of
HHS’s limited resources, and these
States’ willingness to take on operation
of the SHOP-specific functions required
by the Affordable Care Act, we now
interpret sections 1311(b) and 1321 of
the Affordable Care Act to permit a State
to elect to establish just a SHOP.21 This
interpretation is supported by the
language in section 1311(b)(2) of the
Affordable Care Act, which
contemplates the separate operation of
the individual market Exchange and the
SHOP under different governance and
administrative structures, because it
permits the individual market Exchange
and SHOP to be merged only if the State
has adequate resources to assist both
populations (individuals and small
employers) as a merged entity. It is also
supported by section 1321(c) of the
Affordable Care Act, which provides
that if a State will not have ‘‘any
required Exchange operational’’ the
Secretary shall ‘‘establish and operate
such Exchange’’ (emphasis added).
Thus, under the interpretation we now
propose, if the State will establish only
a SHOP, and will not operate the
individual market Exchange, the
Secretary must establish and operate the
individual market Exchange.
We propose to amend 45 CFR 155.20
to reflect this new flexibility for States
by modifying the definition for
‘‘Exchange.’’
20 See Exchange Establishment Rule, 77 FR at
18395, see also id. at 18314, 18316, and 18326.
21 We previously signaled our intent to propose
this approach through rulemaking. See https://
www.cms.gov/CCIIO/Resources/Fact-Sheets-andFAQs/Downloads/shop-marketplace-5–10–
2013.pdf.
PO 00000
Frm 00013
Fmt 4701
Sfmt 4702
37043
Exchange
We propose that ‘‘Exchange’’ would
mean a governmental agency or nonprofit entity that meets the applicable
standards of Part 155 and makes QHPs
available to qualified individuals and/or
qualified employers. Unless otherwise
identified, under the proposed
definition this term would include an
Exchange serving the individual market
for qualified individuals and a SHOP
serving the small group market for
qualified employers, regardless of
whether the Exchange is established and
operated by a State (including a regional
Exchange or subsidiary Exchange) or by
HHS.
We also clarify that we intend the
phrase ‘‘meets the applicable standards
of this part’’ in the proposed
amendment to the definition to refer to
any applicable standard of Part 155,
including but not limited to the
proposed amendments to §§ 155.100,
155.105, and 155.200 discussed below,
and the special rules applicable to
regional Exchanges pursuant to
§ 155.140 (together with the proposed
amendments to that section). Pursuant
to the proposed amendment to the
definition, there could be several types
of Exchanges operating in a State, all of
which would meet the regulatory
definition, so long as the applicable
standards of Part 155 were met. We
further clarify that there must be an
individual market Exchange and a
SHOP in each State. We invite general
comments on this proposal, including
on whether we should amend
provisions of Part 155 in addition to
those we propose amending here to
provide States with the flexibility to
establish and operate only a SHOP.
We are also adding a new definition
for ‘‘issuer customer service
representative.’’
Issuer Customer Service Representative
For the same reasons that we propose
adding § 155.415 below, we propose to
define an ‘‘issuer customer service
representative’’ to mean an employee,
contractor, or agent of a QHP issuer that
provides assistance to applicants and
enrollees, but is not licensed as an
agent, broker, or producer under State
law.
We are also making a clarification
regarding the definition of ‘‘qualified
health plan.’’
Qualified Health Plan
With regard to the definition of
‘‘qualified health plan’’ in the preamble
to the Exchange Establishment Rule, we
stated that health plans that are
‘‘substantially the same’’ as a QHP are
E:\FR\FM\19JNP3.SGM
19JNP3
tkelley on DSK3SPTVN1PROD with PROPOSALS3
37044
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
treated as the same QHP for purposes of
45 CFR 156.255(b), which requires a
QHP issuer to charge the same premium
rate for each QHP of the issuer without
regard to whether the plan is offered
through an Exchange or whether the
plan is offered directly from the issuer
or through an agent. In the Premium
Stabilization Rule, we offered similar
guidance with respect to which plans
offered outside the Exchange would be
considered the same QHP for purposes
of the risk corridors program (77 FR
17237), and stated that HHS might
clarify this standard in future
rulemaking or guidance.
We are now proposing to specify that,
for a plan offered outside the Exchange
to be considered the same plan as one
that is certified as a QHP and offered
through the Exchange, among other
things, the benefits package, provider
network, service areas, and cost-sharing
structure of the two offerings must be
identical. Under this proposal, a plan
that is certified as a QHP and that meets
the requirements for sale in the
applicable market outside of the
Exchange is a QHP for the entire
applicable market within a State. We
note that nothing in this proposal would
relieve an issuer of a plan that has been
certified as a QHP by the Exchange from
the requirement to charge the same
premium for the QHP sold to consumers
outside of the Exchange (pursuant to
sections 1301(a)(C)(iii) of the Affordable
Care Act and 45 CFR 156.255(b) and 45
CFR 147.104).
We also propose to clarify that a plan
sold to consumers outside of the
Exchange would only be subject to the
risk corridors program if it is the same
as a QHP actually offered by that issuer
on the Exchange. We believe that
sections 1301(a)(1)(A) and 1311(e) of the
Affordable Care Act, and the definition
of a QHP at 45 CFR 155.20, contemplate
certification of a QHP for offer on the
Exchange, so that (with the exception of
stand-alone dental plans) a plan sold to
consumers exclusively outside of the
Exchange could not obtain QHP
certification. We note that the EHB final
rule 22 outlined an arrangement where
health insurance issuers could offer a
health plan to an individual without the
pediatric dental EHB if the issuer is
reasonably assured that the individual
has obtained the EHB through an
Exchange-certified stand-alone dental
plan (78 FR 12853).
We believe that the proposed policy
set forth in this section is consistent
22 Patient Protection and Affordable Care Act;
Standards Related to Essential Health Benefits,
Actuarial Value, and Accreditation (78 FR 12834)
(February 25, 2013).
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
with the intent of the statute and
existing regulations with respect to the
offering and certification of QHPs, and
helps to maintain the integrity of the
risk corridors program, which we
believe is intended primarily to stabilize
premiums of plans offered through the
Exchanges.
We request comment on all aspects of
this approach, particularly on issues
that may be raised by this approach for
State requirements for product or policy
form filings, including filings for
coverage riders (whether mandatory or
optional), State-required benefits, and
State-required service areas (including
tiered networks within service areas).
We seek comment on whether the
criteria laid out above—benefits,
provider network, service areas, and
cost-sharing structure—are the proper
criteria for determining whether
offerings are the same plan, and whether
additional criteria such as allowances
for de minimis variations that do not
change plan actuarial value should be
included, or whether no criteria are
necessary because it is clear from State
oversight processes when a plan is the
same plan or a different plan. We also
seek comment on how this proposed
approach would affect what is
considered a new plan offering, and the
potential impact of this proposal on
plan renewals. Finally, we seek
comment on the operational feasibility
of the proposed requirements,
particularly with regard to issuers in the
small group market.
2. Subpart B—General Standards
Related to the Establishment of an
Exchange
a. Establishment of a State Exchange,
Approval of a State Exchange,
(§§ 155.100, 155.105, and 155.140)
Consistent with our proposed
amendments to the definition of
‘‘Exchange’’ in § 155.20, we propose to
amend § 155.100 to permit a State to
operate only a State-based SHOP while
the individual market Exchange is
operated as an FFE. This proposed
amendment would permit a State to
elect to establish and operate only the
SHOP and to focus on effective
implementation of that program. A State
that is electing to establish only a SHOP
must establish an Exchange entity—
consistent with section 1311(d)(1) of the
Affordable Care Act and §§ 155.100(b)
and 155.110—to perform only the SHOP
functions.
We considered whether to propose
allowing a State to establish and operate
only the individual market Exchange
while HHS operates the SHOP, but
decided not to do so for the reasons
PO 00000
Frm 00014
Fmt 4701
Sfmt 4702
described below. Accordingly, under
the proposed amendments, a State could
not elect to establish and operate just
the individual market Exchange. We
believe that building and operating the
SHOP is an excellent way for a State to
move towards operating both a SHOP
and an individual market Exchange.
Further, while a State operating a SHOP
has a variety of options available to
ensure a robust choice of QHPs and
issuers, for example, through its direct
regulation of the individual and small
group insurance markets, these options
may not be available to HHS because
they would require HHS to go beyond
its traditional market role under the
PHS Act. The only tool HHS can rely
upon for incentivizing issuer
participation in the SHOP is the QHP
certification process, and this tool is a
limited one if the individual market
Exchange is operated by the State.23
Additionally, if the State has already
built the structure and systems needed
to run an individual market Exchange,
it would be inefficient and burdensome
for HHS to step in and build those
functions solely so that it can operate
the SHOP, when the State would be in
a better position to operate both
Exchanges. Therefore, we have not
proposed that a State be allowed to
operate an individual market Exchange
while the Department is responsible for
the operation of an FF–SHOP in the
State. As discussed above, we seek
comment generally on this proposal,
and particularly on this aspect of it.
We propose in § 155.100(a)(3) that a
State that has timely applied for
certification of an Exchange for 2014,
and that has received conditional
approval for its application, would be
able to modify its Blueprint pursuant to
45 CFR 155.105(e) to exclude the
operation of the individual market
Exchange functions for 2014.24 Because
such States have been preparing to
establish and operate both the
individual market and SHOP
Exchanges, they would be in a position
to establish and operate just the SHOP
in 2014. In contrast, States that have not
received conditional approval to operate
both Exchanges, but which want to
operate only a SHOP for 2014, would
have to develop a fully functioning
SHOP by the time open enrollment
begins on October 1, 2013; this is a
23 See, HHS Notice of Benefit and Payment
Parameters for 2014 Proposed Rule, 77 FR 73185.
24 In guidance, we have previously signaled our
intent to propose this approach through
rulemaking. See Small Business Health Options
Program (SHOP)-Only Marketplace FAQs (May 10,
2013). available at: https://www.cms.gov/CCIIO/
Resources/Fact-Sheets-and-FAQs/Downloads/shopmarketplace-5–10–2013.pdf.
E:\FR\FM\19JNP3.SGM
19JNP3
tkelley on DSK3SPTVN1PROD with PROPOSALS3
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
compressed time frame to accomplish
establishment and full operation.
Therefore, under this proposed rule,
States that have not received
conditional approval for 2014 may not
exercise the option to operate only a
SHOP for the 2014 plan year. For the
2015 plan year and beyond, we would
consider new Blueprints from States
proposing to operate only the SHOP,
pursuant to 45 CFR § 155.106. We seek
comment on this proposed approach.
We further propose to amend
§ 155.105 so that the Exchange approval
criteria set forth therein would be
consistent with the Exchange
operational models now proposed in
§§ 155.20, 155.100, and 155.200, and to
permit HHS to operate only a FFE that
will make QHPs available to qualified
individuals when a State has elected to
operate only an Exchange providing for
the establishment of a SHOP pursuant to
proposed § 155.100(a)(2). In paragraphs
(b)(1) and (b)(2) we clarify that a State
establishing and operating only a SHOP
would have to perform the minimum
functions described in subpart H and all
applicable references to other subparts
contained therein, and need not comply
with other provisions that by their
express terms apply only to an
individual market Exchange.
We propose to amend paragraph (f) to
clarify that where a State has elected to
establish and operate only a SHOP, the
FFE must meet the requirements set
forth in §§ 155.120(c), 155.130, and
subparts C, D, E, and K of this part;
however, it need not implement the
standards for the establishment of a
SHOP described in subpart H. We seek
comment on this proposal.
We are also proposing an amendment
to § 155.105(f) to clarify that the
regulatory provisions that will apply in
an FFE include the nondiscrimination
requirements of § 155.120(c). Section
155.120(c), as written, applies to all
Exchanges, and its previous omission
from the list of provisions referenced in
§ 155.105(f) was inadvertent.
We propose to amend § 155.140 to
clarify how a subsidiary or regional
Exchange may operate in light of the
proposed amendments to permit a State
to establish and operate an Exchange
only providing for the establishment of
a SHOP. Under this proposal, a State
establishing and operating only a SHOP
could still establish subsidiary SHOP
Exchanges. Multiple States that wish to
establish and operate only SHOPs could
still form a regional Exchange only
providing for the establishment of a
SHOP across the region covered by the
participating states.
Previously, we had created the
standards for regional and subsidiary
VerDate Mar<15>2010
19:37 Jun 18, 2013
Jkt 229001
Exchanges such that the geographic area
served by such Exchanges must be the
same for the individual market
Exchange and the SHOP.25 We propose
in paragraph (c)(2)(ii) to generally
preserve this standard, except in the
case of an Exchange established
pursuant to proposed § 155.100(a)(2).
In paragraph (c)(2)(ii)(A), we propose
that in the case of a regional Exchange
established pursuant to proposed
§ 155.100(a)(2) to provide only for the
establishment and operation of a SHOP,
the regional SHOP would be required to
encompass a geographic area that
matches the combined geographic areas
of the individual market Exchanges
established by HHS to serve the States
establishing the regional SHOP.
In paragraph (c)(ii)(B), we propose
that in the case of a subsidiary Exchange
established pursuant to § 155.100(a)(2)
to provide only for the establishment
and operation of a SHOP, the combined
geographic area of all subsidiary SHOPs
established by the State would be
required to encompass the geographic
area of the individual market Exchange
established by HHS to serve the State.
In addition, under 45 CFR 153.310(a),
a State that elects to operate an
Exchange is eligible to establish a risk
adjustment program using a
methodology that has obtained federal
certification. We are considering
whether a State that elects to operate a
SHOP but not an individual market
Exchange under the proposed approach
described above should be eligible to
establish a risk adjustment program, and
in particular whether such a State
should be eligible to establish a risk
adjustment program only for the small
group market or should be required to
establish the program for both markets.
We seek comment on this issue.
3. Subpart C—General Functions of the
Exchange
a. Functions of an Exchange (§ 155.200)
Consistent with the proposed
amendments described above to
§§ 155.20, 155.100, 155.105, and
155.140, which permit a State to operate
only an Exchange providing for the
establishment of a SHOP, in § 155.200
we propose that a State operating only
an Exchange which provides for the
establishment of a SHOP need perform
only the minimum functions described
in subpart H and all applicable
provisions of other subparts referenced
therein. Under such circumstances, the
Exchange operated by HHS need not
perform the minimum functions related
to the establishment of a SHOP.
25 See Exchange Establishment Rule, 77 FR
18322.
PO 00000
Frm 00015
Fmt 4701
Sfmt 4702
37045
b. Ability of States To Permit Agents
and Brokers to Assist Qualified
Individuals, Qualified Employers, or
Qualified Employees Enrolling in QHPs
(§ 155.220)
Section 1312(e) of the Affordable Care
Act authorizes the Secretary to establish
procedures that permit agents and
brokers to enroll qualified individuals
and qualified employers in QHPs
through an Exchange, and to assist
individuals in applying for advance
payments of the premium tax credit and
cost-sharing reductions, to the extent
allowed by States.
In 45 CFR 155.220(c), 155.220(d), and
155.220(e), we established general
Exchange standards that agents and
brokers must meet to assist individuals
in enrolling in QHPs and applying for
advance payments of the premium tax
credit and cost-sharing reductions,
including registration, training,
compliance with the privacy and
security standards adopted by the
Exchange, compliance with applicable
State law, and execution of an
agreement with the Exchange. Section
155.220(c)(3) established additional
standards for agents and brokers that
use Internet Web sites to assist qualified
individuals in enrolling in a QHP.
In CMS’s guidance titled ‘‘Role of
Agents, Brokers, and Web-brokers in
Health Insurance Marketplaces,’’ 26 we
further clarified that in States where an
FFE is operating, agents or brokers
assisting individuals in selecting or
enrolling in individual market QHPs
through an FFE may use one of two
pathways. First, an agent or broker may
use a QHP issuer’s Internet Web site to
assist or enroll individuals, if the agent
or broker has a relationship with an
issuer, and the issuer has direct
enrollment capabilities. Alternatively,
an agent or broker may use an FFE
Internet Web site to assist individuals.
Regardless of what pathway they use,
all agents and brokers must register with
CMS before they may assist qualified
individuals in enrolling in individual
market coverage through an FFE. Once
an agent or broker has completed the
registration process, which includes
undergoing basic CMS identity proofing,
completing an FFE training course, and
signing an agreement with CMS, he or
she will receive an active FFE user
identification number, which will be the
agent’s or broker’s unique identifier in
an FFE. This would allow CMS to
monitor and oversee the activities of
26 Role of Agents, Brokers, and Web-brokers in
Health Insurance Marketplaces, (May 1, 2013).
Available at: https://www.cms.gov/CCIIO/Resources/
Regulations-and-Guidance/Downloads/agentbroker-5-1-2013.pdf.
E:\FR\FM\19JNP3.SGM
19JNP3
37046
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
tkelley on DSK3SPTVN1PROD with PROPOSALS3
agents and brokers in an FFE, which is
discussed in more detail later in this
section, and would also facilitate
payment for agent and broker services
from issuers.
Web-broker Policies and Procedures
Section 155.220(c)(3) establishes
standards that apply if an agent or
broker uses its publicly-facing Internet
Web site to assist individuals in
selecting or enrolling in a QHP through
the Exchange. Agents or brokers who do
so are referred to as ‘‘Web-brokers’’ for
the purposes of this proposed rule. We
propose amending § 155.220(c)(3)(i),
which currently requires that a Webbroker meet all standards for disclosure
and display of QHP information
contained in §§ 155.205(b)(1) and
155.205(c). In particular, § 155.205(b)(1)
requires the display of standardized
comparative information on each
available QHP, including its: (a)
Premium and cost-sharing information;
(b) summary of benefits and coverage;
(c) metal level (bronze, silver, gold, or
platinum); (d) enrollee satisfaction
survey results; (e) quality ratings; (f)
medical loss ratio, (g) transparency of
coverage measures, and (h) provider
directory.
After taking into consideration
concerns from issuers, we propose to
limit the Web-broker’s obligation to
disclose and display the QHP
information to all the information
provided to the Web-broker by the
Exchange or directly by the issuer. We
recognize that an Exchange may not be
able to provide all Web-brokers with
certain data elements necessary to meet
the § 155.205(b)(1) requirements, such
as premium and rate information,
depending upon confidentiality
requirements, the extent to which Webbrokers are appointed by individual
QHP issuers, and State laws regarding
agent and broker appointments. We also
recognize that some of the required data,
such as quality rating and enrollee
satisfaction survey results, may not be
available in the first year of Exchange
operations, in which case Web-brokers
would also not need to display this
information. We seek comment on
whether this provision should be
limited to FFEs.
We note that we do not intend this
amendment to alter Web-brokers’
obligations to meet all existing
standards for disclosure and display of
QHP information contained in
§ 155.205(c), regardless of the
availability of QHP issuer information
from issuers or the Exchange.
Additionally, the Web-broker should
display all information provided by the
Exchange or an issuer in a manner that
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
is as consistent with the requirements in
§ 155.205(b)(1) as possible. We solicit
comments on how to monitor this
provision to ensure that Web-brokers
display QHP information received by an
Exchange or QHP issuers in a manner
consistent with the QHP information
displayed on an Exchange Web site.
Even if a Web-broker is unable to
display certain QHP information
identified in § 155.205(b)(1) because it is
not provided by the Exchange or a QHP
issuer, it must still display a list of all
available QHPs for the consumers to
view, as required by § 155.220(c)(3)(ii).
We also propose that, to address
situations where the Web-broker is
unable to display certain QHP
information identified in
§ 155.205(b)(1), the Web-broker must
display a link to the Exchange Web site
so the consumer may obtain the
additional information.
Instead of modifying only
§ 155.220(c)(3)(i), we considered
removing § 155.220(c)(3)(ii), which
requires Web-brokers to provide
consumers with the ability to view all
QHPs offered through the Exchange. We
decided not to propose this approach so
that the consumer would be aware of all
available QHP options, even if some of
the specific plan details may not be
available on the Web-broker’s Internet
Web site. We invite comment on this
proposal.
We also propose to amend
§ 155.220(c)(3) by adding a new
paragraph (c)(3)(vii), which would
require Web-brokers’ Internet Web sites
in an FFE to prominently display
language notifying consumers that: (a)
the Web-broker’s Internet Web site is
not an FFE Web site; (b) the Webbroker’s Web site might not display all
QHP data available on the Exchange
Web site; (c) the Web-broker has entered
into an agreement with HHS pursuant to
§ 155.220(d); and (d) the Web-broker
agrees to comply with standards
specified in § 155.220(c) and (d). We
believe that this additional standard is
in the best interest of the consumers in
an FFE, as it will help consumers
distinguish between an FFE Web site
and the Internet Web sites of Webbrokers, and it will inform consumers
that agents and brokers must comply
with FFE standards and requirements
before they can assist and enroll
consumers. We welcome comments on
this proposal. HHS expects to make
available an application programming
interface that would permit Web-brokers
to use their public-facing Internet Web
sites to assist consumers in enrolling
through individual market QHPs offered
through an FFE (‘‘FFE API’’). An FFE
API would allow a person seeking to
PO 00000
Frm 00016
Fmt 4701
Sfmt 4702
enroll in a QHP to initiate his or her
shopping experience on a Web-broker’s
Internet Web site, connect securely to an
FFE Web site to complete the eligibility
application and determination process,
and return securely to the Web-broker’s
Internet Web site compare and select
QHPs.
We understand that some Webbrokers may enter into arrangements
with other agents and brokers under
which those agents and brokers would
be able to enroll qualified individuals in
an FFE through the Web-broker’s
Internet Web site. We are concerned
about these arrangements that would
allow other agents and brokers to use
the Web-broker’s connection to HHS,
because they would not require the
agent or broker to be a party to the Webbroker’s agreement with HHS, or to
become an employee or subcontractor of
the Web-broker. We are considering
prohibiting such arrangements outright,
in part because such entities are not a
party to the Web-broker’s agreement
with HHS. However, we also want to
make sure that agents and brokers have
many possible avenues to participate in
the FFE. If we do not prohibit such
arrangements, we believe that a Webbroker should not be able to enter into
these arrangements unless the Webbroker ensures that the agent or broker
using its connection to HHS agrees to
comply with the same FFE standards
and requirements applicable to Webbrokers under § 155.220(c) and (d). We
therefore propose to add a new
§ 155.220(c)(4) that would require any
Web-broker who makes an Internet Web
site available to other agents and brokers
for this purpose to require as a
condition of agreement or contract that
the agent or broker accessing and using
the Internet Web site complies with
§ 155.220(c) and (d). We also propose
that the Web-broker would be required
to provide to HHS a list of agents and
brokers who are under such
arrangements, and that the Web-broker
be required to ensure that the agent or
broker accessing or using the Internet
Web site would be required to comply
with the policies that the Web-broker
would be required to develop under
§ 155.220(d)(4), as proposed below.
Because we would require the agent or
broker accessing or using the Webbroker’s connection to comply with
§ 155.220(d), that agent or broker would
also have to enter into a Web-broker
agreement with HHS. If the agent or
broker accessing or using the Internet
Web site fails to comply with either
provision, both parties to the
arrangement would be found to be
noncompliant with the regulatory
E:\FR\FM\19JNP3.SGM
19JNP3
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
requirements, and HHS would have
cause to terminate its agreements with
both parties. We seek comments on this
circumstance and proposal, on whether
these arrangements should be
prohibited outright, and on whether
there are other options to consider.
tkelley on DSK3SPTVN1PROD with PROPOSALS3
Agent and Broker Policies and
Procedures on Privacy and Security in
an FFE
Section 155.220(d)(3) currently
directs all agents or brokers assisting
qualified individuals with enrollment in
QHPs to comply with the Exchange
privacy and security requirements. We
propose to establish a new standard in
§ 155.220(d)(4) requiring agents and
brokers assisting or enrolling consumers
in the individual market of an FFE to
establish policies and procedures
implementing the privacy and security
standards pursuant to § 155.220(d)(3); to
train their employees, representatives,
contractors, and agents with regard to
those policies and procedures on a
periodic basis; and to ensure that their
employees, representatives, contractors,
and agents comply with those policies
and procedures. Because agents and
brokers will have access to PII provided
by consumers we want to ensure that
the agents and brokers have appropriate
procedures, training and monitoring
safeguards in place to protect PII. We
invite comments on the appropriate
frequency of retraining requirements.
Standards for Agent and Broker
Agreement Termination in an FFE
We propose adding a new
§ 155.220(f), which would require
agents and brokers who wish to
terminate their agreement with an FFE
to send to HHS a 30-day advance
written notice of the intent to terminate.
This notice would also include the
intended date of termination. If the
notice does not specify a date of
termination, or the date is not
acceptable to HHS, HHS may set a date
that will be no less than 30 days from
the date of the agent or broker’s notice
of termination. We believe that this
additional standard would be in the best
interest of FFE consumers, as the 30-day
pre-termination period would allow
agents and brokers to complete any
application or enrollment activity
initiated prior to the notice. As of the
date of termination, an agent or broker
would not be able to conduct business
in an FFE, although the agent’s or
broker’s related duty to protect and
maintain the privacy and security of PII
it has created, collected, accessed, or
acquired during its period of
relationship with an FFE would survive
the termination. We are considering
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
whether to require such agents and
brokers to also directly notify their
clients of the termination plan during
the pre-termination period. We welcome
comment on this proposal.
We also propose to establish new
standards for agents and brokers in the
FFEs, so that agents and brokers that
register with an FFE have a clear
understanding of the rights and
standards governing their participation
in an FFE. In new section § 155.220(g),
we propose the standards under which
HHS may terminate an agent’s or
broker’s agreement with an FFE for
cause.
In § 155.220(g)(1), we propose that
HHS may pursue termination with
notice of an agent’s or broker’s
agreement with an FFE executed
pursuant to § 155.220(d) if, in HHS’s
determination, a specific finding of
noncompliance or pattern of
noncompliance is sufficiently severe.
Under this proposal, termination of the
agreement with notice would mean that
after a 30-day opportunity to cure, HHS
would take necessary steps to prohibit
an agent or broker from assisting or
enrolling individuals in an individual
market QHP offered through an FFE, or
a Web-broker’s ability to securely
exchange information with HHS.
In § 155.220(g)(2), we propose that an
agent or broker would be considered
noncompliant if HHS finds that the
agent or broker violated: (a) Any
standard specified under § 155.220; (b)
any term or condition of its agreement
with the FFE, including but not limited
to the FFE privacy and security
standards; (c) any applicable State law;
or (d) any other applicable Federal law.
We propose that if HHS finds
noncompliance or patterns of
noncompliance to be sufficiently severe,
such a finding would form the basis for
a termination for cause. We believe that
HHS must maintain the ability to
terminate an agent’s or broker’s
agreement for cause to protect the
interest of consumers in cases of severe
violations and patterns of violations,
particularly violations with respect to
privacy and security protections.
Specific findings of noncompliance that
HHS might determine to be sufficiently
severe to warrant termination for cause
would include, but not be limited to,
violations of the Exchange privacy and
security standards. Patterns of
noncompliance that HHS might
determine to be sufficiently severe to
warrant termination for cause would
include, for example, repeated
violations of any of the standards set
forth in § 155.220 for which the agent or
broker was previously found to be
noncompliant. We seek comment on
PO 00000
Frm 00017
Fmt 4701
Sfmt 4702
37047
this proposal and on other
circumstances that should result in an
HHS termination for cause.
Prior to pursuing the termination of
an agent’s or broker’s agreement for
cause, we are considering implementing
informal procedures, which may be
published in future sub-regulatory
guidance. The informal procedures
would allow agents and brokers, at HHS
discretion, to resolve certain
noncompliance issues within a time
period determined reasonable by HHS.
Through this informal process, HHS
would notify an agent or broker of the
reason for the potential termination, the
potential consequences of continued
noncompliance, and any applicable
administrative procedures. However,
HHS would retain the right to bypass
these informal procedures.
Upon identification of a sufficiently
severe violation under the proposed
§ 155.220(g)(2), HHS would formally
notify the agent or broker of the specific
finding of noncompliance or pattern of
noncompliance, as proposed in
§ 155.220(g)(3). The agent or broker
would then have a period of 30 days
from the date of the notice to correct the
noncompliance to HHS’s satisfaction,
through good-faith efforts. If after 30
days, the noncompliance is not
appropriately addressed, HHS may
terminate the agreement for cause. In
§ 155.220(g)(4), we propose that
termination for cause would result in
the loss of the ability to assist
individuals enroll in QHPs and transact
data with HHS, including transactions
through the FFE API. We believe this
approach would provide an opportunity
for agents and brokers to remedy any
noncompliance issue in advance of a
potential termination for cause.
We request comment on the informal
resolution approach we are considering
implementing through future subregulatory guidance, specifically on
whether we should consider any
alternative proposals. We also solicit
comment on the appropriate time length
for a cure period, and on whether we
should include a provision permitting
HHS to terminate an agent’s or broker’s
agreement immediately and
permanently for cause if findings of
noncompliance are sufficiently
egregious. We are also considering an
option that would allow HHS to
immediately but temporarily suspend
an agent or broker by prohibiting the
agent or broker from assisting
individuals to enroll in a QHP offered
through the FFE and/or ability to
securely exchange information with
HHS, including through the FFE API,
without advance notice. We are
considering this option because there
E:\FR\FM\19JNP3.SGM
19JNP3
tkelley on DSK3SPTVN1PROD with PROPOSALS3
37048
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
may be instances where a specific
violation could pose immediate harm to
consumers or to HHS’s ability to
properly administer the FFE. Under this
scenario, as soon as possible following
the temporary suspension, HHS would
notify to the agent or broker of HHS’s
action and the noncompliance issue. If
the agent or broker satisfactorily
addresses the issue, HHS would notify
the agent or broker that the temporary
suspension had been lifted. We request
comments on this approach, and the
circumstances under which it would be
needed.
We further propose a new section
§ 155.220(h) to establish a one-level
process through which an agent or
broker may request reconsideration of
HHS’s decision to terminate the
agreement for cause. In § 155.220(h)(2),
we propose that an agent or broker must
submit a request for reconsideration to
an appropriate HHS designee
(‘‘reconsideration entity’’) within 30
calendar days of the date of the notice
in order to obtain a reconsideration. In
§ 155.220(h)(3), we propose that the
reconsideration entity would provide
the agent or broker with a written
reconsideration decision within 30
calendar days of the date it receives the
request for reconsideration. This
decision would constitute HHS’s final
determination.
We believe this approach would
afford agents and brokers an
opportunity to furnish any facts and
information that might not have been
considered as part of HHS’s decision to
terminate the agreement for cause, and
to provide due process. We intend to
provide future guidance on the manner
and form in which agents and brokers
should present requests for
reconsideration, HHS’s designation of
an appropriate reconsideration entity,
and additional procedures related to
agent and broker revocation and
reconsideration. We invite comments on
this reconsideration proposal.
We expect that States will continue to
license and monitor agents and brokers,
and will continue to oversee and
regulate all agents and brokers, both
inside and outside of the Exchange. We
expect that all State laws related to
agents and brokers, including State laws
related to appointments, contractual
relationships with issuers, and licensing
and marketing requirements, will
continue to apply. Therefore, to avoid
duplication of oversight activities
related to agents and brokers enrolling
or assisting consumers through an FFE,
HHS will focus its oversight activities
primarily on ensuring that agents and
brokers in an FFE meet the standards
outlined in § 155.220. In particular,
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
HHS plans to focus its oversight efforts
on protecting the privacy and security of
PII, to the extent this is not already
covered under existing State or Federal
law.
Prior to releasing additional guidance
on agent and broker activities in the
FFE, we intend to collaborate with State
DOIs to further develop standard
operating procedures for an FFE that
will be critical to HHS oversight of
agents and brokers working with an
FFE. We encourage comment on the
information required to carry out these
activities, and on any existing
definitions, timeframes, or procedures
described in our proposed amendments
to § 155.220.
c. Electronic Information Exchange With
Covered Entities (§ 155.270)
Section 155.270 of 45 CFR directs
Exchanges that perform electronic
transactions with a covered entity to use
standards, implementation
specifications, operating rules, and code
sets adopted by the Secretary in 45 CFR
parts 160 and 162. When 45 CFR
155.270 was finalized in its current
form, HHS believed that the HIPAA
standard transactions, as defined in 45
CFR Parts 160 and 162, were the most
appropriate standards for transmitting
information electronically between
Exchanges and issuers. Since then, the
Accredited Standards Committee X12,
also known as ‘‘ASC X12,’’ 27 which
governs the electronic transactions
addressed in 45 CFR parts 160 and 162,
has determined that the current
transaction used to communicate
payment-related information, the
HIPAA ASC X12 005010X218 (820),
cannot provide the program-level
payment information necessary for the
risk adjustment, reinsurance, and risk
corridors programs, and therefore does
not meet the business requirements of
the Affordable Care Act programs. As a
result, the ASC X12 standards body
developed and finalized the ASC X12
005010X306 (820), referred to as the
‘‘HIX 820.’’ The HIX 820 has the same
security and technical requirements as
HIPAA standards, but it is a new
implementation of the transaction, so it
has not yet been adopted by the
Secretary in 45 CFR parts 160 and 162.
We believe that the HIX 820 is the most
appropriate method for transmitting
payment-related information between
the Exchange and a covered entity. For
this reason, and to provide for flexibility
should similar situations arise in the
future, we propose to amend § 155.270
to specify that to the extent that an
27 ASC
X12 is chartered by the American National
Standards Institute. See, https://www.x12.org/.
PO 00000
Frm 00018
Fmt 4701
Sfmt 4702
Exchange performs electronic
transactions with a covered entity, an
Exchange must use standards,
implementation specifications,
operating rules, and code sets that are
adopted by the Secretary in 45 CFR
parts 160 and 162 or that are otherwise
approved by HHS. We further propose
to approve the HIX 820 transaction for
transmitting payment-related
information between the Exchange and
a covered entity. We seek comment on
this proposal.
d. Oversight and Monitoring of Privacy
and Security Requirements (§ 155.280)
In § 155.280, consistent with section
1411(g) and (h) of the Affordable Care
Act, we propose that HHS will monitor
any individual or entity who would be
subject to the privacy and security
requirements as established and
implemented by an Exchange under
§ 155.260.
We propose in § 155.280(a) that HHS
will oversee and monitor the FFEs and
non-Exchange entities associated with
FFEs for compliance with the privacy
and security standards established and
implemented by the FFEs pursuant to
§ 155.260 for compliance with those
standards. HHS will monitor State
Exchanges for compliance with the
privacy and security standards
established and implemented by the
State Exchanges pursuant to § 155.260.
In addition, we propose that State
Exchanges will oversee and monitor
non-Exchange entities associated with
the State Exchange for compliance with
the standards implemented by the State
Exchange pursuant to § 155.260.
In § 155.280(b), we propose the
oversight activities that HHS may
conduct in order to ensure adherence to
the privacy and security requirements in
§ 155.260. These may include, but are
not limited to, audits, investigations,
inspections and any reasonable
activities necessary for appropriate
oversight of compliance with the
Exchange privacy and security
standards as permitted under sections
1313(a)(2) and (a)(3) of the Affordable
Care Act.
In § 155.280(c)(1)(i) and (ii), we
propose definitions for the terms
‘‘incident’’ and ‘‘breach’’ as they apply
to privacy and security. We considered
but declined to use the definitions for
these terms provided under the HIPAA
regulations because the protected health
information (PHI) that triggers the
HIPAA requirements is considered a
subset of PII,28 and we believe that the
28 Compare the definitions of individually
identifiable health information and protected health
information at 45 CFR 160.103 and the definition
E:\FR\FM\19JNP3.SGM
19JNP3
tkelley on DSK3SPTVN1PROD with PROPOSALS3
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
HIPAA definitions would not provide
broad enough protections to satisfy the
requirements under the Privacy Act of
1974 (5 U.S.C. 552a), the e-Government
Act of 2002 (Pub. L. 107–347), other
laws to which HHS is subject, or the
expectations of the other Federal
agencies that will be providing PII to
facilitate Exchange eligibility
determinations. We considered the
definitions and explanations for
‘‘incident’’ in the following
publications: OMB Memorandum M–
06–19, OMB Memorandum M–07–16,
and the National Institute of Standards
and Technology Special Publication
800–61, and propose that ‘‘incident’’
would mean, the act of violating an
explicit or implied security policy,
which includes attempts (either failed
or successful) to gain unauthorized
access to a system or its data, unwanted
disruption or denial of service, the
unauthorized use of a system for the
processing or storage of data; and
changes to system hardware, firmware,
or software characteristics without the
owner’s knowledge, instruction, or
consent. We propose that the definition
for ‘‘breach’’ be the same as the
definition in OMB Memorandum M–07–
16, Safeguarding and Responding to the
Breach of Personally Identifiable
Information, which defines ‘‘breach’’ as
the loss of control, compromise,
unauthorized disclosure, unauthorized
acquisition, unauthorized access, or any
similar term referring to situations
where persons other than authorized
users and for an other than authorized
purpose have access or potential access
to personally identifiable information,
whether physical or electronic. We
welcome comment on the use of these
definitions for incident and breach as
they relate to PII.
In § 155.280(c)(2) we propose that in
the event of an incident or breach, the
entity where the incident or breach
occurs would be responsible for
reporting and managing it according to
the entity’s documented incident
handling or breach notification
procedures. We believe that incident
handling and breach notification
procedures should be among the written
policies and procedures required for
Exchanges under § 155.260(d). NonExchange entities associated with the
Exchanges would be required to have
policies and procedures in place for
reporting breaches and incidents as a
condition of the contracts or agreements
that are required under § 155.260(b).
of PII in Office of Management and Budget (OMB)
Memorandum M–07–16 (see 77 FR 18340 for an
explanation of how the OMB definition of PII
applies to Exchanges).
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
Under § 155.260(a)(3)(viii), Exchanges
would also be required to establish
accountability standards that would
include the development and
implementation of policies and
procedures including incident handling
and breach notification procedures.
In § 155.280(c)(3) we propose that
FFEs, non-Exchange entities associated
with FFEs, and State Exchanges must
report all privacy and security incidents
and breaches to HHS within one hour of
discovering the incident or breach. We
also propose that a non-Exchange entity
associated with a State Exchange must
report all privacy and security incidents
and breaches to the State Exchange with
which they are associated. We welcome
comment on these proposals.
4. Subpart D—Exchange Functions in
the Individual Market: Eligibility
Determinations for Exchange
Participation and Insurance
Affordability Programs
a. Eligibility Process (§ 155.310)
In our consultations with states and in
the operational development of
Exchanges, we have identified with
States the need to establish a
standardized process for handling
applications that are submitted without
information that is necessary for
determining eligibility. It is our
understanding that States have an
existing process for handling
incomplete applications for other
programs, such as Medicaid, and may
want to establish a consistent process
for handling incomplete applications
submitted to the Exchange. Accordingly,
the language of this proposed regulation
is designed to provide flexibility to
States so they may align this process
with Medicaid and CHIP. Further, we
intend to work with States to implement
these procedures and in 2014 to
accommodate States with processes
established for handling incomplete
applications that does not match the
process described in these regulations.
We are adding § 155.310(k), to
provide that if an application filer does
not provide sufficient information on an
application for the Exchange to conduct
an eligibility determination for
enrollment in a QHP through the
Exchange, or for insurance affordability
programs (if the application includes a
request for an eligibility determination
for insurance affordability programs),
the Exchange will provide notice
through the eligibility determination
notice described in 45 CFR 155.310(g).
The notice would indicate that
information necessary to complete an
eligibility determination is missing,
specifying the missing information, and
PO 00000
Frm 00019
Fmt 4701
Sfmt 4702
37049
include instructions on how to provide
the missing information. We propose
that the Exchange will provide the
applicant with a period of no less than
15 days and no more than 90 days from
the date this notice is sent to the
applicant to provide the necessary
information. Further, we propose that
during this period, the Exchange will
not proceed with the applicant’s
eligibility determination or provide
advance payments of the premium tax
credit or cost-sharing reductions, unless
an application filer has provided
sufficient information to determine his
or her eligibility for enrollment in a
QHP through the Exchange, in which
case the Exchange must make such a
determination for enrollment in a QHP.
We propose that the Exchange may
make an eligibility determination for
enrollment in a QHP through the
Exchange if an applicant has provided
sufficient information to make an
eligibility determination for enrollment
in a QHP through the Exchange. For
example, if there is sufficient
information to determine eligibility for
enrollment in a QHP, but an applicant
who requested an eligibility
determination for insurance
affordability programs has not provided
information regarding employersponsored coverage, which is needed to
determine eligibility for advance
payments of the premium tax credit and
cost-sharing reductions, the Exchange
will determine the applicant’s eligibility
for enrollment in a QHP through the
Exchange but may not provide advance
payments of the premium tax credit or
cost-sharing reductions.
We believe this process is consistent
with current Medicaid and CHIP
policies regarding the process for
handling incomplete applications. We
propose a flexible timeframe of no less
than 15 days and no more than 90 days.
While we believe it does not benefit an
applicant to have a long timeframe
because no advance payments of the
premium tax credits and cost-sharing
reductions will be provided during the
period, we understand that State
Medicaid and CHIP agencies use
periods similar to this length, and we
also believe that it is important to allow
flexibility for the Exchange to align with
the time period for inconsistencies,
which is a period of 90 days as specified
in 45 CFR 155.315(f)(2)(ii). We note that
the online and telephonic applications
are structured to minimize situations in
which an applicant can fail to provide
necessary information. Accordingly, we
anticipate that this paragraph will be
implicated most frequently with respect
to paper applications. We seek comment
E:\FR\FM\19JNP3.SGM
19JNP3
37050
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
tkelley on DSK3SPTVN1PROD with PROPOSALS3
on this proposal, including whether
Exchange flexibility is appropriate;
whether 15 days and 90 days are the
right lower and upper limits; and
whether additional language is needed
to ensure coordination between the
Exchange, Medicaid, and CHIP.
b. Verification of Eligibility for
Minimum Essential Coverage Other
Than Through an Eligible EmployerSponsored Plan (§ 155.320)
As finalized in the Exchange
Establishment Rule, § 155.320(b)
specifies standards related to the
verification of eligibility for minimum
essential coverage other than through an
eligible employer-sponsored plan. We
propose to redesignate paragraph (b)(1)
as (b)(1)(i) and (b)(2) as (b)(1)(ii) to
consolidate the standards for Exchange
responsibilities in connection with
verification of eligibility for minimum
essential coverage other than through an
eligible employer-sponsored plan. In
paragraph (b)(1)(i), we also propose to
add the phrase ‘‘for verification
purposes’’ to the end of existing text.
This would clarify that HHS would
provide a response to the Exchange to
verify the information transmitted from
the Exchange to HHS about an
applicant’s eligibility for or enrollment
in minimum essential coverage other
than through an eligible employer
sponsored plan, Medicaid, CHIP, or the
Basic Health Program. The Exchange
would submit specific identifying
information to HHS and HHS would
verify applicant information with
information from the Federal and State
agencies or programs that provide
eligibility and enrollment information
regarding minimum essential coverage.
Such agencies or programs may include
but are not limited to Veterans Health
Administration, TRICARE, and
Medicare. HHS will work with the
appropriate Federal and State agencies
to complete the appropriate computer
matching agreements, data use
agreements, and information exchange
agreements which will comply with all
appropriate Federal privacy and
security laws and regulations. The
information obtained from Federal and
State agencies will be used and
redisclosed by HHS as part of the
eligibility determination and
information verification process set
forth in subpart D of part 155.
In connection with the proposal to
redesignate paragraph (b)(2) to
paragraph (b)(1)(ii), we are not
proposing any change to the text of the
provision as previously finalized.
Consistent with the authorizations for
the disclosure of certain information
under 42 CFR 435.945(c) and
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
457.300(c), this regulation provides for
an Exchange to verify whether an
applicant has already been determined
eligible for coverage through Medicaid,
CHIP, or the Basic Health Program,
using information obtained from the
agencies administering such programs.
Finally, we propose to add paragraph
(b)(2) to provide that consistent with 45
CFR 164.512(k)(6)(i) and 45 CFR
155.270, a health plan that is a
government program providing public
benefits, is expressly authorized to
disclose PHI, as that term is defined at
45 CFR 160.103, that relates to
eligibility for or enrollment in the health
plan to HHS for verification of applicant
eligibility for minimum essential
coverage as part of the eligibility
determination process for advance
payments of the premium tax credit or
cost-sharing reductions. We intend for
this provision to enable any health plan
that is a government program within the
scope of 45 CFR 164.512(k)(6)(i) to
disclose the protected health
information necessary for HHS to be
able to verify of minimum essential
coverage as required to conduct
eligibility determinations for insurance
affordability programs. We seek
comment on this proposal.
c. Administration of Advance Payments
of the Premium Tax Credit and CostSharing Reductions (§ 155.340)
We propose to amend § 155.340 by
adding paragraph (h), which sets forth
additional requirements applicable
when a State Exchange is facilitating the
collection and payment of premiums to
QHP issuers. We propose that if the
Exchange discovers that it did not
reduce an enrollee’s premium by the
amount of the advance payment of the
premium tax credit in accordance with
45 CFR 155.340(g), the Exchange would
be required to refund to the enrollee any
excess premium paid by or for the
enrollee. The Exchange would also
notify the enrollee of the improper
application of the advance payment of
the premium tax credit no later than 30
calendar days after the Exchange
discovers it. We note that an Exchange
may provide the refund to the enrollee
by reducing the enrollee’s portion of the
premium in the following month, as
long as the reduction is provided no
later than 30 calendar days after the
Exchange discovers the improper
application of the advance payment of
the premium tax credit. If the Exchange
elects to provide the refund by reducing
the enrollee’s portion of the premium
for following month and the refund
exceeds the enrollee’s portion of the
premium for the following month, then
the Exchange would need to refund to
PO 00000
Frm 00020
Fmt 4701
Sfmt 4702
the enrollee the excess, no later than 30
calendar days after the Exchange
discovers the improper application of
the advance payment of the premium
tax credit. These provisions are similar
to the policy we propose in § 156.460,
when a QHP issuer is collecting
premiums directly from enrollees and
fails to apply the advance payment of
the premium tax credit to the enrollee’s
portion of the premiums. The parallel
requirements are designed to ensure that
all enrollees, regardless of whether a
QHP issuer or the Exchange is collecting
premiums, are afforded the same level
of protection.
We are considering requiring the
Exchange to provide to HHS for each
quarter, in a manner and timeframe
specified by HHS, a report detailing the
occurrence of any improper application
of the advance payment of the premium
tax credit. We believe that it is
important that an Exchange timely
address improper applications of the
advance payments of the premium tax
credit in order to mitigate potential
harm to enrollees. However, we
recognize that, given operational
constraints, it may be difficult at this
point for Exchanges to develop systems
that can produce these types of
quarterly reports for the 2014 benefit
year. Therefore, we are considering
requiring Exchanges to provide such
reports to HHS beginning in the 2015
benefit year. We seek comment on
whether HHS should establish a
minimum error rate or threshold before
an Exchange is required to inform HHS
of such improper applications of the
advance payment of the premium tax
credit in a quarterly report, as well as
what an appropriate error rate or
threshold should be. For example, we
are considering requiring issuers to
report the number of enrollees for whom
the Exchange improperly applied the
advance payment of the premium tax
credit compared to the total number of
enrollees in the Exchange receiving
Federal premium subsidies. We also
seek comment on whether such reports
should be provided to HHS less
frequently than quarterly.
5. Subpart E—Exchange Functions in
the Individual Market: Enrollment in
Qualified Health Plans
a. Allowing Issuer Customer Service
Representatives To Assist With
Eligibility Applications (§ 155.415)
Section 1413 of the Affordable Care
Act directs the Secretary to establish,
subject to minimum requirements, a
streamlined enrollment process for
enrollment in QHPs and all insurance
affordability programs. Many issuers
E:\FR\FM\19JNP3.SGM
19JNP3
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
currently have customer service
representatives who assist applicants in
the application and plan selection
process and assist enrollees in making
changes to their coverage. Some of these
representatives might not be licensed by
the State as agents, brokers, or
producers. Accordingly, we propose to
add section § 155.415 that would, at the
Exchange’s option and to the extent
permitted by State law, permit issuer
customer service representatives who do
not meet the definition of agent or
broker in § 155.20 to assist qualified
individuals in the individual market
with: (a) Applying for an eligibility
determination or redetermination for
coverage through the Exchange; (b)
applying for insurance affordability
programs; and (c) facilitating the
selection of a QHP offered by the issuer
represented by the customer service
representative, provided that such
issuer customer service representatives
meet the proposed requirements set
forth in § 156.1230(a)(2).
tkelley on DSK3SPTVN1PROD with PROPOSALS3
b. Special Enrollment Periods
(§ 155.420)
In accordance with section
1311(c)(6)(C) of the Affordable Care Act,
the Secretary must establish special
enrollment periods for all Exchanges,
including special enrollment periods
specified in section 9801 of the Internal
Revenue Code of 1986 and under
circumstances similar to such periods
under Part D of title XVIII of the Social
Security Act. Under this authority, we
propose to amend § 155.420(d) to clarify
that a special enrollment period will be
available when a Exchange determines
that a consumer has been incorrectly or
inappropriately enrolled in coverage
due to misconduct on the part of the
non-Exchange entity. We propose to add
a new paragraph § 155.420(d)(10) to
create this new special enrollment
period for qualified individuals. We
propose to limit this special enrollment
opportunity to the individual market
Exchange and not extend it to the
SHOP.
We propose that the Exchange would
extend a special enrollment period to a
qualified individual when, in the
determination of the Exchange,
misconduct on the part of a nonExchange entity has caused the
qualified individual to be enrolled
incorrectly or inappropriately in
coverage such that they are not enrolled
in QHP coverage as desired, are not
enrolled in their selected QHP, or have
been determined eligible for but are not
receiving advance payments of the
premium tax credit or cost-sharing
reductions.
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
Non-Exchange entities will be
performing enrollment activities,
including providing assistance with
enrollment activities, and in some cases
will be enrolling consumers directly in
QHPs. Consumers would be harmed if
they fail to enroll in a health plan or are
enrolled in a QHP they did not select as
a result of misconduct on the part of a
non-Exchange entity. Consumers would
also be harmed if they are eligible for,
but not receiving advance payments of
the premium tax credit or cost-sharing
reductions as a result of misconduct on
the part of a non-Exchange entity. The
proposed provision would ensure that
all qualified individuals and enrollees
have similar protections against these
harms.
For purposes of this proposed
provision, we would interpret a nonExchange entity providing enrollment
assistance or conducting enrollment
activities to include, but not be limited
to, those individuals and entities that
are authorized by the Exchange to assist
with enrollment in QHPs (such as a
Navigator, as described in § 155.210;
non-Navigator consumer assistance
personnel, as authorized by § 155.205(d)
and (e); a certified application
counselor, as described in proposed
§ 155.225; an agent or broker assisting
consumers in an Exchange under
§ 155.220; issuer customer service
representatives assisting consumers in
an Exchange under proposed § 155.415;
or a QHP conducting direct enrollment
under proposed § 156.1230).
We further propose in
§ 155.420(d)(10) that misconduct on the
part of a non-Exchange entity providing
enrollment assistance or conducting
enrollment activities could include, but
would not be limited to, the failure of
a non-Exchange entity to comply with
applicable requirements set forth in
Exchange regulations or other
applicable Federal or State laws.
For purposes of the proposed
provision, the Exchange could base the
determination triggering the special
enrollment period on findings of HHS or
a State; the Exchange’s evaluation of
consumer complaints, including the
complaint of the affected individual;
audits; information provided by the
consumer, issuer, or non-Exchange
entity; or other mechanisms. All
requests for special enrollment periods,
including those that may be initiated by
the Exchange through its own audits or
other mechanisms, should be evaluated
by the Exchange as part of the eligibility
determination process established
pursuant to 45 CFR 155.310. We expect
to develop further guidance and
standard operating procedures for
making the determinations that would
PO 00000
Frm 00021
Fmt 4701
Sfmt 4702
37051
trigger this special enrollment period. If
a qualified individual is harmed due to
an error or inaction on the part of a nonExchange entity, the qualified
individual may also seek to demonstrate
the existence of exceptional
circumstances to the Exchange under
existing regulations at § 155.420(d)(9). If
the Exchange determines that the error
or inaction on the part of the nonExchange entity caused the qualified
individual to be harmed (including, but
not limited to failure to be enrolled in
a health plan, enrolled in the incorrect
health plan or failure to receive advance
payments of the premium tax credit or
cost-sharing reduction), the Exchange
may provide for a special enrollment
opportunity to correct the error.
We solicit comments on these
proposals.
6. Subpart H—Exchange Functions:
Small Business Health Options Program
(SHOP)
a. Standards for the Establishment of a
SHOP (§ 155.700)
We propose to amend § 155.700 by
adding a definition for ‘‘SHOP
application filer.’’
We propose that ‘‘SHOP application
filer’’ would mean an applicant, an
authorized representative, an agent or
broker of the employer, or an employer
filing for its employees where not
prohibited by other law. By broadening
who can file an employee application
beyond just an employee, we propose to
permit the entities that have
traditionally assisted employees in
filing applications to provide such
assistance.
b. Functions of a SHOP (§ 155.705)
In § 155.705, we propose adding
paragraph (b)(6)(i) so that a SHOP
would require QHP issuers to make
changes to rates at a uniform time that
is no more frequently than quarterly.
This proposed paragraph would
conform to the proposed issuer standard
at § 156.80 regarding the frequency of
indexed rate updates. In paragraph
(b)(6)(ii), we propose providing issuers
participating in the FF–SHOP with the
maximum amount of flexibility
permitted under § 156.80 as proposed in
this rule and new (b)(6)(i), standardizing
the effective dates for rate updates in the
FF–SHOP, and providing that FF–SHOP
issuers would have to submit rates to
HHS 60 days in advance of the effective
date. Consistent with technical guidance
provided to issuers through the Health
Insurance Oversight System on April 8,
2013, issuers would be able to submit
updated quarterly rates for the FF–
SHOP no sooner than for the third
E:\FR\FM\19JNP3.SGM
19JNP3
tkelley on DSK3SPTVN1PROD with PROPOSALS3
37052
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
quarter of 2014, due to current system
limitations.29
We are also re-proposing a new
pargraph (c). We previously proposed
this paragraph in a recent rulemaking 30
to coordinate SHOP functions with the
functions of the individual market
Exchange for determining eligibility for
insurance affordability programs. We
propose that in Exchanges where the
State or Federal government operates
both the individual market and SHOP
Exchanges, the SHOP would provide
data related to the eligibility and
enrollment for a qualified employee
(that is, an employee who is enrolled in
a QHP through the SHOP or is eligible
to enroll in coverage through a SHOP
because of an offer of coverage from a
qualified employer) to the individual
market Exchange that corresponds to the
service area in which the SHOP is
operating. We intend this proposal to
ensure that the Exchange can use SHOP
data for purposes of verifying
enrollment in an eligible employersponsored plan and eligibility for
qualifying coverage in an eligible
employer-sponsored plan. We now repropose this standard with an
exemption for a State operating only a
SHOP. Developing such data sharing
would be a challenge in such a State.
In paragraph (d), we propose to
provide additional flexibility to States
with respect to the operation of the
SHOP Navigator program when the
State has elected to establish and
operate only the SHOP. In most cases,
there need not be separate Navigator
programs for the SHOP and individual
market Exchange. However, when the
SHOP is operated by the State, and the
individual market Exchange is operated
by the Federal government, there would
be two Navigator programs: a Federal
Navigator program for the individual
market Exchange, and a State Navigator
program for the SHOP. We propose to
clarify that when a State establishes and
operates a SHOP independently of a
Federally-facilitated individual market
Exchange, as proposed in this
rulemaking, the SHOP would have the
flexibility to focus its Navigator program
on outreach and education to small
employers. If the State takes this option,
SHOP Navigators would be able to
fulfill their statutory and regulatory
obligations under section 1311(i) of the
Affordable Care Act and 45 CFR 155.210
to facilitate enrollment in QHPs, and to
refer consumers with complaints,
questions, and grievances to applicable
offices of health insurance consumer
29 See Rate Changes for Small Group Market Plans
and System Processing of Rates (April 8, 2013).
30 See 78 FR 4723.
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
assistance or ombudsmen, by referring
small businesses to agents and brokers
for these types of assistance, so long as
State law permits agents and brokers to
carry out these functions. The option of
carrying out these two Navigator
functions via referrals to agents and
brokers would not be available in any
other circumstances. Additionally, this
provision would not prevent a State
operating a separate SHOP from
requiring SHOP Navigators to perform
the full range of Navigator services with
equal focus and without making
referrals to agents and brokers, if it so
desires.
c. Application Standards for SHOP
(§ 155.730)
In § 155.730, we propose amending
the application filing standard to relieve
SHOPs of having to of accept paper
applications and accept applications by
telephone. Such relief may reduce the
cost of operating a SHOP while
permitting SHOPs to provide
applications in the manner that will best
serve their enrollees. Nothing in this
proposed standard would prohibit
SHOPs from accepting paper
applications or applications by
telephone. Additionally, in this section
we clarify that an employer or an
employee application may be filed by a
‘‘SHOP application filer,’’ that is, an
applicant, an authorized representative
of the applicant, an agent or broker, and,
if not prohibited by other law, an
employer filing on behalf of employees.
By broadening who can file an
employee application beyond just an
employee, we propose to permit the
entities that have traditionally assisted
employees in filing applications to
provide such assistance.
d. Termination of Coverage (§ 155.735)
In § 155.735, we propose that each
SHOP would be required to develop
uniform standards for the termination of
coverage in a QHP. Standardizing the
timing, form, and manner of a group’s
termination in the SHOP would ensure
that an employer offering coverage
through multiple health insurance
issuers (that is, in a SHOP offering
employee choice) will be subject to
uniform, predictable termination
policies. Some SHOPs have considered
developing termination standards using
their authority to establish a uniform
enrollment timeline and process
pursuant to § 155.720(b). We propose
this section to clarify the authority for
SHOPs to establish termination
standards and to set such standards for
the FF–SHOP. Because SHOPs will not
be required to offer employee choice
and premium aggregation until plan
PO 00000
Frm 00022
Fmt 4701
Sfmt 4702
years beginning on or after January 1,
2015, we created a transition policy
such that these standards would be
required starting in 2015. However, we
are proposing these standards now, for
two reasons. First, State Exchanges may
desire to implement employee choice
and premium aggregation in 2014 and,
if so, would be required to apply these
standards. Second, we are proposing
these standards in response to
comments received from issuers on the
Exchange Final Rule and 2014 Payment
Notice requesting detailed guidance
well in advance of implementation to so
that they are better able to build
conforming systems.
Proposed paragraph (b) addresses
employer requests for termination of
employer group coverage. In paragraph
(b)(1), we propose that each SHOP
would be required to set policies
regarding advance notice of such
terminations and when coverage will
end following the SHOP’s receipt of
notice that an employer wishes to
terminate coverage.
In paragraph (b)(2), we propose that
employer-requested terminations of
employer group coverage through an
FF–SHOP would be effective only on
the last day of a month. We also propose
that notice of termination would have to
be received from the employer on or
before the 15th of a given month for it
to be effective on the last day of that
month. If notification of termination is
provided after the 15th of the month, we
propose the group’s coverage be
terminated on the last day of the
following month.
Proposed paragraph (c) addresses
terminations of employer group
coverage for non-payment of premiums.
In paragraph (c)(1), we propose that
each SHOP would be required to
establish standards for termination due
to non-payment, including defining
grace periods, due dates for premium
payments made to a SHOP pursuant to
§ 155.705(b)(4), employer and employee
notices, and reinstatement policies.
Standardized grace periods, due dates
for payment and reinstatement policies,
and notices would ensure that an
employer offering coverage through
multiple health insurance issuers is
subject to clear and consistent rules.
In paragraph (c)(2), we propose the
policies for terminations for nonpayment of premiums in the FF–SHOP.
As proposed, payment for a group’s
coverage for a given month would be
due to the FF–SHOP by the first day of
the coverage month. Additionally, we
propose that the employer would have
a 31-day grace period from the first day
of the coverage month for making this
payment. Having reviewed the State-
E:\FR\FM\19JNP3.SGM
19JNP3
tkelley on DSK3SPTVN1PROD with PROPOSALS3
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
provided small group market payment
grace periods rules that currently exist,
we believe a grace period of this length
would never be shorter than the
protections currently offered by any
State and therefore does not prevent the
application of existing State law.
In paragraph (c)(2)(iii), we propose
that an employer would have 30 days
from the date of its termination from
coverage under the FF–SHOP to request
the reinstatement of its group in the
previous coverage. Additionally, we
propose that the employer would pay in
full all outstanding premiums and the
premium for the next month’s coverage
before reinstatement could occur.
Proposed paragraph (d) addresses
terminations of employee or dependent
coverage. In paragraph (d)(1), we
propose that each SHOP would be
required to establish consistent policies
across QHP issuers regarding the
process and effective dates for
termination of employee and dependent
coverage in the SHOP. Furthermore, this
provision would clarify the specific
circumstances under which the SHOP
would be permitted to terminate an
employee’s coverage.
In paragraph (d)(2), we propose that
in the FF–SHOP, terminations for the
reasons enumerated in paragraph (d)(1)
would be effective on the last day of the
month in which the FF–SHOP receives
notice of the event. We further propose
that the FF–SHOP must have received
notice prior to the proposed date of the
termination. Notwithstanding the
standards promulgated in 45 CFR
147.120, under this proposed standard a
person who loses coverage as a
dependent when she turns 26 years old
would have to be covered on the
parent’s plan through the end of the
month.
In paragraph (e), we direct that all
SHOPs comply with the general
administrative requirements of
§ 155.430(c). This compliance would
ensure that the SHOP keeps sufficient
records of terminations and that
reasonable accommodations would be
made for enrollees with disabilities.
In paragraph (f), we propose that the
standards set in this section would
apply to all SHOPs for coverage
beginning on or after January 1, 2015.
Additionally, because these provisions
propose to harmonize issuer termination
policies where employee choice exists,
we propose that SHOPs offering
employee choice and premium
aggregation prior to January 1, 2015
would need to comply with these
standards by the time they are
operational. We do not expect this
provision to place additional burden on
such States, as we expect them to have
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
already developed such policies
consistent with this proposal pursuant
to § 155.720(b).
7. Subpart M—Oversight and Financial
Integrity Standards for State Exchanges
Sections 1311, 1313, and 1321 of the
Affordable Care Act provide the
Secretary with oversight of financial
integrity and program integrity in the
State Exchanges. More specifically, the
statutory authority for HHS oversight of
the programmatic integrity of an
Exchange is found in section 1313(a)(1)
of the Affordable Care Act, which
requires an Exchange to keep an
accurate accounting of all activities as
stated above, and section 1313(a)(2) of
the Affordable Care Act which gives the
Secretary the authority to investigate the
affairs of an Exchange and examine the
properties and records of an Exchange
in relation to activities undertaken by an
Exchange. In addition, section
1313(a)(5) of the Affordable Care Act
directs the Secretary to provide for the
efficient and non-discriminatory
administration of Exchange activities
and to implement any measure or
procedure that the Secretary determines
is appropriate to reduce fraud and
abuse. The key principles underlying
the Secretary’s State Exchange oversight
program design include: effectiveness,
efficiency, integrity, coordination,
transparency and accountability in State
Exchange operations. The State
Exchange oversight program builds on
existing State oversight efforts, where
possible, by coordinating with State
authorities to address compliance issues
and concerns. State Exchange
compliance with the Affordable Care
Act and the regulatory requirements
being proposed in this proposed rule (if
finalized) would include submitting
financial and operational reports and
maintaining records in a standardized
fashion.
These proposed standards will enable
HHS to carry out its responsibility of
ensuring that Federal funds are used
appropriately in the administration of
State Exchange activities. Therefore, we
are proposing that the State Exchange
must submit to HHS financial reports
and must oversee its activities to ensure
that it is complying with Federal
requirements, such as those governing
eligibility determinations for advance
payments of the premium tax credit and
cost-sharing reductions.
These sections, § 155.1200 and
§ 155.1210, would ensure that the State
Exchange has financial and operational
safeguards in place to avoid making
inaccurate eligibility determinations,
including those related to advance
payment of the premium tax credit,
PO 00000
Frm 00023
Fmt 4701
Sfmt 4702
37053
cost-sharing reductions, and
enrollments. These sections are not
intended to be a part of any prospective
measurement program that may be
required under the Improper Payments
Elimination and Recovery Act at 31
U.S.C. 3321.
We are not proposing that these
standards should be applicable to the
FFE, because CMS, which will operate
the FFE, is already subject to similar
standards in its role as a government
agency. For example, OMB Circular A–
123 dated December 21, 2004, provides
instruction on internal controls
(financial and operational) for Federal
agencies.
a. General Financial Integrity and
Oversight Requirements (§ 155.1200)
Section 1313(a)(1) of the Affordable
Care Act requires an Exchange to keep
an accurate accounting of all activities,
receipts, and expenditures, and
annually submit to the Secretary a
report concerning such accounting. In
§ 155.1200(a), we propose that the State
Exchange maintain an accounting of all
its receipts and expenditures, in
accordance with GAAP. In addition, we
propose that the State Exchange develop
and implement a process for monitoring
all Exchange-related activities for
effectiveness, efficiency, integrity,
transparency and accountability. We
believe that these activities would help
to ensure State Exchange compliance
with Federal requirements as set forth in
Part 155 and ensure the appropriate
administration of Federal funds,
including advance payment of the
premium tax credit and cost-sharing
reductions. In § 155.1200(b), we propose
that the State Exchange submit several
types of reports to HHS. The State
Exchange would submit at least
annually a report to allow for
transparency of State Exchanges
activities. The report must include a
financial statement presented in
accordance with GAAP. This report is
due to HHS by April 1st of each year.
Additionally, the State Exchange must
submit reports in a form and manner to
be specified by HHS regarding eligibility
and enrollment. These reports will focus
on eligibility determination errors, nondiscrimination safeguards, accessibility
of information, and fraud and abuse
incidences. The State Exchange must
also submit performance monitoring
data that includes financial
sustainability, operational efficiency,
and, consumer satisfaction. We solicit
comments on our approach, including
comments on the content, format, and
timing of such reports.
Section 1313(a)(3) of the Affordable
Care Act requires that an Exchange be
E:\FR\FM\19JNP3.SGM
19JNP3
tkelley on DSK3SPTVN1PROD with PROPOSALS3
37054
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
subject to an annual audit by the
Secretary. In § 155.1200(c), we propose
that the State Exchange engage an
independent qualified auditing entity,
whether governmental or private, which
meets accepted professional and
business standards and follows
generally accepted governmental
auditing standards (GAGAS), to perform
an independent external financial and
programmatic audit of the State
Exchange. This entity should be
selected to avoid any real or potential
perception of conflict of interest,
including being free from personal,
external and organizational impairments
to independence or the appearance of
such impairments of independence.
External audits are a standard practice
used to maintain accountability and
internal controls. An external audit will
help ensure the consistency and
accuracy of State Exchange financial
reporting and program activities. We
propose that this requirement may be
satisfied through an audit by an
independent State-government entity.
The State Exchange will submit to HHS,
concurrent with the annual report, the
results of the audit along with proposals
on how it will remedy any material
weakness or significant deficiency (the
terms ‘‘material weakness’’ and
‘‘significant deficiency’’ are defined in
OMB Circular A–133, Audits of States,
Local Governments and Non-Profit
Organizations).
In § 155.1200(d), we propose that
independent audits address specific
processes and activities of State
Exchanges including financial and
programmatic activities and those
related to the verification and
determination of applicants’ eligibility
for enrollment in the State Exchanges
and the subsequent enrollments. We
propose that the external audit address
whether the Exchange is complying
with § 155.1200(a)(1) by keeping an
accurate accounting of Exchange
receipts and expenditures in accordance
with generally accepted accounting
principles (GAAP). We note that
accurate eligibility determinations by
the State Exchanges are important to the
implementation of the Affordable Care
Act. Failure to apply Federal standards
appropriately could result in improper
Federal payments in the form of
advance payments of the premium tax
credit and cost sharing reductions.
Therefore, we also propose that the
external audits and annual reports
required under paragraphs (b) and (c) of
this section address State Exchange
processes and procedures to comply
with the standards for Exchanges under
45 CFR Part 155 related to advance
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
payments of the premium tax credit and
cost-sharing reductions. These
standards include the requirements
under subpart D regarding eligibility
determinations, including the
requirements regarding the
confidentiality, disclosure,
maintenance, and use of information as
set forth in 45 CFR 155.302(d)(3);
subpart E regarding individual market
enrollment in QHPs; and subpart K
regarding QHP certification. We propose
that such audits and annual reports
assess whether a State Exchange has
processes and procedures in place to
prevent improper eligibility
determinations and enrollment
transactions. Assessing whether State
Exchanges are complying with Federal
requirements in these areas will assist in
ensuring that eligible individuals are
appropriately enrolled and receiving
appropriate advance payments of the
premium tax credit and cost-sharing
reductions. Determining whether there
are appropriate internal controls and
standard operating procedures in place
to identify and correct weaknesses in
these particular areas will mitigate the
creation of improper payments, thereby
safeguarding Federal funds.
We seek comment on the proposed
annual audits, and other activities that
State Exchanges should specifically be
required to audit annually or on an
interim basis.
b. Maintenance of Records (§ 155.1210)
Under section 1313(a)(2) of the
Affordable Care Act, the Secretary, in
coordination with the Inspector General
of HHS, may investigate, examine
properties and records, and require
periodic reports from the State
Exchange. Under section 1313(a)(3) of
the Affordable Care Act, the State
Exchange is subject to annual audits by
the Secretary. We anticipate conducting
a limited number of targeted audits each
year, informed by information from the
external audit, annual report,
prospective measurement programs of
improper payments, consumer
complaints, or other data sources. To
prepare for such audits, the State
Exchange would be required to maintain
records pursuant to this section.
Preparation for such audits would also
require the State Exchange to ensure its
contractors, subcontractors, and agents
maintain these records.
In § 155.1210, we propose the
requirements for records maintenance
for the State Exchange. We propose that
the State Exchange and its contractors,
subcontractors, and agents maintain
records for 10 years, including
documents and records (whether paper,
electronic or other media) and other
PO 00000
Frm 00024
Fmt 4701
Sfmt 4702
evidence of accounting procedures and
practices of the State Exchange. These
records must be sufficient and
appropriate to respond to any periodic
auditing, inspection or investigation of
the State Exchange’s financial records or
to enable HHS or its designee to
appropriately evaluate the State
Exchange’s compliance with Federal
requirements. In addition, we propose
that the State Exchange must make all
records of this section available to HHS,
the OIG, the Comptroller General, or
their designees, upon request. We have
proposed this 10-year retention period
to be consistent with the statute of
limitations for the False Claims Act at
31 U.S.C. 3731. We request comment on
auditing procedures and the length of
document retention requirements.
E. Part 156—Health Insurance Issuer
Standards Under the Affordable Care
Act, Including Standards Related To
Exchanges
1. Subpart A—General Provisions
a. Definitions (§ 156.20)
We propose to amend 45 CFR 156.20
by adding the definitions for ‘‘Delegated
entity,’’ ‘‘Downstream entity,’’ ‘‘Enrollee
satisfaction survey vendor,’’ and
‘‘Registered user of the enrollee
satisfaction survey data warehouse,’’ in
alphabetical order to read as follows:
Delegated Entity
We propose to define a delegated
entity as any party, including an agent
or a broker that enters into an agreement
with a QHP issuer to provide
administrative services or health care
services to qualified individuals,
qualified employers, or qualified
employees and their dependents.
Downstream Entity
We propose to define a downstream
entity as any party, including an agent
or a broker, that enters into an
agreement with a delegated entity or
with another downstream entity for
purposes of providing administrative or
health care services related to the
agreement between the delegated entity
and the QHP issuer. The term
‘‘downstream entity’’ is intended to
reach the entity that directly provides
administrative services or health care
services to qualified individuals,
qualified employers, or qualified
employees and their dependents.
Enrollee Satisfaction Survey Vendors
We propose to define an ‘‘enrollee
satisfaction survey vendor’’ as an
organization that has relevant survey
administration experience (for example,
Consumer Assessment of Healthcare
E:\FR\FM\19JNP3.SGM
19JNP3
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
Providers and Systems (CAHPS®)
surveys), organizational survey capacity,
and quality control procedures for
survey administration.
Exchange
An ‘‘Exchange’’ has the meaning
given to the term in § 155.20 of this
subchapter. Registered user of the
enrollee satisfaction survey data
warehouse
We propose to define a ‘‘registered
user of the enrollee satisfaction survey
data warehouse’’ as enrollee satisfaction
survey vendors, QHP issuers, and
Exchanges authorized to access CMS’s
secure data warehouse to submit survey
data and to preview survey results prior
to public reporting.
tkelley on DSK3SPTVN1PROD with PROPOSALS3
b. Single Risk Pool (§ 156.80)
We are proposing to add a new
paragraph (d)(3) in § 156.80 to clarify
when issuers may modify rates under
the single risk pool provision. These
proposed market-wide rate modification
limitations would align with the
limitations on rate setting schedules in
the Exchange and SHOP, which is
necessary to reduce the risk of adverse
selection between plans offered outside
the Exchange and QHPs offered through
the Exchange. Furthermore, the
frequency of rate modifications affects
the rate review process because each
time an issuer adjusts its index rate, the
new rates of all of its plans must be
subjected to rate review.
Accordingly, in paragraph (d)(3)(i),
we propose that issuers in individual
markets or markets in which the
individual and small group risk pools
were merged by the State would be
permitted to make changes to their
market-wide adjusted index rate and
plan-specific pricing on an annual basis,
as discussed in the preamble to the
Market Reform Rule (78 FR 13422). In
a State in which the individual and
small group risk pools were merged by
the State, an issuer would be able to
adjust its index rate and plan-specific
pricing no more frequently than
annually, since the stricter standard of
the individual market must be applied
to the entire merged market for
consistency throughout the single risk
pool.
In paragraph (d)(3)(ii), we propose
that issuers in the small group market
generally would be permitted to make
such changes on a quarterly basis,
beginning with rates effective for the
third quarter of 2014. This proposal is
consistent with technical guidance
provided to issuers through the Health
Insurance Oversight System on April 8,
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
2013.31 These quarterly rates would
apply to both new and renewing
business for the entire plan year,
depending on the plan year of the
employer. For example, if an employer’s
plan year begins February 1 and the
issuer had adjusted its index rate on
January 1, the issuer’s January 1 rate
would apply to the employer’s plan
only on February 1. Additionally,
although the issuer would be able to
adjust its index rate on a quarterly basis
in the small group market, any new
rates set by the issuer after February 1
would apply only upon the plan’s
renewal the following year. As
discussed in section II.D.6.b of this
preamble and the April 8, 2013
technical guidance to issuers, due to
current system limitations, the
submission of rates updated on a
quarterly basis (or any basis other than
an annual basis) cannot currently be
processed for QHPs in the FF–SHOPs.
Accordingly, in order to align with the
timing of the adjustments permitted in
the SHOP based on these operational
considerations, issuers would be
required under the amendment to this
section to set rates for nongrandfathered plans in the small group
market on an annual basis market-wide
until the FF–SHOPs’ capability to
process quarterly rate updates is
established. We anticipate that the FF–
SHOPs will be capable of processing
quarterly updated rates effective for the
third quarter of 2014.
2. Subpart C—Qualified Health Plan
Minimum Certification Standards
a. Additional Standards Specific to
SHOP (§ 156.285)
We propose to amend § 156.285 to
ensure that all QHP issuers offering
coverage in a SHOP comply with the
termination of coverage requirements
proposed at § 155.735 as a condition of
certification for plan years beginning on
or after January 1, 2015, when § 155.735
will apply to all SHOPs. Some SHOPs
may decide to implement employee
choice and premium aggregation before
January 1, 2015, and § 155.735 would
apply in such SHOPs as an operational
requirement.
3. Subpart D—Federally-Facilitated
Exchange Qualified Health Plan Issuer
Standards
a. Changes of Ownership of Issuers of
Qualified Health Plans in the FederallyFacilitated Exchange (§ 156.330)
Proposed § 156.330 describes the
notice required to be submitted by QHP
31 Rate Changes for Small Group Market Plans
and System Processing of Rates (April 8, 2013).
PO 00000
Frm 00025
Fmt 4701
Sfmt 4702
37055
issuers offering QHPs through FFEs,
including the FF–SHOPs, when such
issuers undergo a change of ownership,
as recognized by the State in which the
issuer offers the QHP, during the term
of its QHP agreement. We propose that
the issuer be required to notify HHS, in
a manner to be specified by HHS, and
provide the legal name, the Taxpayer
Identification Number (TIN) of the new
owner, and the effective date of the
change at least 30 days prior to the date
of change. We also propose that the new
owner must agree to adhere to all
applicable statutes and regulations.
These provisions would provide HHS
with adequate notice so that it could
monitor or audit the new owner to
ensure that the new owner meets all
QHP certification standards and clarify
that the new owner would agree to
adhere to all applicable statutes and
regulations. We considered proposing a
standard similar to that in the Medicare
Parts C and D programs, in which HHS,
the current issuer, and the prospective
new issuer would enter into a novation
agreement prior to the change of
ownership. We further considered
requiring the prospective new issuer to
submit financial and solvency
information to HHS in advance of the
change of ownership. However, based
on research of existing State law, we
believe that such standards could
largely duplicate existing State
requirements. We welcome comments
about the 30-day notice requirement,
about the information being requested
when a change of ownership occurs,
and about whether to specifically
require a novation.
b. Standards for Downstream and
Delegated Entities (§ 156.340)
Section 1321(a)(1)(B) of the
Affordable Care Act establishes that the
Secretary must issue regulations setting
forth standards for the offering of QHPs
through the Exchanges. Based on this
general authority, we propose in
§ 156.340 standards for delegated and
downstream entities, similar to existing
standards for such entities that contract
with Medicare Advantage organizations,
described at 42 CFR 422.504(i)(3)–(4). In
§ 156.340(a), we propose the general
requirement that, notwithstanding any
relationship(s) that a QHP issuer may
have with delegated or downstream
entities, the QHP issuer maintains
responsibility for its compliance and the
compliance of any of its delegated or
downstream entities, with all applicable
standards, including those we propose
at § 156.340(a)(1) through (4). In
paragraphs (a)(1) through (a)(4), we
propose that the QHP issuer be required
to comply with Federal standards,
E:\FR\FM\19JNP3.SGM
19JNP3
tkelley on DSK3SPTVN1PROD with PROPOSALS3
37056
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
specifically the obligations as set forth
under: subpart C of part 156, which
governs QHP minimum certification
standards; subpart K of part 155, which
governs Exchange functions pertaining
to QHP certification; subpart H of part
155, which governs the Exchange
functions of the SHOP; standards in
§ 155.220 with respect to assisting with
enrollment in QHPs; and standards in
§ 156.705 and § 156.715 for maintenance
of records and compliance reviews for
QHP issuers operating in an FFE and an
FF–SHOP.
Because a QHP issuer generally
cannot enforce an agreement to which it
is not a party, we believe that the most
legally effective way to ensure that a
QHP issuer retains the necessary control
and oversight over its delegated or
downstream entities would be to require
that all agreements governing the
relationships among a QHP issuer and
its delegated and downstream entities
(that is, those between the QHP issuer
and its delegated entity; those between
the delegated entity and any
downstream entity; and those between
downstream entities) contain provisions
specifically describing each of the
delegated and downstream entity’s
obligations to fulfill the QHP issuer’s
responsibilities proposed in paragraph
(a) of this section. Such a requirement
would be similar to the existing
requirement for agreements governing
the relationship among entities that
contract with Medicare Advantage
organizations, described at 42 CFR
422.504(i)(3)–(4). Therefore, in
§ 156.340(b)(1)–(2), we propose that all
agreements among the QHP issuer’s
delegated and downstream entities be
required to specify delegated activities
and reporting responsibilities, and
either provide for revocation of the
delegated activities and reporting
standards, or specify other remedies in
instances where HHS or the QHP issuer
determines that such parties have not
performed satisfactorily.
Furthermore, we propose in
§ 156.340(b)(3) that all agreements
among the QHP issuer’s delegated and
downstream entities be required to
specify that the delegated or
downstream entity must comply with
all applicable laws and regulations
relating to the standards specified under
paragraph (a) of this section. In
§ 156.340(b)(4) of this proposed rule, we
propose that the QHP issuer’s agreement
with any delegated or downstream
entity must specify that the delegated
and downstream entity must permit
access by the Secretary and the OIG or
their designees in connection with their
right to evaluate through audit,
inspection, or other means, to the
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
delegated or downstream entity’s books,
contracts, computers, or other electronic
systems, including medical records and
documentation, relating to the QHP
issuer’s obligations in accordance with
Federal standards under paragraph (a) of
this section until 10 years from the final
date of the agreement period. Such a
requirement would be similar to the
existing requirement for agreements
governing the relationship among
entities that contract with Medicare
Advantage organizations, described at
42 CFR 422.504(i)(2)–(4).
Finally, we propose in § 156.340(b)(5)
that all existing agreements contain
specifications described in paragraph (b)
of this section by no later than January
1, 2015. We believe the effective date
recognizes the time that QHP issuers
may need to amend existing agreements
with delegated and downstream entities
to comply with the requirements under
paragraph (b). For agreements that are
newly entered into as of October 1,
2013, we propose an effective date for
the specifications described in
paragraph (b) of this section to be no
later than the effective date of the
agreement.
4. Subpart E—Health Insurance Issuer
Responsibilities With Respect to
Advance Payments of the Premium Tax
Credit and Cost-Sharing Reductions
In this subpart, pursuant to section
1321(a)(1)(B) of the Affordable Care Act,
we propose standards for oversight of
QHP issuers with respect to cost-sharing
reductions and advance payments of the
premium tax credit. We believe that it
is important to establish robust
oversight relating to cost-sharing
reductions and advance payments of the
premium tax credit in order to ensure
that Federal funds are used efficiently
and in full compliance with the
provisions of the Affordable Care Act,
and that consumers receive the financial
assistance afforded them under the
statute. The standards proposed in this
subpart are consistent with the
information we provided in the
‘‘Frequently Asked Questions on Health
Insurance Marketplaces’’ dated May 14,
2013.32
In particular, we propose
requirements and timeframes for
refunds to eligible enrollees and
providers when a QHP issuer
incorrectly applies the cost-sharing
reductions or advance payments of the
premium tax credit, or incorrectly
assigns an individual to a plan variation
(or standard plan without cost-sharing
32 Available at: https://www.cms.gov/CCIIO/
Resources/Fact-Sheets-and-FAQs/Downloads/
marketplace-faq-5-14-2013.pdf.
PO 00000
Frm 00026
Fmt 4701
Sfmt 4702
reductions), resulting in the enrollee or
the provider paying a portion of the cost
sharing or premium amount that should
otherwise have been reduced. The
proposed provisions are intended to
ensure that enrollees and providers are
promptly refunded any excess cost
sharing they should not have paid.
a. Definitions (§ 156.400)
Section 156.400 of this subpart
defines a ‘‘most generous,’’ and a ‘‘more
generous,’’ plan variation. We propose
to supplement those definitions by
clarifying that the definitions of a ‘‘least
generous,’’ and a ‘‘less generous,’’ plan
variation have the opposite meanings of
the existing definitions of a ‘‘most
generous,’’ or a ‘‘more generous’’ plan
variation. Specifically, we propose that,
as between two plan variations (or a
plan variation and a standard plan
without cost-sharing reductions), the
plan variation or standard plan without
cost-sharing reductions designed for the
category of individuals first listed in 45
CFR 155.305(g)(3) would be deemed the
less generous one. The term less
generous is used in this proposed rule
to address circumstances in which a
QHP issuer would reassign an enrollee
from a more generous plan variation to
a less generous plan variation (or
standard plan without cost-sharing
reductions), as discussed in greater
detail below. We also propose a
technical modification to change ‘‘QHP
or plan variation’’ to ‘‘standard plan or
plan variation’’ to clarify that a plan
variation is not distinct from a QHP.
b. Improper Plan Assignment and
Application of Cost-Sharing Reductions
(§ 156.410(c)–(d))
To address misapplication of costsharing reductions due to an enrollee, in
§ 156.410, we propose to add new
paragraphs (c) and (d) to specify the
actions a QHP issuer would take if it
does not provide the appropriate costsharing reductions to an individual, or
if it does not assign an individual to the
appropriate plan variation (or standard
plan without cost-sharing reductions) in
accordance with § 156.410(a)–(b) or
§ 156.425(a)–(b) of this subpart. The
QHP issuer is responsible under these
provisions for ensuring that individuals
are assigned to the appropriate plan
variation (or standard plan without costsharing reductions) and ensuring that
the cost-sharing reduction is applied
when the cost sharing is collected. We
believe that enrollees and providers
should be held harmless if the QHP
issuer misapplies the cost-sharing
reduction, such that the QHP issuer
should not recoup excess funds paid for
the individual or to the provider.
E:\FR\FM\19JNP3.SGM
19JNP3
tkelley on DSK3SPTVN1PROD with PROPOSALS3
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
However, because we believe an
enrollee should be afforded at a
minimum the financial assistance
specified in the statute and regulations,
we believe that the QHP issuer should
be responsible for refunding any excess
cost sharing paid by the enrollee or
provider, as applicable.
Accordingly, in paragraph (c)(1), we
propose that if a QHP issuer fails to
ensure that an individual assigned to a
QHP plan variation receives the costsharing reductions required under the
applicable plan variation, taking into
account the requirement regarding cost
sharing previously paid under other
plan variations of the same QHP under
§ 156.425(b), the QHP would notify the
enrollee of the improper application of
the cost-sharing reductions and refund
any excess cost sharing paid by or for
the enrollee during such period no later
than 30 calendar days after discovery of
the improper application of the costsharing reductions. This refund would
be paid to the person or entity that paid
the excess cost sharing, whether the
enrollee or the provider.
In paragraph (c)(2), we propose that if
a QHP issuer provides an enrollee
assigned to a plan variation more costsharing reductions than required under
the applicable plan variation, taking
into account § 156.425(b) concerning
continuity of deductibles and out-ofpocket amounts, if applicable, then the
QHP issuer will not be eligible for
reimbursement of any excess costsharing reductions provided to the
enrollee, and may not seek
reimbursement from the enrollee or the
provider for any of the excess costsharing reductions. As noted above,
because the QHP issuer is responsible
for ensuring the cost-sharing reduction
is provided appropriately, we do not
believe that the QHP issuer should be
able to recoup overpayments of costsharing reductions that resulted from
the QHP issuer’s own errors.
In paragraph (d), we propose that if a
QHP issuer does not comply with
§ 156.410(b) by improperly assigning an
enrollee to a plan variation (or standard
plan without cost-sharing reductions),
or the QHP issuer does not change the
enrollee’s assignment due to a change in
eligibility in accordance with
§ 156.425(a), in each case, based on the
eligibility and enrollment information
or notification provided by the
Exchange, then the QHP issuer would,
no later than 30 calendar days after
discovery of the improper assignment,
reassign the enrollee to the applicable
plan variation (or standard plan without
cost-sharing reductions) and notify the
enrollee of the improper assignment.
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
If a QHP issuer reassigns an enrollee
from a more generous to a less generous
plan variation of a QHP (or a standard
plan without cost-sharing reductions),
for example from a silver plan variation
with an 87 percent AV to a silver plan
variation with an 73 percent AV, to
correct an improper assignment on the
part of the issuer pursuant to proposed
paragraph (d)(1), the QHP issuer will
not be eligible for, and may not seek
from the enrollee or provider,
reimbursement for any of the excess
cost-sharing reductions provided to or
for the enrollee following the effective
date of eligibility required by the
Exchange. Because the QHP issuer is
responsible for assigning and
reassigning the enrollee to a plan
variation of a QHP (or standard plan
without cost-sharing reductions) and
because of the reliance interests of the
enrollee, we believe that the QHP issuer
should not be able to recover excess
cost-sharing reductions if it erroneously
assigns an individual to a more
generous plan variation. This aligns the
policy proposed in this section with
respect to the misapplication of the costsharing reductions.
Conversely, proposed paragraph (d)(2)
provides that, if a QHP issuer reassigns
an enrollee from a less generous plan
variation (or a standard plan without
cost-sharing reductions) to a more
generous plan variation of a QHP (for
example from a silver plan variation
with an 87 percent AV to a silver plan
variation with an 94 percent AV) to
correct an improper assignment on the
part of the issuer, the QHP issuer would
recalculate the individual’s liability for
cost sharing paid between the effective
date of eligibility required by the
Exchange and the date on which the
issuer effectuated the change. The QHP
issuer would refund any excess cost
sharing paid by or for the enrollee
during such period, no later than 30
calendar days after discovery of the
incorrect assignment. This refund
would be paid to the person or entity
that paid the excess cost sharing,
whether the enrollee or the provider.
For example, if a QHP issuer improperly
assigned an individual to a silver plan
variation with an 87 percent AV for the
plan year starting January 1, 2014, but
on March 1, 2014, discovers that the
individual should have been assigned to
a silver plan variation with a 94 percent
AV, then the QHP issuer would be
required to reassign the individual to
the silver plan variation with a 94
percent AV by March 31, 2014. The
issuer would also refund any excess cost
sharing paid by or for the enrollee
between January 1, 2014 and the date
PO 00000
Frm 00027
Fmt 4701
Sfmt 4702
37057
the reassignment is effectuated, that is,
March 31, 2014.
We seek comment on the proposed
approach, including the 30 calendar day
timeframe for QHP issuers to reassign an
individual to the correct plan variation
and refund any excess cost sharing paid
by or for the enrollee. We also seek
comment on whether the timeframe
should depend on the point in the
month the issuer discovers the improper
assignment, considering the amount of
time issuers may require to effectuate
the reassignment, as well as the impact
on enrollees due to a delay in
reassignment. We note that the date of
the reassignment will not affect the
initial effective date of eligibility, and
that the enrollee would still be refunded
any excess cost sharing paid by or for
the enrollee between the effective date
of eligibility and the date of the
reassignment.
We are also considering requiring
that, for each quarter, a QHP issuer
provide to HHS and the Exchange, in a
manner and timeframe specified by
HHS, a report detailing the occurrence
of any improper applications of costsharing reductions in violation of the
standards finalized and proposed in
§ 156.410(a) and (c) and § 156.425(b), as
well as instances when it did not refund
any excess cost sharing paid by or for
an enrollee in accordance with
proposed § 156.410(c)(1) and
§ 156.410(d)(2), or was reimbursed for
excess cost sharing provided in
violation of proposed § 156.410(d)(1).
This quarterly report would alert HHS
and the Exchange to patterns of such
errors or omissions, and could identify
areas where issuer performance can be
improved. However, we recognize that,
given operational constraints, it may be
difficult at this point for QHP issuers to
develop systems that can produce these
types of quarterly reports for the 2014
benefit year. Therefore, we are
considering requiring issuers to produce
these reports beginning in the 2015
benefit year. We seek comment on the
proposed approach, including whether
such reports should be provided less
frequently. We also seek comment on
whether HHS should establish a
minimum error rate or threshold before
a QHP issuer is required to inform HHS
of such improper applications of costsharing reductions in the quarterly
report, as well as what an appropriate
error rate or threshold should be.
c. Failure To Reduce an Enrollee’s
Premium To Account for Advance
Payments of the Premium Tax Credit
(§ 156.460(c))
We also propose to add new
paragraph (c) to § 156.460, related to the
E:\FR\FM\19JNP3.SGM
19JNP3
37058
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
tkelley on DSK3SPTVN1PROD with PROPOSALS3
failure to reduce an enrollee’s share of
premium to account for advance
payments of the premium tax credit. In
paragraph (c), we propose that if a QHP
issuer discovers that it did not reduce
the portion of the premium charged to
or for the enrollee for the applicable
month(s) by the amount of the advance
payment of the premium tax credit as
required in § 156.460(a)(1), the QHP
issuer would be required to refund to
the enrollee any excess premium paid
by or for the enrollee and notify the
enrollee of the improper assignment no
later than 30 calendar days after the
QHP issuer discovers the improper
assignment. We note that a QHP issuer
may provide the refund to the enrollee
by reducing the enrollee’s portion of the
premium in the following month, as
long as the reduction is provided no
later than 30 calendar days after the
QHP issuer discovers the improper
assignment. If the QHP issuer elects to
provide the refund by reducing the
enrollee’s portion of the premium for
the following month, and the refund
exceeds the enrollee’s portion of the
premium for the following month, then
the QHP issuer would need to refund to
the enrollee the excess no later than 30
calendar days after the QHP issuer
discovers the improper assignment.
Additionally, we are also considering
that for each quarter beginning in 2015,
a QHP issuer would be required to
provide a report to HHS and the
Exchange, in a manner and timeframe
specified by HHS, detailing the
occurrence of instances of improper
applications of the requirements of
§ 156.460. This would be similar to the
quarterly reporting requirements with
respect to the misapplication of costsharing reduction discussed in the
previous section of this subpart, and we
note that we would anticipate utilizing
a single process for issuers to submit
such quarterly reports. We seek
comment on the proposed approach,
including the timeframe for issuers to
refund any excess premiums to
enrollees, the timeframes for providing
the quarterly report to HHS and the
Exchange, whether HHS should also
establish a minimum rate or threshold
before a QHP issuer is required to notify
HHS of any such instances, and what an
appropriate rate or threshold would be.
d. Oversight of the Administration of
Cost-Sharing Reductions and Advance
Payments of the Premium Tax Credit
Programs (§ 156.480)
In § 156.480, we propose general
provisions related to the oversight of
QHP issuers in relation to cost-sharing
reductions and advance payments of the
premium tax credit. Cost-sharing
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
reduction reimbursements and advance
payments of the premium tax credit are
Federal funds, which will pass from
HHS directly to QHP issuers. Therefore,
we believe that it is necessary for HHS
to oversee QHP issuer compliance in
these areas, regardless of whether the
QHP is offered through a State Exchange
or an FFE. We seek comment on this
approach, including with respect to how
HHS may coordinate with State
Exchanges and State authorities to
address non-compliance with Federal
requirements regarding cost-sharing
reductions or advance payments of the
premium tax credit. We note that in
States where there is a State Exchange,
the State has enforcement authority over
QHP issuers that are not in compliance
with the standards set forth in subpart
E of this Part. If the State does not
enforce such standards against the QHP
issuers in the individual market
participating on the State Exchange,
HHS will enforce QHP issuer
compliance with these requirements,
including the imposition of CMPs as
provided for under Section 1321(c) of
the Affordable Care Act. In instances
where HHS enforces QHP issuer
compliance with respect to cost-sharing
reductions and advanced payments of
the premium tax credit, we envision
CMPs would be imposed using the same
standards and processes as proposed for
QHP issuers in an FFE in subpart I of
this Part.
To effectively oversee the provision of
cost-sharing reductions and advance
payments of the premium tax credit by
issuers of QHPs on State Exchanges, we
propose to apply certain standards
proposed in part 156, subpart H for QHP
issuers participating in FFEs to QHP
issuers participating in the individual
market on a State Exchanges. In
paragraph (a), we propose to extend the
standards set forth in proposed
§ 156.705 concerning maintenance of
records to a QHP issuer in the
individual market on a State Exchange
in relation to cost-sharing reductions
and advance payments of the premium
tax credit. We also propose that QHP
issuers ensure that any delegated
entities and downstream entities adhere
to these requirements, in parallel with
the standards for QHP issuers on an FFE
proposed in § 156.340. We believe
applying these provisions to QHP
issuers participating in State Exchanges
is necessary to allow HHS, pursuant to
its oversight authority, to access records
and investigate compliance with the
requirements of this subpart. We note
that a QHP issuer and its delegated
entities and downstream entities may
satisfy this standard by maintaining the
PO 00000
Frm 00028
Fmt 4701
Sfmt 4702
relevant records for a period of 10 years
and ensuring that they are accessible if
needed in the event of an investigation
or audit.
We also propose that QHP issuers
participating in State Exchanges and
FFEs be subject to reporting and
oversight requirements that are intended
to assist in monitoring a QHP issuer’s
compliance with Federal standards with
regard to cost-sharing reductions and
advance payments of the premium tax
credit, in order to safeguard Federal
funds distributed through these
programs, and to correct improper
payments to the QHPs.
In paragraph (b), we propose that an
issuer that offers a QHP in the
individual market through a State
Exchange or an FFE report to HHS
annually, in a timeframe and manner
required by HHS, summary statistics
with respect to administration of costsharing reductions and advance
payments of the premium tax credit.
This proposed provision would permit
HHS to obtain summary information
regarding cost-sharing reductions and
advance payments of the premium tax
credit across a broad range of issuers to
identify systemic issues and errors,
without requiring annual audits. We
contemplate that this information will
include (1) The total amount of costsharing paid under each plan variation,
including the amount paid by the
individual and amount reduced by the
cost-sharing reductions program, (2) an
annual error rate reflecting the
misapplication of the cost-sharing
reductions and advance payments of the
premium tax credit by plan variation,
and (3) the total number of enrollees
who received a refund as well as the
total and average refunds made to
enrollees and providers by plan
variation resulting from underpayments.
Additionally, in paragraph (c), as is
required under other Federal programs
such as Medicare Advantage, we
propose that HHS or its designee may
audit an issuer that offers a QHP in the
individual market through a State
Exchange or an FFE to assess
compliance with the requirements of
this subpart. An audit may be triggered
by sources such as the annual reports
proposed in § 156.480(b) of this Part,
consumer complaints, and information
received from State regulatory agencies.
We note that we intend to coordinate
any audits of QHP issuers in an FFE
with the compliance reviews proposed
in § 156.715 of subpart H. We seek
comment on these proposed reporting
requirements, including the operational
readiness of issuers to report these data,
our proposed approach to audits, and
how such oversight activities may be
E:\FR\FM\19JNP3.SGM
19JNP3
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
tkelley on DSK3SPTVN1PROD with PROPOSALS3
coordinated with State Exchange
oversight activities to avoid duplication
of effort.
5. Subpart H—Oversight & Financial
Integrity Requirements for Issuers of
Qualified Health Plans in FederallyFacilitated Exchanges
a. Maintenance of Records for the
Federally-facilitated Exchanges
(§ 156.705)
Section 1313(a)(2) of the Affordable
Care Act authorizes HHS to examine
records and solicit reports regarding
activities undertaken by the Exchanges.
So that HHS can prepare for and
successfully complete compliance
reviews and audits to account for
expenditures and protect against fraud
and abuse, we propose that QHP issuers
must retain certain records. The record
retention standards we propose in this
section are similar to those already
established for the Medicare Advantage
Program, and described at 42 CFR
422.504(d).
We propose in § 156.705(a) that
issuers offering QHPs in an FFE
maintain all documents and records
(whether paper, electronic, or other
media) and other evidence of
accounting procedures and practices,
which are critical for HHS to conduct
activities necessary to safeguard the
financial and programmatic integrity of
the FFEs. We propose that such
activities include: (1) periodic auditing
of the QHP issuer’s financial records
related to the QHP issuer’s participation
in an FFE, and to evaluate the ability of
the QHP issuer to bear the risk of
potential financial losses; and (2)
compliance reviews and other
monitoring of a QHP issuer’s
compliance with all Exchange standards
applicable to issuers offering QHPs in
the FFE listed in part 156. We
considered requiring maintenance of
other types of records, but we propose
limiting our scope to Exchange-specific
records as applicable to the FFEs. We
seek comment on the type and scope of
records we propose must be maintained
by QHP issuers participating in the
FFEs.
In § 156.705(b), we propose to clarify
that the records described in proposed
paragraph (a) of this section include the
sources listed in proposed
§ 155.1210(b)(2), (b)(3), and (b)(5). Our
intent is to align record maintenance
standards of the FFEs and State
Exchanges to the extent possible.
In § 156.705(c), we propose that
issuers offering QHPs in an FFE must
maintain the records described in this
section, as well as records required by
§ 155.710 (to determine SHOP
eligibility), for 10 years. This proposed
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
standard parallels standards in part 155
as well as existing part 153 standards
(45 CFR 153.240(c), 153.520(e) and
153.620(b) and proposed
§§ 153.310(c)(4), 153.405(h), and
153.410(c)). It is also consistent with the
statute of limitations for the False
Claims Act (31 U.S.C. 3731(b)). Our
proposed 10-year record retention
requirement supports the Federal
government’s right under the False
Claims Act to investigate and pursue
claims based on violations involving
Federal funds that have occurred within
the last 10 years.
Proposed § 156.705(d) explains that
the records referenced in paragraph (a)
must be made available to HHS, the
OIG, the Comptroller General, or their
designees, upon request.
These proposed standards pertain
only to Exchange-specific areas of
concern (for example, matters pertaining
to advance payments of premium tax
credits or cost-sharing reductions)
within the FFEs, as HHS would expect
the State DOI to oversee the
maintenance of records pertaining to
other aspects of QHP issuer operations
as required under State law. We
welcome comments on these proposed
standards.
b. Compliance Reviews of QHP
Issuers in Federally-facilitated
Exchanges (§ 156.715)
Section 1313(a)(5) of the Affordable
Care Act requires the Secretary to
establish any measure or procedure that
the Secretary has authority to
implement in Title I of the Affordable
Care Act or any other act to protect
against fraud and abuse. Additionally,
in accordance with section 1321 of the
Affordable Care Act, the Secretary has
the authority to issue regulations on the
establishment and operation of an
Exchange, the offering of QHPs through
the Exchange, the establishment of
reinsurance and risk adjustment
programs, and other requirements as the
Secretary determines appropriate.
Based on this authority, we propose
in § 156.715(a) that issuers offering
QHPs in an FFE be subject to
compliance reviews by HHS to ensure
ongoing compliance with Exchange
standards applicable to issuers offering
QHPs in the FFE. We envision our
oversight of QHP issuers in FFEs to be
primarily focused on Exchange
standards applicable only to issuers
offering QHPs in the FFE because
oversight of market-wide standards will
generally be performed by States as part
of their regulatory oversight. We intend
to rely on data related to these standards
to inform our selection of the QHP
issuers for compliance reviews. We
anticipate that the majority of QHP
PO 00000
Frm 00029
Fmt 4701
Sfmt 4702
37059
issuers selected for compliance review
will be identified using a risk-based
approach and include an analysis of the
data collected by an FFE during
certification and the plan year. Given
the primary role States play in
regulating health insurance, these
compliance reviews will be less rigorous
than in Medicare Advantage. In
paragraph (b), we describe the proposed
scope of documents that HHS may
inspect as part of the compliance
review. We propose that HHS may
review the records of the QHP issuer
pertaining to its activities within an
FFE, which include but are not limited
to the QHP issuer’s books and contracts,
policy manuals and other QHP plan
benefit information provided to the QHP
issuer’s enrollees, and the QHP issuer’s
policies and procedures related to the
QHP issuer’s activities in an FFE. We
further propose that the scope of
information subject to the compliance
review include any other information
reasonably necessary, as determined by
HHS, for HHS to: (a) evaluate the QHP’s
issuer’s compliance with Exchange
standards applicable to issuers offering
QHPs in the FFE and their performance
in the FFE; (b) verify that the QHP
issuer has performed the duties attested
to as part of the QHP certification
process; and (c) assess the likelihood of
fraud and abuse. An example of an area
that may be reviewed, evaluated, or
inspected is compliance with proper
application and documentation of
advance payments of the premium tax
credit and cost-sharing reductions. We
invite comment regarding other areas
that should be included or considered
for inclusion in the compliance reviews.
We note that under section
1311(e)(1)(B) of the Affordable Care Act,
which is codified in 45 CFR
155.1000(c), the Exchange may make the
health plan available on the Exchange if
doing so is in the interest of the
qualified individuals and qualified
employers. Accordingly, under
§ 156.715(c), we propose that HHS’s
findings from compliance reviews may
be used in conjunction with other
findings related to the QHP issuer’s
compliance with certification standards
to confirm that permitting the issuer’s
QHPs to be available in an FFE is in the
interest of qualified individuals and
qualified employers as provided under
§ 155.1000(c)(2).
In § 156.715(d), similar to
requirements for Medicare Part C audits,
we propose that QHP issuers in an FFE
make available to HHS the issuer’s
premises, physical facilities, and
equipment for compliance reviews. We
believe that on-site reviews are standard
within the health insurance industry
E:\FR\FM\19JNP3.SGM
19JNP3
37060
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
tkelley on DSK3SPTVN1PROD with PROPOSALS3
across a broad range of products and
that QHP issuers would therefore be
used to such a standard, even if they
have not participated in the Medicare
Part C program. We expect to focus our
compliance review efforts around FFErelated standards and activities, which
we believe will reduce the burden on
QHP issuers that have been selected for
compliance reviews. We considered the
two ways of conducting compliance
reviews: an onsite review for which
reviewers would be physically present
on the QHP issuer’s premises, and a
desk review, during which the reviews
would be conducted off-site.
Recognizing the need to be flexible
depending on the specific
circumstances giving rise to the need for
a compliance review, we propose that
HHS will have the discretion to conduct
either an onsite or desk review. We
further propose in this paragraph that
§ 156.715, as proposed, is not intended
to supplant the application of any other
Federal laws and regulations related to
information privacy and security.
In § 156.715(e), we propose a time
period for which HHS may conduct
compliance reviews. We propose that
HHS may conduct compliance reviews
of a QHP issuer’s operations during any
plan benefit year for up to 10 years from
the last day of that plan benefit year,
except when a QHP is no longer
available through an FFE, HHS would
be able to conduct a compliance review
of the last plan benefit year of that QHP
only up to 10 years from the last day
that the QHP’s certification was
effective. For example, if a QHP’s
current benefit plan year ended on
December 31, 2014, then HHS may
conduct a compliance review of that
benefit plan year until December 31,
2024. If QHP was decertified on May 1,
2014, then HHS may conduct a
compliance review of the QHP’s last
benefit plan year until May 1, 2024. In
the event that the 10 year review period
ends during an ongoing compliance
review, the ongoing compliance review
would be permitted to continue beyond
the 10 year review period. We invite
comments on this proposal.
6. Subpart I—Enforcement Remedies in
Federally-Facilitated Exchanges
In subpart I, we propose the
enforcement remedies that may be used
in an FFE with respect to QHP issuers
participating in an FFE.
a. Available Remedies; Scope
(§ 156.800)
Section 1321(c)(2) of the Affordable
Care Act authorizes the Secretary to
enforce Exchange standards applicable
to issuers offering QHPs in the FFE
using CMPs as detailed in section
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
2723(b) of the PHS Act ‘‘without regard
to any limitation on the application of
those provisions to group health plans.’’
Section 2723(b) of the PHS Act
authorizes the Secretary to impose
CMPs as a means of enforcing the
individual and group market reforms
contained in Title XXVII, Part A of the
PHS Act when a State fails to
substantially enforce these provisions.
Section 1311(d)(4) of the Affordable
Care Act requires an Exchange to
implement procedures for the
certification, recertification, and
decertification of health plans as QHPs.
Accordingly, we propose that HHS may
determine that a QHP offered through
an FFE will be decertified and no longer
offered through an FFE under specified
circumstances, including where the
QHP no longer meets the conditions of
the general certification criteria under
45 CFR 155.1000(c). We intend to focus
our enforcement efforts on Exchange
standards applicable to issuers offering
QHPs in the FFE given that enforcement
of market-wide standards will generally
be performed by States as part of their
traditional regulatory roles. In the
interest of avoiding duplication of
efforts, we intend to generally rely on
determinations by States that have the
authority to enforce Federal standards
related to participation in a Federallyfacilitated Exchange and are in fact,
substantially enforcing these standards.
In § 156.800, paragraphs (a) and (b), we
propose CMPs and QHP decertification,
respectively, as the two formal
enforcement actions that HHS may take
against issuers of QHPs offered in an
FFE. These are the two tools that the
Affordable Care Act authorizes the
Secretary to use for addressing areas of
non-compliance of QHP issuers in FFEs.
As with our proposed approach to
monitoring QHP issuers participating in
an FFE, we intend to coordinate our
enforcement actions with State efforts in
order to streamline the oversight of QHP
issuers by HHS and States and to avoid
inappropriately duplicative enforcement
actions. We solicit comment on the use
of these proposed compliance tools. We
also invite comments on how HHS can
collaborate with States on enforcement
actions.
b. Bases and Process for Imposing
Civil Money Penalties in Federallyfacilitated Exchanges (§ 156.805)
In § 156.805(a), we propose the bases
on which HHS can impose CMPs on
QHP issuers in FFEs. We propose
imposing CMPs where there misconduct
in the FFE or substantial noncompliance with Exchange standards
applicable to issuers offering QHPs in
the FFE. Examples include falsifying
information furnished to an individual
PO 00000
Frm 00030
Fmt 4701
Sfmt 4702
or entity upon which HHS relies to
make evaluations of the QHP issuer’s
ongoing compliance with Exchange
standards applicable to issuers offering
QHPs in the FFE, or which have the
effect of hindering the operations of an
FFE. We intend to apply these penalties
in a manner such that the level of the
enforcement action would vary based on
our assessment of the scope or level of
the violation, taking into account the
issuer’s previous record of compliance,
the frequency of the violation, and any
aggravating or mitigating factors.
Because QHPs are one of several
commercial market insurance products
operating in State markets, HHS will
seek not to unnecessarily duplicate or
interfere with the traditional regulatory
roles played by State DOIs. HHS
generally intends to focus its QHP
oversight to Exchange standards
applicable to issuers offering QHPs (for
example, correctly administering
advance payments of the premium tax
credits and cost-sharing reductions and
offering benefits consistent with those
set forth in the QHP applications
approved by HHS) because oversight of
market-wide standards will generally be
performed by States in their traditional
regulatory roles. We will also seek to
work collaboratively with State
Departments of Insurance on topics of
mutual concern, in the interest of
efficiently deploying oversight resources
and avoiding unnecessarily duplicative
regulatory roles. We seek comment on
this proposal.
In § 156.805(b), we propose factors
that HHS may take into consideration in
determining the amount of CMPs to
assess. HHS recognizes that 2014 will be
a transitional year for issuers offering
QHPs. As a general principle, while
HHS proposes to establish authority to
impose penalties consistent with this
proposed rule, we note that we intend
to work collaboratively with issuers to
address problems that may arise,
particularly in 2014. We propose that an
issuer’s previous and ongoing record of
compliance; the level of the violation,
including the frequency of the violation
and the impact of the violation on
affected individuals; as well as any
aggravating or mitigating circumstances
be taken into consideration. Section
2723(b)(2)(C) of the PHS Act limits the
CMP amount to $100 for each day for
each individual adversely affected.
Therefore in § 156.805(c), we propose
that the maximum amount of penalty
imposed for each violation to be $100
per day for each QHP issuer, for each
individual adversely affected by the
non-compliance. For violations where
the number of individuals adversely
E:\FR\FM\19JNP3.SGM
19JNP3
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
tkelley on DSK3SPTVN1PROD with PROPOSALS3
affected by the non-compliance cannot
be determined, we propose giving HHS
the authority to estimate the number of
individuals likely to be adversely
affected by the non-compliance. We
solicit comment on these proposals in
addition to comments on whether an
appropriately fixed maximum penalty
amount per occurrence, per submission,
or per some other relevant marker, or
alternatively on a formula for estimating
the number of individuals adversely
affected by the violation would be more
appropriate.
We expect this amount to be
necessary and adequate for encouraging
issuers to correct identified occurrences
of non-compliance as quickly as
possible. Our intent is to encourage
QHP issuers to address issues of noncompliance rather than to impose a
punitive monetary assessment,
especially in situations where the issuer
demonstrates good faith in monitoring
compliance with applicable standards,
identifying any occurrences of noncompliance, and resolving of issues of
non-compliance. We believe that taking
into consideration the various factors
proposed in paragraph (b) provides HHS
flexibility to consider the totality of the
circumstances in determining a
reasonable amount of CMP to assess. In
paragraph (d), we propose standards for
notifying QHP issuers of the intent to
assess a civil money penalty, which
notice must include an explanation of
the QHP issuer’s right to a hearing
under subpart J of this part, which
appeals process we propose to model
after the process that applies to appeals
of HIPAA violations. Section 156.805(e)
contains our proposed provisions on the
consequences of failing to timely
request a hearing, which we have
modeled after 45 CFR 150.347.
We seek comment on the content and
scope of these provisions.
c. Bases and Process for Decertification
of a QHP Offered by an Issuer through
the Federally-facilitated Exchanges
(§ 156.810)
Section 1311(d)(4) of the Affordable
Care Act directs that each Exchange
must implement procedures for the
certification, recertification, and
decertification of health plans as QHPs,
consistent with guidelines developed by
the Secretary. We have considered the
possibility of decertification at (1) the
issuer level, (2) the QHP level, and (3)
both at the issuer level and at the QHP
level. We considered all three options
because some of the bases for decertification include failure to comply
with applicable standards at the issuer
level, while others uniquely involve
compliance at the QHP level. However,
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
since certification is granted at the plan
(QHP) level, we propose that
decertification should also occur at the
QHP level.
In § 156.810(a), we propose the bases
for decertification. We considered
events that are likely to undermine the
integrity or operations of an FFE, harm
the health of enrollees by limiting
access to healthcare, and or
substantially interfere with HHS’ ability
to ensure that QHPs offered in an FFE
are in the interests of qualified
individuals and qualified employers.
Recognizing that QHP issuers are
voluntarily electing to participate in an
FFE, and that participation is not
required by any statutory mandate, we
expect the majority of QHP issuers to
cooperate with HHS in resolving any
issues of non-compliance. As such and
absent any extraordinary circumstances,
we expect few decertifications,
especially in the first plan year. With
these considerations in mind, we
propose in paragraph (a)(1), that a QHP
may be decertified if the issuer
substantially fails to comply with
Federal laws and regulations applicable
to QHP issuers participating in an FFE.
In paragraphs (a)(2), (3), and (4), we
propose that a QHP may be decertified
if the issuer substantially fails to comply
with other specific Federal standards
applicable to its participation in an FFE,
as related to the risk adjustment
program, transparency in coverage, QHP
marketing and benefit design, privacy
and security standards, and advance
payment of the premium tax credit and
cost-sharing reductions. In paragraph
(a)(5), we propose that a QHP may be
decertified if the issuer operates in a
manner that hinders the efficient and
effective administration of an FFE. In
paragraph (a)(6), we propose that failure
of a QHP to meet the requirements of
the applicable certification criteria
would be a basis for decertification. In
paragraph (a)(7), we propose that a QHP
may be decertified when there is
credible evidence that the issuer has
committed or participated in fraudulent
or abusive activities affecting the
Exchange, including submission of false
or fraudulent data. In paragraphs (a)(8)
and (9), we propose as bases for
decertification, when the QHP issuer
substantially fails to meet Federal
standards related to enrollees’ ability to
access necessary medical items and
services which failure could have the
effect of seriously harming enrollees. In
paragraph (a)(10), we propose as a basis
for decertification, when the State
recommends to HHS that the QHP
should no longer be available in an FFE.
We note that in the first year, we expect
PO 00000
Frm 00031
Fmt 4701
Sfmt 4702
37061
decertification under these bases to be
used only in extreme cases, and only
after the issuer has a sufficient
opportunity to come into compliance,
unless the deficiency is egregious and
the harm to enrollees or to the integrity
or operations of the FFE is immediate
and severe.
In § 156.810(b)(1), we propose that
HHS may consider a previous or
ongoing regulatory or enforcement
actions taken by a State against a QHP
issuer as a factor in determining
whether to decertify a QHP offered by
that issuer. We believe this is important
to ensure that mitigating factors
identified by the State are thoroughly
considered in the decision to decertify
a QHP. We believe that, by collaborating
with the State in which a QHP is being
considered for decertification, we can
make a more informed decision about
whether decertification is an
appropriate course of action by HHS. In
paragraph (b)(2), we propose that HHS
may decertify a QHP offered by an
issuer in an FFE based on a
determination or action of a State as
they relate to the issuer offering QHPs
in an FFE, including, but not limited to,
when a State places an issuer or its
parent organization into receivership or
when the State has recommended to
HHS that a QHP should no longer be
made available in an FFE. We invite
comments on whether these bases are
appropriate.
In § 156.810(c) and (d), we propose
two processes for decertification
actions, in consideration of the different
bases which may result in
decertification. Where the basis for
decertification does not put the QHP
enrollees’ ability to access necessary
medical items and services at risk or
substantially compromise the integrity
of FFEs, we propose a standard
decertification process under
§ 156.810(c). Under the standard
process, we propose that written notice
of the decertification would be sent to
the QHP issuer, enrollees in the QHP
being decertified, and the State DOI in
the State in which the QHP is being
decertified. The written notice would
specify the effective date of the
decertification, which would not be
earlier than 30 days after the date of
issuance of the notice. Additionally, we
propose that the written notice would
state the reason for the decertification,
including the legal basis; inform the
issuer of the effect of decertification and
the procedure for appeal; and inform the
QHP enrollees of the effect of
decertification and the availability of a
special enrollment period under
§ 155.420.
E:\FR\FM\19JNP3.SGM
19JNP3
tkelley on DSK3SPTVN1PROD with PROPOSALS3
37062
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
Where the basis for a decertification is
one in which the QHP enrollees’ ability
to access necessary medical items or
services is at risk or the integrity of an
FFE is substantially compromised, we
propose that the QHP issuer would be
subject to an expedited decertification
process under § 156.810(d). This would
include cases in which there is credible
evidence of fraud, the issuer
substantially fails to provide enrollees
of its QHPs access to necessary medical
items or services, or other specified
circumstances. We propose that the
expedited decertification process would
be similar to the standard process,
except that the effective date of the
decertification could be immediate. We
recognize that, under the expedited
decertification process, a QHP issuer
may lose enrollees during the appeal
process. However, given that the bases
for expedited decertification are limited
to when the enrollees’ ability to access
needed health items or services is at risk
or the integrity of an FFE is
substantially compromised, and that
enrollees should be offered an
opportunity to transition to another
QHP in these circumstances, we believe
that this expedited decertification
process is appropriate. Furthermore, the
QHP issuer’s interests are adequately
protected by the opportunity for a
hearing after decertification, and the
potential for QHP reinstatement
depending on the outcome of the appeal
process.
Both the standard and expedited
decertification processes would afford
the issuer of the decertified QHP the
right to appeal the decertification
through an administrative hearing
process under § 156.810(e), only the
timing of that appeal would differ. We
propose that, under the standard
decertification process, the appeal
would be available prior to the
decertification; under the expedited
decertification process, the appeal
generally would be available postdecertification. Under § 156.810(e), we
propose that an issuer may appeal the
decertification of a QHP offered by that
issuer by filing a request for hearing
under part 156, subpart J. If the issuer
makes a request for hearing and the
decertification is proceeding under the
standard process, we propose that the
decertification would not take effect
until after the final administrative
decision in the appeal, notwithstanding
the effective date specified in the notice
of decertification. If the decertification
is proceeding under the expedited
process, we propose that the
decertification would still take effect on
the effective date specified in the notice
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
of decertification; however, we propose
that the certification of the QHP could
be reinstated immediately upon
issuance of a final administrative
decision that the QHP should not be
decertified.
We welcome comment on all of the
proposed decertification procedures,
specifically, we invite comment on the
two processes for decertification
(standard and expedited) and the bases
for each process.
7. Subpart J—Administrative Review of
QHP Issuer Sanctions in a FederallyFacilitated Exchange
a. Administrative Review in a FederallyFacilitated Exchange (§§ 156.901–
156.963)
Section 1321(c)(2) of the Affordable
Care Act authorizes the Secretary to use
CMPs as a means to enforce the
Exchange standards, including in an
FFE. Section 1311(d)(4)(A) of the
Affordable Care Act authorizes
Exchanges, including an FFE, to take
action to decertify QHPs offered through
the Exchange. Enforcement actions
taken by a Federal agency are generally
subject to the Administrative Procedure
Act, 5 U.S.C. 554 and 556.
Consequently, we believe that QHP
issuers in an FFE that are subject to an
enforcement action authorized by the
Affordable Care Act and proposed
subpart I of 45 CFR part 156 are entitled
to the protections provided by the
Administrative Procedure Act,
including a hearing.
(1) Civil Money Penalty
45 CFR 150.401 through 150.463 sets
forth an administrative hearing process
for individuals and entities against
whom a CMP has been imposed in the
individual and group health markets.
This process is intended to provide the
individual or entity an opportunity to
submit evidence to be considered by the
administrative law judge (ALJ). 45 CFR
150.401 through 150.463 establish the
evidentiary and procedural rules
governing the administrative hearing.
Under these provisions, the ALJ decides
whether there is a basis for assessing a
CMP against the individual or entity
and whether the amount assessed is
reasonable. In order to appeal the CMP,
an individual or entity must request a
hearing within 30 days after the date of
the issuance of a notice of assessment.
If no hearing is requested, the
assessment constitutes a final and unappealable order.
We believe that the process set forth
in 45 CFR 150.401 through 150.463 is
similar to the processes most States
have in place for issuers to appeal State
PO 00000
Frm 00032
Fmt 4701
Sfmt 4702
enforcement actions. These regulations
also established the administrative
review process for enforcement actions
against individuals and entities for
HIPAA violations, which have been
expanded to apply to appeals of marketwide reform enforcement actions.
Because the process established in 45
CFR Part 150 is similar to existing State
appeals processes, and we expect that
issuers should be familiar with HIPAA
enforcement processes given the long
history of that statute, we believe there
is significant benefit in modeling the
administrative hearing process for
appeals of sanctions against QHP issuers
in an FFE after the process established
in Part 150. Furthermore, we believe
that the process as described in the
relevant sections of Part 150 sufficiently
protects the procedural rights of QHP
issuers. Therefore, we propose in 45
CFR 156.901 through 156.963 an
administrative appeals process modeled
after that set forth in 45 CFR 150.401
through 150.463. We seek comment on
whether this process, as proposed,
should include additional protections
and whether certain provisions could be
eliminated to expedite the
administrative review process and
reduce administrative burden. We also
invite comments on whether other
models, such as the appeals process for
CMPs under section 1128A of the Social
Security Act, would be more
appropriate models to use. We propose
numbering these sections in a manner
similar to the numbering in Part 150 for
simplicity.
(2) Decertification of QHPs
Section 1311(d) of the Affordable Care
Act requires an FFE to implement
procedures for decertification of QHPs
offered through an FFE. 45 CFR
155.1080 codifies this requirement and,
in paragraph (d) requires an FFE to
establish a process for appealing the
decertification of a QHP. We considered
two approaches to the decertification
appeals process. The first approach
would be to expand the proposed
process for CMP appeals to include
appeals of decertifications of QHPs
offered in an FFE. Under this approach,
the issuer of a QHP that is being
decertified would have the opportunity
to request a hearing before an ALJ. The
appeals process would be governed by
explicit procedural and evidentiary
rules that would afford issuers due
process protections. As explained
above, this approach is modeled after
the HIPAA administrative hearing
process for CMPs assessed against
issuers in the group and individual
markets, and is similar to appeals
processes that currently exist at the
E:\FR\FM\19JNP3.SGM
19JNP3
tkelley on DSK3SPTVN1PROD with PROPOSALS3
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
State level. We note that the HIPAA
administrative process has been
expanded to apply to appeals of
enforcement actions of market-wide
reform standards. We believe this
approach would be familiar to QHP
issuers and would therefore cause
minimal confusion and uncertainty. The
second approach that we considered is
the hearing process used for
terminations of contracts with Medicare
Part C organizations under 42 CFR
422.510(a), which appeals process is
described at 42 CFR part 422, subpart N.
Under this approach, the hearing would
take place before a hearing officer rather
than an ALJ. Although the Medicare
Part C approach might take less time to
result in a final administrative decision
on decertification, we considered the
possibility that QHP issuers that are
unfamiliar with the Medicare program
could be confused by this hearing
process. Therefore, after careful
consideration of the benefits and risks of
the two approaches, we propose
modeling the hearing process for QHP
decertification after the HIPAA process.
Similar to our proposal for the CMP
appeals hearing process, for
decertification hearings, we propose
generally to adopt the regulatory process
set forth 45 CFR part 150, subpart D.
Although we propose to preserve the
large majority of the regulatory text from
part 150, there are two principal
exceptions. In § 156.903(a), we propose
modifying the part 150 approach to
expand the scope of the ALJ’s authority
to issue a decision concerning the
decertification of a QHP in an FFE. In
§ 156.917(a), we propose modifying the
part 150 approach by including a
paragraph (a)(3) to provide that the ALJ
has the authority to hear and decide
whether a basis exists for an FFE’s
determination to decertify a QHP. In
other places, where necessary, we make
conforming amendments to refer to
appeals of decertifications as well as of
CMP assessments; otherwise, our intent
is to not alter the regulatory process set
forth in 45 CFR part 150, subpart D. We
seek comment on whether this appeals
process should include additional
protections or whether certain aspects of
the part 150 approach could be
eliminated to expedite the
administrative review process and
reduce administrative burden. We also
invite comments on whether other
models, such as the appeals process for
CMPs under section 1128A of the Social
Security Act, would be more
appropriate models to use.
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
8. Subpart K—Cases Forwarded to
Qualified Health Plans and Qualified
Health Plan Issuers in FederallyFacilitated Exchanges by HHS
a. Standards (§ 156.1010)
We propose in § 156.1010 to set
requirements for resolving cases
forwarded to the QHP issuer operating
in an FFE by HHS. A case is
communication brought by a
complainant that expresses
dissatisfaction with a specific person or
entity subject to State or Federal laws
regulating insurance, concerning the
person or entity’s activities related to
the offering of insurance, other than a
communication with respect to an
adverse benefit determination as
defined in 45 CFR 147.136(a)(2)(i).
Cases could include concerns about the
operations of a QHP issuer operating in
an FFE such as: waiting times when
contacting an issuer’s call center, the
demeanor of customer service
personnel, or the failure to receive
materials related to coverage under the
QHP, such as the Summary of Benefits
and Coverage. While we expect that
most cases will be brought by or on
behalf of QHP applicants and enrollees,
some cases may be brought by providers
or other interested parties. HHS
recognizes that States currently play an
important role in handling various types
of cases related to health plans and
issuers, and HHS envisions the States
will continue to play an important role
in assisting applicants, enrollees,
providers and others. We anticipate that
many cases will be presented in the first
instance to the State DOI and will be
addressed by the State in accordance
with its own laws, regulations, and
processes. For a case forwarded to a
QHP issuer operating in an FFE by a
State, the QHP issuer is expected to
comply with applicable standards
established by State laws and
regulations. Additionally, some cases
not related to FFE-specific topics will be
brought to HHS rather than to the State.
HHS intends to work with each State to
ensure that such cases are addressed by
the State in accordance with its own
laws, regulations, and processes. We
intend that cases received by a QHP
issuer operating in an FFE directly from
a complainant or the complainant’s
authorized representative will be
handled by the issuer through its
internal customer service process. For
cases related to FFE-specific topics
brought to HHS, we propose that such
cases will be addressed and resolved by
HHS and the issuer, as appropriate,
pursuant to the proposed standards in
§ 156.1010.
PO 00000
Frm 00033
Fmt 4701
Sfmt 4702
37063
In § 156.1010(a), we propose the
definition of a case. In § 156.1010(b), we
propose that QHP issuers operating in
an FFE must investigate and resolve, as
appropriate, cases brought by a
complainant or the complainant’s
authorized representative and
forwarded to the issuer by HHS. QHP
issuers operating in an FFE are
reminded that issues and inquiries
related to an adverse benefit
determination as defined in 45 CFR
147.136(a)(2)(i) are not covered by this
proposed section, and are subject to the
regulations governing internal claims
appeals and external review in 45 CFR
147.136.
Section 156.1010(c) proposes that
cases may be forwarded to a QHP issuer
operating in an FFE through a casework
tracking system developed by HHS, or
through other means as determined by
HHS. Cases may be input into a tracking
system developed by HHS by a variety
of individuals, including HHS staff,
Navigators and other assistors, and
Consumer Assistance Programs.
Section 156.1010(d) proposes that
cases forwarded by HHS to a QHP issuer
operating in an FFE must be resolved
within 15 calendar days of receipt of the
case. We propose that such cases
involving the need for urgent medical
care must be resolved no more than 72
hours after receipt of the case. QHP
issuers operating in an FFE must make
every effort to quickly resolve cases
when an enrollee has an urgent need to
access needed medical items and
services, pursuant to proposed
paragraph (e) of this section. We further
propose that, for cases forwarded by
HHS to a QHP issuer operating in an
FFE, where applicable State laws and
regulations establish timeframes for case
resolutions that are stricter than the
standards under this paragraph, QHP
issuers are required to comply with the
stricter State laws and regulations.
In 156.1010(e) we propose that an
urgent case is one in which there is an
immediate need for health services
because a non-urgent standard could
seriously jeopardize the enrollee’s or
potential enrollee’s life, or health or
ability to attain, maintain, or regain
maximum function.
In § 156.1010(f), for cases forwarded
by HHS we propose that QHP issuers
operating in an FFE are required to
provide notice to complainants
regarding the disposition of a case as
soon as possible upon resolution of the
case, but in no event later than seven (7)
business days after the case is resolved.
Notification may be by verbal or written
means as determined most expeditious
by the QHP issuer.
E:\FR\FM\19JNP3.SGM
19JNP3
37064
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
In § 156.1010(g), we propose that the
QHP issuer operating in an FFE must
document in a casework tracking system
developed by HHS, or by other means
determined by HHS, that the case has
been resolved, no later than seven (7)
business days after resolution of the
case. The resolution record must
include a clear and concise narrative
explaining how the case was resolved
including information about how and
when the complainant was notified of
the resolution.
In § 156.1010(h) we propose that cases
received by a QHP issuer operating in
an FFE from the State in which the
issuer offers QHPs must be investigated
and resolved according to applicable
State laws and regulations. In addition,
QHP issuers operating in an FFE must
cooperate fully with a State, HHS, or
any other appropriate regulatory
authority that is handling a case.
HHS will use casework data within
the HHS developed casework tracking
system, including data entered by HHS
and other users such as QHP issuers
operating in FFEs, Consumer Assistance
Programs, and Navigators, to identify
trends, areas of concern, and
compliance issues.
9. Subpart L—Quality Standards
tkelley on DSK3SPTVN1PROD with PROPOSALS3
a. Establishment of Standards for HHSapproved Enrollee Satisfaction Survey
Vendors for Use by QHP Issuers in
Exchanges (§ 156.1105)
Section 1311(c)(4) of the Affordable
Care Act directs the Secretary to
develop an enrollee satisfaction survey
that evaluates the level of enrollee
satisfaction with each QHP that is
offered through an Exchange, for QHPs
that had more than 500 enrollees in the
previous year. The results of the
evaluation are to be publicly reported
on the Exchange’s Internet portal, in a
manner that allows for easy comparison
of enrollee satisfaction levels among
comparable plans. HHS intends to begin
public reporting of these survey results
in 2016. 45 CFR 155.200(d) directs
Exchanges to oversee the
implementation of enrollee satisfaction
surveys and the assessment and ratings
of health care quality and outcomes, in
accordance with sections 1311(c)(1),
1311(c)(3) and 1311(c)(4) of the
Affordable Care Act. Further, as part of
minimum certification standards, 45
CFR 156.200(b)(5) directs QHP issuers
to disclose and report information on
health care quality and outcomes and
implement appropriate enrollee
satisfaction surveys.
In order to carry out these functions,
we propose processes under which HHS
would approve and oversee enrollee
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
satisfaction survey vendors that will
administer enrollee satisfaction surveys
on behalf of QHP issuers. In future
rulemaking, we intend to direct QHP
issuers to contract with HHS-approved
enrollee satisfaction survey vendors to
fulfill the requirements established in
45 CFR 156.200(b)(5). The enrollee
satisfaction survey vendors would need
to be approved by mid-2014 to allow
time for QHP issuers to contract with
these vendors by late 2014, well before
any relevant quality reporting standards
must be implemented. We have
previously stated that quality reporting
standards (including the enrollee
satisfaction survey) would be
implemented in 2016, and available for
consumers to use during 2017 open
enrollment.33 This implementation
timeline is reflective of the earliest
possible time that issuers would be able
to report performance data on their QHP
populations. HHS intends to also utilize
the enrollee satisfaction survey
information to engage in oversight
activities of QHP issuers and in QHP
recertification decisions.
We also intend to establish, in future
rulemaking, that the enrollee
satisfaction survey be modeled on the
CAHPS® Health Plan survey which
typically assesses patients’ satisfaction
with their health care, personal doctors,
and health plans. To administer the
CAHPS® survey to Medicare Parts C and
D enrollees, Medicare Parts C and D
utilize a similar process to the one we
are proposing in § 156.1105 to approve
enrollee satisfaction survey vendors. We
anticipate that enrollee satisfaction
survey vendors would also be
responsible for submitting survey
results directly to HHS and other
entities specified by HHS, such as
Exchanges. We also plan to promulgate
additional quality reporting standards
for QHP issuers and Exchanges. We seek
comment on this proposed approach to
approving and monitoring enrollee
satisfaction survey vendors.
In § 156.1105(a), we propose an
application and approval process for
enrollee satisfaction survey vendors. We
propose that only HHS-approved
enrollee satisfaction survey vendors
could administer the survey on behalf of
QHP issuers. We believe that this
proposed process will help to ensure
that survey results are valid, reliable,
and unbiased. This process would also
allow QHP issuers to easily find
approved vendors since we plan to
publish a list of approved vendors. We
33 General Guidance on Federally-facilitated
Exchanges, May 16, 2012. Available at https://
cciio.cms.gov/resources/files/ffe-guidance-05-162012.pdf.
PO 00000
Frm 00034
Fmt 4701
Sfmt 4702
propose that enrollee satisfaction survey
vendors will be approved for one-year
terms, which could mean that, to
maintain their HHS approval, each
vendor would submit annual
applications to HHS demonstrating that
the vendor meets all of the application
and approval requirements. Survey
vendor application forms will be
developed and released at a later date.
Survey vendors that are not approved by
HHS are invited to re-apply. HHS will
work with those vendors so that they
could meet the standards specified in
§ 156.1105(b) for re-application. We are
also considering developing a process
for revoking HHS approval of vendors
and a related appeals process in future
rulemaking. We seek comment on these
processes.
In paragraph (b), we propose the
standards that an enrollee satisfaction
survey vendor must meet to be
approved by HHS.
We have not proposed specific
minimum business criteria in paragraph
(b)(11) for enrollee satisfaction survey
vendors. However, we intend to align
these criteria with existing criteria set
for Medicare Advantage CAHPS®
Survey vendors, including but not
limited to relevant survey experience
and organizational survey capacity.
Specifically, we are considering the
following criteria: (a) Having at least
two years of experience conducting
similar types of survey administration;
(b) possessing appropriate staff
credentials and expertise to conduct
survey administration; and (c) minimum
facility requirements, such as ability to
store secure data. We seek comment on
these minimum business criteria and
any additional criteria that we should
consider.
Finally, we propose in paragraph (c)
that once HHS has approved enrollee
satisfaction survey vendors, HHS would
publish a list of approved entities on an
HHS Web site.
10. Subpart M—Qualified Health Plan
Issuer Responsibilities
a. Confirmation of HHS Payment and
Collections Reports (§ 156.1210)
We anticipate sending each applicable
issuer a monthly payment and
collections reports that will show, with
respect to certain provisions under Title
I of the Affordable Care Act, payments
HHS owes to the issuer, as well as those
the issuer owes HHS. For the 2014
calendar year, we anticipate this report
will include advance payments of the
premium tax credit and advance
payments of cost-sharing reductions that
HHS is paying to the issuer for each
policy listed on the payment report, any
E:\FR\FM\19JNP3.SGM
19JNP3
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
tkelley on DSK3SPTVN1PROD with PROPOSALS3
amounts owed by the issuer for FFE
user fees, as well as any adjustments
from previous payments under those
programs. Any applicable issuer will
need to review this payment and
collections report against the payments
it expects for each policy based on the
eligibility and enrollment information
transmitted by the Exchange, and, any
amounts it expects HHS to collect for
FFE user fees. In order to ensure
accurate payments and make
adjustments, in § 156.1210, we propose
that, within 15 calendar days of the date
of a payment and collections report, the
issuer would either confirm to HHS that
the payment and collections report
accurately lists payments owed by HHS
and the issuer for the timeframe
specified in the payment and collections
report, or describe to HHS any
inaccuracy it identifies in these amounts
(including incorrect payment amounts,
or extra or missing policies in the
report). These notifications would be
provided in a format specified by HHS.
HHS will work with issuers to resolve
any discrepancies between the amounts
listed in the payment and collections
report and the amounts the issuer
believes it should receive for the time
period specified on the report.
This proposed provision will help
align enrollment and eligibility data
transmitted by the Exchange, payments
provided by and collected by HHS, and
the issuer’s own records of payments
due. In addition to the provisions
proposed in § 156.410 and § 156.460 of
this Part, this proposed provision will
also help ensure that the correct
amounts of advance payments of the
premium tax credit and advance costsharing reductions are paid to issuers on
behalf of eligible individuals. We note
the need to protect enrollees from
unanticipated tax liability that could
result if the advance payments of the
premium tax credit they receive are
greater than the amounts of premium
tax credit available to them. We seek
comment on this provision, and in
particular on the length of time issuers
should have to respond to the payment
and collections report.
b. Direct Enrollment With the QHP
Issuer in a Manner Considered To Be
Through the Exchange (§ 156.1230)
Section 1413 of the Affordable Care
Act directs the Secretary to establish,
subject to minimum requirements, a
streamlined enrollment process for
enrollment in QHPs and all insurance
affordability programs. We anticipate
that many individuals will approach
issuers directly for purposes of QHP
enrollment. Many issuers currently use
their Web sites to enroll individuals into
VerDate Mar<15>2010
19:37 Jun 18, 2013
Jkt 229001
health coverage. Accordingly, consistent
with HHS’s guidance titled ‘‘Affordable
Exchanges Guidance: Letter to Issuers
on Federally-facilitated and State
Partnership Exchanges,’’ 34 we propose
to add paragraph § 156.1230(a)(1)(i) that
would allow, at the Exchange’s option,
a QHP issuer to enroll an applicant who
initiates enrollment directly with the
QHP issuer in a manner that is
considered enrollment through the
Exchange if the QHP issuer follows the
enrollment process for qualified
individuals set forth in § 156.265.
We are also proposing paragraphs
(a)(1)(ii)–(a)(1)(v) whereby QHP issuers
that seek to directly enroll a qualified
individual in a manner considered to be
through the Exchange would be
required to meet certain minimum
consumer protections. The proposed
protections would ensure that
consumers know how to access
available coverage options and are able
to make informed plan selections. We
propose in a new paragraph
§ 156.1230(a)(1)(ii) that QHP issuers that
seek to directly enroll qualified
individuals in a manner considered to
be through the Exchange must provide
applicants the ability to view the QHPs
offered by the issuer with data elements
set forth at 45 CFR 155.205(b)(1). Under
this proposal, QHP issuers would need
to ensure their Web sites provide
standardized comparative information
on each available QHP offered by the
QHP issuer, including premium and
cost-sharing information; the summary
of benefits and coverage established
under section 2715 of the PHS Act;
identification of whether the QHP is a
bronze, silver, gold or platinum metal
level or a catastrophic plan; the results
of the enrollee satisfaction survey, as
described in section 1311(c)(4) of the
Affordable Care Act; quality ratings
assigned in accordance with section
1311(c)(3) of the Affordable Care Act;
MLR information as reported to HHS in
accordance with 45 CFR part 158;
transparency of coverage measures
reported to the Exchange during
certification; and the provider directory
in accordance with § 156.230. We note
that for 2014, the information referenced
in 45 CFR 155.205(b)(1)(iv), (v), and (vii)
will not be required because the
information will not be available.
We also propose in
§ 156.1230(a)(1)(iii) that QHP issuers
that seek to directly enroll qualified
individuals in a manner considered to
34 Affordable Exchanges Guidance: Letter to
Issuers on Federally-facilitated and State
Partnership Exchanges, (April 5, 2013). Available
at: https://www.cms.gov/CCIIO/Resources/
Regulations-and-Guidance/Downloads/
2014_letter_to_issuers_04052013.pdf
PO 00000
Frm 00035
Fmt 4701
Sfmt 4702
37065
be through the Exchange using the
issuer’s Web site must clearly
distinguish between QHPs for which the
consumer is eligible and non-QHPs that
the issuer may offer. We propose that
this distinction must also clearly
articulate that APTC and CSRs apply
only to QHPs offered through the
Exchange.
In addition, in § 156.1230(a)(1)(iv) we
propose that QHP issuers that seek to
directly enroll qualified individuals in a
manner considered to be through the
Exchange be required to notify
applicants of the availability of other
QHP products offered through the
Exchange to consumers, regardless of
whether they apply through a Web site,
in-person or by phone. The QHP issuer
would also be required to display the
Web link to or describe how to access
the Exchange Web site. We seek
comment if HHS should require a
universal disclaimer to be displayed by
the issuer that informs applicants that
other coverage options exist in the
Marketplace and that not all coverage
options are displayed.
In § 156.1230(a)(1)(v) we propose that
a QHP issuer be required to ensure that,
when an applicant initiates enrollment
directly with the QHP issuer and the
QHP issuer seeks to directly enroll the
applicant in a manner considered to be
through the Exchange, the applicant is
allowed to select an APTC amount, if
applicable, in accordance with
§ 155.310(d)(2), provided that the
applicant makes the attestations
required by § 155.310(d)(2)(ii).
In § 156.1230(a)(2) we propose that, if
permitted by the Exchange pursuant to
§ 155.415 of this part, a QHP issuer
seeking to directly enroll applicants in
a manner considered to be through the
Exchange enter into an agreement with
the Exchange prior to allowing any of its
customer service representatives to
assist qualified individuals in the
individual market with: (a) Applying for
an eligibility determination or
redetermination for coverage through
the Exchange; (b) applying for insurance
affordability programs; or (c) facilitating
the selection of a QHP offered by the
issuer represented by the customer
service representative whereby the QHP
issuer would agree to require each of its
customer service representatives to at a
minimum: (i) receive training on QHP
options and insurance affordability
programs, eligibility, and benefits rules
and regulations; (ii) comply with the
Exchange’s privacy and security
standards adopted consistent with
§ 155.260; and (iii) comply with
applicable State law related to the sale,
solicitation, and negotiation of health
insurance products, including
E:\FR\FM\19JNP3.SGM
19JNP3
37066
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
applicable State law related to agent,
broker, and producer licensure;
confidentiality; and conflicts of interest.
We solicit comments on these
proposals.
We also propose to add paragraph
(a)(3) to ensure that the premium that a
QHP issuer charges to a qualified
individual or enrollee is the same as
was accepted by the Exchange in its
certification of the QHP issuer after
accounting for any APTC. We propose
that if the QHP issuer identifies an error
in the amount it has charged the
qualified individual, the QHP issuer
must retroactively correct the error no
later than 30 calendar days after its
discovery. We also propose that for
issuers of QHPs in the FFE, HHS may
review the premiums charged to
qualified individuals through the
compliance reviews proposed in
§ 156.715(a).
Finally, in paragraph (b), we state that
the individual market FFE will permit
the conduct set forth in this section, to
the extent permitted by applicable State
law.
tkelley on DSK3SPTVN1PROD with PROPOSALS3
c. Enrollment Process for Qualified
Individuals (§ 156.1240)
We realize that a segment of the
population that will seek health
insurance coverage through an
Exchange will not have bank accounts
or credit cards, and we have received
numerous questions and comments on
this topic. These people should be able
to access coverage through an Exchange
on the same basis as those with a bank
account or credit card and should not be
unable to access coverage merely due to
the inability to pay their share of the
premium. Therefore, we propose to
require QHP issuers at a minimum
accept a variety of payment formats,
including, but not limited to, paper
checks, cashier’s checks, money orders,
and replenishable pre-paid debit cards,
so that individuals without a bank
account will have readily available
options for making monthly premium
payments. Issuers may also offer
electronic funds transfer from a bank
account and automatic deduction from
a credit or debit card as payment
options. We seek comment on this
proposal and whether other payment
methods should be included.
III. Collection of Information
Requirements
Under the Paperwork Reduction Act
of 1995 (PRA), we are required to
provide 60-day notice in the Federal
Register and solicit public comment
before a collection of information
requirement is submitted to the Office
and Management and Budget (OMB) for
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
review and approval. To fairly evaluate
whether an information collection
should be approved by OMB, section
3506(c)(2)(A) of the Paperwork
Reduction Act of 1995 (PRA) requires
that we solicit comment on the
following issues:
• The need for the information
collection and its usefulness in carrying
out the proper functions of our agency.
• The accuracy of our estimate of the
information collection burden.
• The quality, utility, and clarity of
the information to be collected.
• Recommendations to minimize the
information collection burden on the
affected public, including automated
collection techniques.
The following sections of this
document contain estimates of burden
imposed by the associated information
collection requirements (ICRs);
however, not all of these estimates are
subject to the ICRs under the PRA for
the reasons noted. Salaries for the
positions cited were mainly taken from
the Bureau of Labor Statistics (BLS) Web
site (https://www.bls.gov/oco/
ooh_index.htm).
The salaries for the health policy
analyst and the senior manager were
taken from the Office of Personnel
Management Web site. Fringe Benefits
estimates were taken from the BLS
March 2013 Employer Costs for
Employee Compensation Report.35
B. ICRs Regarding Program Integrity
Provisions Related to State Operation of
the Risk Adjustment Program
(§ 153.310(c)(4) and § 153.310(d)(3)–(4),
and § 153.365)
In § 153.310(c)(4), § 153.310(d)(3)–(4),
and § 153.365 of this proposed rule, we
require a State operating risk adjustment
to: (1) Retain records for a 10-year
period; (2) submit an interim report in
its first year of operation; (3) submit to
HHS and make public a summary report
on program operations for each benefit
year; and (4) keep an accurate
accounting for each benefit year of all
receipts and expenditures related to risk
adjustment payments, charges, and
administrative expenses. Fewer than 10
States have informed HHS that they will
operate risk adjustment for the 2014
benefit year. Since the burden
associated with collections from fewer
than 10 entities is exempt from the PRA
under 5 CFR 1320.3(c)(4) and 44 U.S.C.
3502(3)(A)(i), we are not seeking
approval from OMB for the risk
adjustment information collection
requirements. However, if more than
nine States elect to operate risk
adjustment in the future, we will seek
approval from OMB for these
information collections.
In § 153.260 of this proposed rule, we
direct a State-operated reinsurance
program to: (1) Keep an accurate
accounting of reinsurance contributions,
payments, and administrative expenses;
(2) submit to HHS and make public a
summary report on program operations;
and (3) engage an independent qualified
auditing entity to perform a financial
and programmatic audit for each benefit
year. Fewer than 10 States have
informed HHS that they will operate
reinsurance for the 2014 benefit year.
While these reinsurance records
requirements are subject to the PRA, we
believe the associated burden is exempt
under 5 CFR 1320.3(c)(4) and 44 U.S.C.
3502(3)(A)(i), since fewer than 10
entities would be affected. Therefore,
we are not seeking approval from OMB
for these information collection
requirements.
C. ICRs Regarding Maintenance of
Records for Contributing Entities and
Reinsurance-Eligible Plans (§ 153.405(h)
and § 153.410(c))
In § 153.405(h) and § 153.410(c), we
propose record retention standards for
contributing entities and reinsuranceeligible plans. In proposed § 153.405(h),
we require contributing entities to
maintain documents and records,
whether paper, electronic, or in other
media, sufficient to substantiate the
enrollment count submitted pursuant to
this section for a period of at least 10
years, and must make that evidence
available upon request to HHS, the OIG,
the Comptroller General, or their
designees, to any such entity, for
purposes of verification of reinsurance
contribution amounts. This requirement
may be satisfied if the contributing
entity archives the documents and
records and ensures that they are
accessible if needed in the event of an
investigation or audit.
We estimate that 26,200 contributing
entities will be subject to this
requirement, based on the Department
of Labor’s (DOL) estimated count of selfinsured plans and the number of fully
insured issuers that we estimate will
make reinsurance contributions.36 We
35 BLS March 2013 Employer Costs for Employee
Compensation Report (March 12, 2013). Available
at https://www.bls.gov/news.release/ecec.toc.htm
36 We use an estimate of self-insured entities
published by the DOL in the March 2013 ‘‘Report
to Congress: Annual Report of Self-insured Group
A. ICRs Regarding Program Integrity
Provisions Related to State Operation of
the Reinsurance Program (§ 153.260)
PO 00000
Frm 00036
Fmt 4701
Sfmt 4702
E:\FR\FM\19JNP3.SGM
19JNP3
tkelley on DSK3SPTVN1PROD with PROPOSALS3
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
believe that most of these contributing
entities will already have the systems in
place for record maintenance, and that
the additional burden associated with
this requirement is the time, effort, and
additional labor cost required to
maintain the records. On average, we
estimate that it will take each
contributing entity approximately 5
hours annually to maintain records. We
estimate that it will take an insurance
operations analyst 5 hours (at $38.49 an
hour) to meet these requirements. On
average, the cost for each contributing
entity would be approximately $192.45
annually. Therefore, for 26,200
contributing entities, we estimate an
aggregate burden of $5,042,190 and
131,000 hours as a result of this
requirement.
In proposed § 153.410(c), we require
issuers of reinsurance-eligible plans to
maintain documents and records,
whether paper, electronic, or in other
media, sufficient to substantiate the
requests for reinsurance payments made
pursuant to this section for a period of
at least 10 years, and must make that
evidence available upon request to HHS,
the OIG, the Comptroller General, or
their designees, (or, in the case of a State
operating reinsurance, the State or its
designees), to any such entity, for
purposes of verification of reinsurance
payment requests. We estimate that
1,900 issuers of reinsurance-eligible
plans will be subject to this
requirement, based on HHS’s most
recent estimate of the number of fully
insured issuers that will submit requests
for reinsurance payments. On average,
we estimate that it will take each issuer
of a reinsurance-eligible plan
approximately 10 hours annually to
maintain records. We estimate that it
will take an insurance operations
analyst 10 hours (at $38.49 an hour) to
meet these requirements. On average,
the cost estimate for each issuer is
approximately $384.90 annually.
Therefore, for 1,900 issuers, we estimate
an aggregate burden of $731,310 and
19,000 hours as a result of this
requirement.
The burden estimates for these two
recordkeeping requirements are broad
estimates that include not only the
maintenance of data, but all records and
documents that may be necessary to
substantiate the enrollment count and
requests for reinsurance payments made
pursuant to 45 CFR 153.405 and
153.410, respectively. Because the scope
of these requirements is substantially
Health Plans,’’ which reflects only those selfinsured health plans (including 19,800 self-insured
plans and 4,000 plans that mixed self-insurance and
insurance) that are required to file a Form 5500
with the DOL.
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
less than the scope of the recordkeeping
requirement applicable to a State
operating reinsurance, these estimates
are lower than those that were set forth
for State-operated reinsurance programs
record maintenance requirement (45
CFR 153.240(c)) in the Premium
Stabilization Rule published March 23,
2012 (77 FR 17220), and the associated
information collection request approved
under OMB Control Number 0938–1155.
We note that we will account for the
additional burden associated with
submitting this information to HHS in a
future information collection request
that will go through the requisite notice
and comment period and subsequent
OMB review and approval process.
D. ICRs Related to Ability of States To
Permit Agents and Brokers To Assist
Qualified Individuals, Qualified
Employers, or Qualified Employees
Enrolling in Qualified Health Plans in
the Federally-Facilitated Exchange
(§ 155.220)
Section 155.220 authorizes HHS to
terminate an agent’s or broker’s
agreement with an FFE if HHS
determines that the agent or broker is
out of compliance with the standards
outlined in 45 CFR 155.220. Section
155.220(g) sets forth the process
whereby an agent or broker can request
reconsideration of HHS’s termination.
Specifically, the agent or broker must
submit the request for reconsideration
within 30 calendar days of receipt of the
date of the notice of termination.
The burden estimates for the reporting
requirements in § 155.220 reflect our
assumption that there will be 254,095
agents and brokers registered in an FFE.
The NAIC indicates that there are
between 600,000 and 700,000 total
licensed brokers selling health
insurance at any point in time in the
United States. We selected the
midpoint, 650,000, as our estimate of
the number of licensed brokers. We
estimate that 37 percent of these brokers
are in States with State Exchanges. This
means an estimated 63 percent, or
409,500, are in FFE States. We estimate
that 85 percent, or 348,000, will be
registered in an FFE. States have
traditionally overseen agents and
brokers in the health insurance market
and we expect that States will continue
in that regulatory role and be the
primary regulator of agents and brokers
in their respective States. Given that our
oversight of agents and brokers will be
narrowly tailored to FFE-specific
standards, we expect terminations to be
infrequent, especially in the first plan
year. For purposes of this burden
estimate, we assume that two agents or
brokers will have their access
PO 00000
Frm 00037
Fmt 4701
Sfmt 4702
37067
suspended or revoked and that both
agents or brokers will appeal these
actions. We solicit comments on these
assumptions.
As stated in § 155.220(g)(2), an agent
or broker may submit a request for
reconsideration of any termination
decision by HHS within 30 calendar
days of notification of the decision. We
assume the need to terminate an agent’s
or broker’s agreement with an FFE will
occur only rarely. For purposes of this
initial burden estimate we estimate that
revocation notices will be sent to 2
agents or brokers each year. The hour
burden associated with this action is the
time and effort needed by the agent or
broker to create the written request and
submit it electronically to HHS. The
associated costs are labor costs for
gathering the necessary background
information and then preparing and
submitting the request.
We assume that all agents and brokers
who receive a notice of termination will
submit a request for reconsideration. We
expect the request to address the issues
presented in the original notice of
termination from HHS. The hours
involved in preparing and submitting
this request may vary. For the purpose
of this burden estimate we estimate that
it will take 18 hours for an agent or
broker to prepare and submit this
request: 10 hours (at $28.81 an hour) for
the brokerage clerk to gather and
assemble necessary background
materials and 8 hours (at $41.15 an
hour) for the agent or broker to prepare
the written request and submit it
electronically. This is a total of 18 hours
annually at a cost of $617.30 per agent
or broker. Therefore, we estimate an
aggregate burden of 36 hours at a cost
of $1,234.60 for the two agents or
brokers. We solicit comments on these
estimates.
E. ICRs Related to the Eligibility Process
(§ 155.310)
Section § 155.310(k) provides that if
an Exchange does not have enough
information to conduct an eligibility
determination for advance payments of
the premium tax credit or cost-sharing
reductions, the Exchange must provide
notice to the applicant regarding the
incomplete application. We anticipate
that this notice requirement is not a
separate notice to an individual but text
within the eligibility determination
notice described in § 155.310(g) and
discussed in a separate information
collection request that is associated with
the notice of proposed rulemaking that
published on January 22. 2013 (78 FR
4594). We therefore do not include a
separate burden estimate to develop this
notice but the time and cost associated
E:\FR\FM\19JNP3.SGM
19JNP3
37068
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
tkelley on DSK3SPTVN1PROD with PROPOSALS3
with this notice is included within the
estimate in § 155.310(g).
Section 155.310(k)(2) provides that
the Exchange must provide the
applicant with a period of no less than
15 days and no more than 90 days from
the date on which the notice is sent to
the applicant to provide the information
needed to complete the application to
the Exchange.
Given the fact that the Exchange
eligibility process is entirely new and
involves the use of new electronic data
sources in combination with a new
application, it is not possible to provide
estimates for the number of applicants
for whom we expect to have an
incomplete application. However, we
anticipate that this number will
decrease as applicants become more
familiar with the eligibility process, as
more data become available
electronically, and as customer service
resources evolve based on experience.
Therefore, we estimate the time and
effort for one individual to comply with
this provision. We expect that this will
take an individual one hour to gather
the relevant documentation and enter
the missing information online or
contact the call center to provide the
necessary information. Our estimate that
it will take an individual one hour to
gather the relevant documentation
depends on whether or not the
individual already has the necessary
documentation on hand, or whether the
documents are presently unavailable
and the individual needs to spend
additional time to gather the
documentation. As such, it could take
significantly less time if an individual
already had the documents on hand, or
potentially more time if certain
documents were unavailable at the time
an individual needed to complete the
application.
F. ICRs Related to Oversight and
Financial Integrity Standards for State
Exchanges (§ 155.1200 to § 155.1210)
In subpart M of part 155, we describe
the information collection and thirdparty disclosure standards related to the
oversight and financial integrity of State
Exchanges.
Section 155.1200(a)(1)–(3) requires
the State Exchange to follow GAAP and
to monitor and report to HHS all
Exchange-related activities. This
includes keeping an accurate accounting
of all Exchange receipts and
expenditures. The burden associated
with this reporting requirement is the
time and effort needed to develop and
submit Exchange-related activities to
HHS. The State Exchanges will
electronically maintain the information
as a result of normal business practices;
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
therefore, the burden does not include
the time and effort needed to maintain
the Exchange-related activity
information. State Exchanges most
likely will already have accounting
systems in place to store accounting
information. The burden associated
with this requirement includes a
computer programmer taking 8 hours (at
$48.61 an hour) to modify the system to
maintain and monitor the information
required under § 155.1200(a)(1) through
(3), an analyst taking 8 hours (at $58.05
an hour) to pull the necessary data
under § 155.1200(a)(1) through (3) in the
State Exchange accounting system, and
a senior manager taking 2 hours (at
$77.00 an hour) to oversee the
development and transmission of the
reported data. We estimate that it will
take 18 total hours at a cost of $1,007.28
for each State Exchange. We estimate
the total burden to be 324 hours for a
total cost of $18,131.04 for all State
Exchanges.
Section 155.1200(b)(1) requires the
State Exchange to submit a financial
statement, in accordance with GAAP to
HHS. The information under
§ 155.1200(b) must be submitted at least
annually by April 1 to HHS and must
also be publicly displayed. The burden
associated with this reporting
requirement is the time and effort
needed to develop and submit the
financial statement to HHS. The State
Exchanges will electronically submit the
information. Therefore, the burden is
the time and effort needed to develop
and publically display the financial
statement. The State Exchanges will
electronically maintain the information
as a result of normal business practices,
therefore the burden does not include
the time and effort needed to develop
and maintain the financial information.
The burden associated with this
requirement includes a computer
programmer taking 40 hours (at $48.61
an hour) to design the financial
statement report, an analyst taking 8
hours (at $58.05 an hour) pulling the
necessary data and inputting it into the
financial statement report, and a senior
manager taking 2 hours (at $77.00 an
hour) overseeing the development and
transmission of the reported data. We
estimate a burden of 50 total hours for
each State Exchange at a cost of
$2,562.80, for a total cost of $45,410.40
for all Exchanges.
Section 155.1200(b)(2) requires the
State Exchange to submit eligibility and
enrollment reports to HHS. The State
Exchanges will electronically maintain
the information as a result of normal
business practices, therefore the burden
does not include the time and effort
required to develop and maintain the
PO 00000
Frm 00038
Fmt 4701
Sfmt 4702
source information. The burden
associated with this reporting
requirement includes the time and effort
necessary for a computer programmer
taking 40 hours (at $48.61 an hour) to
design the report template, an analyst
taking 8 hours (at $58.05 an hour) to
compile the statistics for the report for
submission to HHS, a privacy officer
taking 8 hours (at $64.98 an hour) and
senior manager taking 2 hours (at $77.00
an hour) overseeing the development
and submission of the reported data.
The burden also includes the time and
effort necessary to post the data on the
State Exchange Web site. We estimate
an initial year burden of 58 hours at a
cost of $3,082.64 to each State Exchange
and a total burden of 1,044 hours at a
cost of $55, 487.52 for all State
Exchanges.
As discussed in § 155.1200(b)(3), the
State Exchange will report performance
monitoring data to HHS. The
performance monitoring data includes
information on financial sustainability,
operational efficiency, and consumer
satisfaction which will be reported on
an annual basis. The State Exchanges
will electronically maintain the
information as a result of normal
business practices developed under
Establishment Grants from HHS for this
purpose. Therefore the burden does not
include the time and effort needed to
develop and maintain the performance
data. The burden associated with
meeting the reporting requirement
includes the time and effort necessary
for a computer programmer taking 40
hours (at $48.61 an hour) to design the
report, for an analyst taking 12 hours (at
$58.05 an hour) to pull data into the
report and prepare for submission to
HHS and for a senior manager taking 2
hours (at $77.00 an hour) to oversee the
development and transmission of the
reported data. Section 155.1200(b)
requires the State Exchange to submit to
HHS and to display publicly financial,
eligibility and enrollment reports and
performance data at least annually. For
those measures reported annually, we
estimate that in the initial year a burden
of 54 hours for the State Exchanges at
a cost of $2,795.00 each and a total
burden of $50,031.00.
Section 155.1200(c)(1) through (3)
direct the State Exchange to engage an
independent audit/review organization
to perform an external financial and
programmatic audit of the State
Exchange. The State Exchange must
provide the results of the audit and
identify any material weakness or
significant deficiency and any intended
corrective action. The burden associated
with meeting this third party disclosure
requirement includes the burden for an
E:\FR\FM\19JNP3.SGM
19JNP3
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
tkelley on DSK3SPTVN1PROD with PROPOSALS3
analyst level employee taking 3 hours
(at $48.61 an hour) to pull data into a
report, the time and effort necessary for
a health policy analyst taking 2 hours (at
$58.05 an hour) to prepare the report of
the audit results, and the time for senior
management taking 1 hour (at $77.00 an
hour) to review and submit to HHS. We
estimate a burden of 6 hours for each
State Exchange at a cost of $338.93 and
a total burden of $6,100.74.
As stated in § 155.1210(a), the State
Exchange and its contractors and
subcontractors must maintain for 10
years, books, records, documents, and
other evidence of accounting procedures
and practices. Section 155.1210(b)
specifics the records contain
information concerning management
and operation of the State Exchange’s
financial and other record keeping
systems. The records must include
financial statements, including cash
flow statements, and accounts
receivable and matters pertaining to the
costs of operation. Additionally, the
records must contain any financial
report filed with other Federal programs
or State authorities. Finally, the records
must contain data and records relating
to the State Exchange’s eligibility
verifications and determinations,
enrollment transactions, appeals, plan
variation certifications, QHP contracting
data, consumer outreach, and Navigator
grant oversight information. State
Exchanges most likely already have
systems in place to store records. The
burden associated with this record
keeping requirement includes the time
and effort necessary for a network
administrator taking 16 hours (at $46.86
an hour) to modify the State systems to
maintain the information required
under § 155.1210(b), for a health policy
analyst taking 8 hours (at $58.05 an
hour) to enter the data under
§ 155.1210(b) into the State Exchange
record retention system, and for senior
management taking 2 hours (at $73.41
an hour) to oversee record collection
and retention. We estimate that it will
take 26 hours for the State Exchange to
comply with this requirement for a total
of 468 hours. We estimate one year
burden for the State Exchanges at a cost
of $1360.98 each and a total burden of
$24,497.64.
G. ICRs Related to Change of Ownership
(§ 156.330)
The QHP issuer must notify HHS of
the change in a manner to be specified
by HHS and provide the legal name and
tax identification number of the new
owner of the QHP and the effective date
of the change of ownership. The
information must be submitted at least
30 days prior to the effective date of the
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
change of ownership. The burden
associated with the QHP issuer
notifying HHS of a change of ownership
includes a health policy analyst taking
1 hour to draft a notice of change of
ownership and 1 one hour for a senior
manager to review the notice and
transmit it electronically to HHS. We
estimate that it will cost a QHP issuer
$128.43 to comply with this reporting
requirement. At this time, we cannot
estimate the number of QHP issuers that
will be reporting changes of ownership.
When it becomes clearer as to the
potential number that may report a
change of ownership, we will update
our estimates to reflect the potential
number.
H. ICRs Related to Oversight of CostSharing Reductions and Advance
Payments of the Premium Tax Credit
(§ 156.480)
In proposed § 156.480(a), we propose
to extend the standards set forth in
proposed § 156.705 concerning
maintenance of records to a QHP issuer
in the individual market on State
Exchange with respect to cost-sharing
reductions and advance payments of the
premium tax credit. We believe that the
burden of maintaining records related to
cost-sharing reductions and advance
payments of the premium tax credit for
QHP issuers in an FFE is already
accounted for in the burden for
proposed § 156.705, described
elsewhere in the Collection of
Information section of this proposed
rule. On average, we estimate each QHP
issuer in a State Exchange will incur a
cost of approximately $2,232.54 to
comply with this record maintenance
requirement. This reflects 46 hours of
work by an insurance operations analyst
(at $38.49 an hour) and 6 hours by a
senior manager (at $77 an hour), for a
total of 52 burden hours. Based on our
most recent estimates, we assume that
there will be approximately 791 QHP
issuers in the individual market on State
Exchanges in 2014. Therefore, we
estimate an aggregate burden of 41,132
hours and a total cost of approximately
$1,765,939.10 as a result of this
requirement.
In § 156.480(b), we propose that, for
each benefit year, an issuer that offers a
QHP in the individual market through a
State Exchange or an FFE report to HHS
annually, in a timeframe and manner
required by HHS, summary statistics
with respect to cost-sharing reductions
and advance payments of the premium
tax credit. This proposed provision will
permit HHS to obtain critical
information regarding cost-sharing
reductions and advance payments of the
premium tax credit across a broad range
PO 00000
Frm 00039
Fmt 4701
Sfmt 4702
37069
of issuers to identify systemic problems
and errors, without requiring intrusive
annual investigations. We believe that
QHP issuers will already have the
information and data systems in place
necessary to generate a summary report,
and that there will only be a small
additional burden as a result of this
submission requirement. We estimate
that it will take an insurance operations
analyst 16 hours (at $38.49 an hour)
annually and one senior manager 2
hours (at $77 an hour) to gather
summary information and prepare a
report for submission to HHS.
Therefore, we estimate an additional
burden of 21,600 hours and total costs
of approximately $923,808 for 1,200
QHP issuers ($769.84, on average, for
each QHP issuer) as a result of this
requirement.
I. ICRs Related to Oversight and
Financial Integrity Standards for Issuers
of Qualified Health Plans in the
Federally-Facilitated Exchange
(§ 156.705 to § 156.715)
The burden estimates for the
collections of information in Part 156,
Subpart H, of the regulation reflect the
assumption that an FFE will include
409 QHP issuers. The labor categories
and salary estimates used to calculate
the cost burden of these collections on
issuers are derived from the Bureau of
Labor Statistics’ (BLS) May 2012
Occupational Employment Statistics
data for selected occupations. These
burden estimates generally reflect
burden for the first year. We anticipate
that the burden in subsequent years will
be significantly lower because issuers
will have met many of the requirements
in the regulation, including developing
automated processes that will reduce
the total time, effort, and financial
resources they need to expend in order
to respond to the collections in this
subpart. For this reason, these estimates
should be considered an upper bound of
burden for issuers.
Section 156.705 provides that issuers
offering QHPs in an FFE must maintain
all documents and records (whether
paper, electronic or other media), and
other evidence of accounting procedures
and practices necessary for HHS to
conduct activities necessary to
safeguard the financial and
programmatic integrity of the FFEs.
Such activities include: (1) Periodic
auditing of the QHP issuer’s financial
records, including data related to the
QHP issuer’s ability to bear the risk of
potential financial losses; and (2)
compliance reviews and other
monitoring of a QHP issuer’s
compliance with all Exchange standards
applicable to issuers offering QHPs in
E:\FR\FM\19JNP3.SGM
19JNP3
tkelley on DSK3SPTVN1PROD with PROPOSALS3
37070
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
the FFEs listed in part 156. These
standards are limited to Exchangespecific records as applicable to the
FFEs, and are not enforced by States as
primary regulators. This standard
mirrors the maintenance of records
standard applicable to State Exchanges
and set forth in § 155.1210. The burden
includes utilizing existing technology
and systems to process and maintain
this information. We estimate that it
will take 100 hours at a cost of
$4,420.60 for a QHP issuer to maintain
these records for a total of 30,000 hours
and $1,326,180.00.
Section 156.705(d) provides that QHP
issuers must make all records described
in paragraph (a) of this section available
to HHS, the OIG, the Comptroller
General, or their designees, upon
request. In estimating the annual hour
and cost burden on QHP issuers of
making these records available to such
authorities upon request, we assumed
that such requests would normally be
made in connection with a formal audit
or compliance review or a similar
process. Our burden estimates for this
section address the hour and cost
burden of making records available to
HHS, the OIG, the Comptroller General,
or their designees, for audit. Our
estimates reflect our assumptions that
about 47 QHP issuers would be subject
to a formal audit in a given year and that
the burden on issuers of making the
records available would include the
time, effort, and associated cost of
compiling the information, reviewing it
for completeness, submitting it to the
auditor(s), and participating in
telephone or in-person interviews. We
anticipate using a risk-based approach
to selection of the majority of QHP
issuers for compliance review so that
burdens to the issuer community would
generally be linked to the QHP issuers’
risk. We estimate it will take 90 hours
at a cost of $4,221.20 for an issuer to
make their records available for an audit
for a total of 9,000 hours and
$422,120.00 across all QHP issuers
subject to this requirement, which we
estimate at an upper end as 100 issuers.
Section 156.715 establishes the
general standard that QHP issuers are
subject to compliance reviews. Our
burden estimates for § 156.715 address
the estimated annual hour and cost
burden on QHP issuers of complying
with the records disclosure
requirements associated with
compliance reviews conducted by an
FFE.
Section 156.715 provides standards
for compliance reviews in the FFEs,
stating that QHP issuers offering QHPs
in the FFEs may be subject to
compliance reviews. This section also
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
describes the categories of records and
information issuers must make available
to an FFE in conducting such reviews.
Compliance reviews evaluate a QHP
issuer’s compliance with the Affordable
Care Act and applicable regulations.
Compliance reviews will target high-risk
QHP issuers and not every issuer will be
reviewed each year. The results of
compliance reviews will also provide
insight into trends across the
compliance statuses of QHP issuers,
enabling HHS to prioritize areas of
oversight and technical assistance.
We assume that HHS will conduct
desk reviews of 31 QHP issuers each
year. For each QHP issuer desk review
we estimate an average of 40 hours for
administrative work to assemble the
requested information, 19.5 hours to
review the information for
completeness, and 30 minutes to submit
the information to HHS. There will also
be an additional 10 hours to spend on
phone interviews conducted by the
reviewer and 2 hours to spend speaking
through processes with the reviewer.
We estimate it will take 72 hours at a
cost of $2,877.40 for an issuer to make
information available to HHS for a desk
review for a total of 2,232 hours and
$89,199.40 across all issuers that may be
subject to this information collection
requirement.
We assume that HHS will conduct
onsite reviews of 16 QHP issuers each
year. For each onsite review we estimate
it will take an average of 40 hours for
administrative work to assemble the
requested information, 19.5 hours to
review the information for completeness
and 30 minutes to submit the
information to HHS in preparation for
an onsite review. An onsite review
requires an additional 2 hours to
schedule the onsite activities with the
compliance reviewer, 4 hours for
introductory meeting, 8 hours to tour
reviewers onsite, 10 hours of interview
time, 2 hours to walk through processes
with the reviewer, and 4 hours for
concluding meetings. This is a total of
approximately 60 hours of preparation
time and an additional 30 hours for
onsite time for each QHP. We estimate
it will take 90 hours at a cost of
$3,566.84 for an issuer to make
information available to HHS for an
onsite review. We estimate that the
burden for all respondents that may be
subject to this information collection
will be 1,440 hours at a cost of
$57,069.44.
In cases in which HHS could
potentially require clarification around
submitted information, HHS may need
to contact QHP issuers within 30 days
of information submission. This would
be the case for approximately 20 issuers.
PO 00000
Frm 00040
Fmt 4701
Sfmt 4702
We estimate it will take an issuer 2
hours at a cost of $53.75 to respond to
questions for a total of 40 hours and
$1,075.00.
J. ICRs Regarding Enforcement
Remedies in Federally-Facilitated
Exchanges (§ 156.800 to § 156.810)
Subpart I of Part 156 discusses the
enforcement remedies in the FFEs.
Section 156.800 authorizes HHS to
impose sanctions on QHP issuers in an
FFE that are not in compliance with
Federal standards. These sanctions may
be in the form of a CMP, as set forth in
§ 156.805; or decertification of QHPs, as
set forth in § 156.810. The burden
estimates for the collections of
information in this Part reflect our
assumption that there will be 409 QHP
issuers and 12,000–18,000 QHPs in all
FFEs.
Section 156.805(a) sets forth the
general process and bases for imposing
a CMP on issuers offering QHPs in an
FFE. As explained in the preamble to
Subpart I, HHS intends to work
collaboratively with QHP issuers, where
possible, especially during the first plan
year, when problems arising concerning
compliance with applicable standards.
CMPs will be imposed only for serious
issues of non-compliance. We expect to
provide technical assistance to issuers,
as appropriate, to assist them in
maintaining compliance with the
applicable standards. We also plan to
coordinate with States in our oversight
and enforcement activities to avoid
inappropriately duplicative enforcement
efforts. Consequently, we anticipate that
CMPs will be rare, especially in the first
benefit year. For purposes of calculating
the estimated burden, we assume that
one issuer each year will be subject to
a CMP and that the issuer will request
an appeal of the enforcement action. We
seek comment on these assumptions.
Section 156.810 sets forth the bases
for the decertification of a QHP in an
FFE and the general process for
decertification. As with CMPs, HHS
expects that decertification will be
relatively infrequent, and reserved for
only serious instances of noncompliance with applicable standards.
Therefore, for purposes of this estimated
burden, we assume that only one QHP
in an FFE will be decertified each year.
We assume that the issuer offering the
decertified QHP will appeal the
decertification action. We solicit
comments on these assumptions.
Because we anticipate that fewer than
10 issuers would be subject to a
decertification or CMP in a given year,
we have not calculated a burden
estimate. If the number of issuers
approaches 10, we will submit a burden
E:\FR\FM\19JNP3.SGM
19JNP3
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
tkelley on DSK3SPTVN1PROD with PROPOSALS3
estimate at that time. We solicit
comments on this section and these
assumptions.
K. ICRs Regarding Administrative
Review of QHP Issuer Sanctions in a
Federally-Facilitated Exchange
(§ 156.901 to § 156.963)
Subpart J of Part 156 sets forth the
administrative process for issuers
subject to a CMP or decertification of a
QHP offered by the issuer to appeal the
enforcement action. In this process, an
ALJ decides whether there is a basis for
HHS to assess a CMP against the issuer
and whether the amount of an assessed
penalty is reasonable, or whether there
is a basis for decertifying a QHP offered
by the issuer, as applicable. Section
156.905 (intended to parallel 45 CFR
150.405) provides that a party has a
right to a hearing before an ALJ if it files
a valid request for a hearing within 30
days after the date of issuance of HHS’s
notice of proposed assessment
decertification. An issuer’s request for a
hearing must include the information
listed in § 156.907.
The burden associated with this
request includes the time and effort
needed by the issuer to create the
written request and submit it
electronically to the appropriate entity.
The associated costs are labor costs for
gathering the necessary background
information and then preparing and
submitting the written statement. The
burden estimates for the collections of
information in Part 156, Subpart J, of the
regulation reflect the assumption that
there will be a total of 409 QHP issuers
in all FFEs.
We base our burden estimate on the
assumptions that one issuer will be
subject to CMPs and that one issuer will
have a QHP that it offers in an FFE
decertified. We assume that both issuers
will choose to exercise their right to a
hearing and will submit a valid request
for hearing. The hours involved in
preparing this request may vary; for the
purpose of this burden estimate we
estimate an average of 24 hours will be
needed: 10 hours for the compliance
officer to gather and assemble necessary
background materials and prepare the
written request, 12 hours for an attorney
to review the background materials and
written request and provide
recommendations to the senior manager,
and 2 hours for the senior manager to
discuss the attorney’s recommendations
and submit the written request
electronically. We estimate that it will
take 24 hours at a cost of $1,649.02 for
an issuer to prepare and submit a
request for a hearing for a total of 48
hours and $3,298.04for both issuers.
This estimate includes any statement of
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
good cause under § 156.805(e)(3), if
applicable. We solicit comments on
these assumptions.
As stated in § 156.905, an issuer has
the right to a hearing before an ALJ if
the issuer files a request for a hearing
that complies with § 156.907(a) within
30 days of the issuance of a notice of
proposed assessment or decertification
from HHS under § 156.805 or § 156.810.
The request for a hearing must identify
any factual or legal bases for the
assessment or decertification with
which the issuer disagrees. It must also
describe with reasonable specificity the
basis for the disagreement, including
any affirmative facts or legal arguments
on which the respondent is relying. The
request must also identify the relevant
notice of assessment or decertification
by date and attach a copy of the notice.
An issuer’s request for a hearing must
include the information listed in
§ 156.907. The burden associated with
this request includes the time and effort
needed by the issuer to create the
written request and submit it
electronically to the appropriate entity.
The only associated costs are labor costs
for gathering the necessary background
information and then preparing and
submitting the written request.
Because we only estimate that one
issuer per year would appeal a CMP and
one issuer will have its QHP offered in
an FFE decertified, we do not include
this burden estimate in our overall
calculation of burden for this proposed
rule. We seek comment on this
assumption.
L. ICRs Regarding Consumer Cases
Related to Qualified Health Plans and
Qualified Health Plan Issuers
(§ 156.1010)
In subpart K of part 156, we describe
the information collection requirements
that pertain to the resolution of
consumer cases related to QHPs and
QHP issuers. Section 156.1010(e) states
that QHP issuers must record a clear
and concise narrative documenting the
resolution of a consumer case in the
HHS-developed casework tracking
system. The burden associated with this
requirement is the time and effort
necessary for a QHP issuer to gather the
necessary information related to the
consumer complaint, draft the narrative,
and enter the narrative into the
electronic HHS-developed case tracking
system. For the purpose of estimating
burden, we estimate 1,200 issuers. We
estimate that it will take approximately
60 hours annually at a cost of $8,580.87
for the time and effort to develop and
submit the narrative to HHS for a total
of 72,000 hours and a cost of
$10,297,044.00 for all respondents.
PO 00000
Frm 00041
Fmt 4701
Sfmt 4702
37071
M. ICRs Related to Quality Standards
(§ 156.1105)
In subpart L of part 156, we describe
the information collection and
disclosure requirements that pertain to
the approval of enrollee satisfaction
survey vendors. The burden estimate
associated with these disclosure
requirements includes the time and
effort required for survey vendors to
develop, compile, and submit the
application information and any
documentation necessary to support
oversight in the form and manner
required by HHS. HHS is developing a
model enrollee satisfaction survey
vendor application that will include
data elements necessary for HHS review
and approval. In the near future, HHS
will publish the model application and
will solicit public comment. At that
time, and per the requirements outlined
in the PRA, we will estimate the burden
on survey vendors for complying with
this provision of the regulation. We
solicit comment on the burden for the
application and review process for these
entities.
N. ICRs Related to Confirmation of
Payment and Collection Reports
(§ 156.1210)
In § 156.1210, we propose that, within
15 calendar days of the date of a
payment and collections report from
HHS, the issuer must, in a format
specified by HHS, either confirm to
HHS that the payment and collections
report accurately lists for the timeframe
specified in the report applicable
payments owed by the issuer to HHS
and the payments owed to the issuer by
HHS; or describe to HHS any inaccuracy
it identifies in the payment and
collections report. We believe that
issuers will generally be able to perform
this confirmation automatically, and
that there will only be a small
additional burden as a result of this
requirement. We estimate that it will
take an insurance operations analyst 1
hour (at $38.49 an hour) monthly to
make the comparison and note any
discrepancies to HHS (approximately
$461.88 for each issuer annually). Based
on our most recent estimates, we believe
that 2,400 issuers will be affected by
this requirement, resulting in aggregate
burden of approximately $1,108,512.
O. ICRs Related to Enrollment Process
for Qualified Individuals (§ 156.1230)
Proposed § 156.1230(a)(1)(ii) would
require issuers who pursue the option to
use their Web site to enroll qualified
individuals into QHPs directly, to
provide information on available QHPs.
The QHP information required to be
E:\FR\FM\19JNP3.SGM
19JNP3
tkelley on DSK3SPTVN1PROD with PROPOSALS3
37072
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
posted on the Web site would include
premium and cost-sharing information,
the summary of benefits and coverage,
levels of coverage (‘‘metal levels’’) for
each QHP, results of the enrollee
satisfaction survey, quality ratings,
medical loss ratio information,
transparency of coverage measures, and
a provider directory. Under proposed
§ 156.1230(a)(1)(i), an issuer would also
be required to direct an individual to
complete an application with the
Exchange and receive eligibility
determinations from the Exchange to
allow for an accurate plan selection
process. Additionally,
§ 156.1230(a)(1)(iv) would require the
issuer Web site to inform applicants
about the availability of other QHP
products available through an Exchange
and to display a Web link to the
appropriate Exchange Web site. Finally,
an issuer would submit enrollment
information back to the Exchange.
The burden for this requirement
would be for the issuer to develop its
own template and code and integrate it
with the Exchange. After this initial
step, the burden on the issuer would be
to maintain the Internet Web site by
populating the Web site with
information collected per information
collection requirements in this rule and
future rulemaking by HHS. We do not
have an estimate on the number of
issuers who will choose to utilize the
direct to enrollment approach subject to
these third-party disclosure
requirements. We estimate that it will
take 610 hours at a cost of $32,104.25
for an issuer to meet these third-party
disclosure requirements.
Proposed § 156.1230(a)(2) would
allow qualified individuals to apply for
an eligibility determination or
redetermination for coverage through
the Exchange and insurance
affordability programs, and select QHPs
with the assistance of an issuer
customer service representative if the
issuer customer service representative
complies with the terms of an agreement
between the issuer and the Exchange.
The agreement would ensure that an
issuer customer service representative
receives training and provide additional
standards governing the conduct of
issuer customer service representatives.
The burden for this requirement
would include the time and effort
necessary to develop training materials
for the customer service representative
and the time and effort necessary to
amend the agreement between the issuer
and the Exchange if the Exchange
implements this provision.
The Exchange would be required to
develop training materials for issuer
staff. We assume that the 18 State
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
Exchanges will implement this
standard. However, we expect
Exchanges would use training materials
that will either be developed by HHS for
other types of assister training,
including agent/broker training or use
their own training materials that they
have already developed for other
assisters. Therefore, we anticipate that
the time and costs associated with
developing a training program for
issuers will be minimal. We estimate it
will take a training specialist 10 hours
at $26.64 an hour and a training and
development manager 5 hours at $64.43
an hour to develop training materials for
the customer service representative, for
a total time burden of 15 hours. The
estimated cost burden for developing
training materials for issuer customer
service representatives for each
Exchange is therefore $588.55 with a
total cost of $10,593.90 across all
respondents if 18 State Exchanges
undertake these activities.
As specified in § 156.1230(a)(2), each
Exchange would amend its agreement
with every issuer wanting its staff to
assist consumers. We assume that the 18
State Exchanges will implement this
standard. We estimate it will take a
health policy analyst 20 hours at $49.35
an hour and a senior manager 10 hours
at $79.08 an hour to amend an
agreement with the issuer, for a total
time burden of 30 hours. The estimated
burden for amending the agreements for
each Exchange is therefore 30 hours at
a cost of $1,777.87 and a total cost of
$32,001.66.
If you comment on these information
collection and recordkeeping
requirements, please do either of the
following:
1. Submit your comments
electronically as specified in the
ADDRESSES section of this proposed rule;
or
2. Submit your comments to the
Office of Information and Regulatory
Affairs, Office of Management and
Budget, Attention: CMS Desk Officer,
[CMS–9957–P], Fax: (202) 395–6974; or
Email: OIRA_submission@omb.eop.gov.
IV. Response to Comments
Because of the large number of public
comments we normally receive on
Federal Register documents, we are not
able to acknowledge or respond to them
individually. We will consider all
comments we receive by the date and
time specified in the DATES section of
this preamble, and, when we proceed
with a subsequent document, we will
respond to the comments in the
preamble to that document.
PO 00000
Frm 00042
Fmt 4701
Sfmt 4702
V. Regulatory Impact Analysis
In accordance with the provisions of
Executive Order 12866, this rule was
reviewed by the OMB.
A. Summary
As stated earlier in this preamble, this
proposed rule sets financial integrity
and oversight standards with respect to
Exchanges; QHP issuers in an FFE; and
States in regards to the operation of risk
adjustment and reinsurance. It also
proposes additional standards for
special enrollment periods; survey
vendors that may conduct enrollee
satisfaction surveys on behalf of QHP
issuers in Exchanges; issuer
participation in an FFE; and States’
operation of the SHOP. Finally, it
proposes additional standards for
SHOPs, agents and brokers and
customer service representatives;
privacy and security; geographic rating
areas; and guaranteed availability and
renewability.
HHS has crafted this proposed rule to
implement the protections intended by
Congress in an economically efficient
manner. We have examined the effects
of this proposed rule as required by
Executive Order 12866 (58 FR 51735,
September 1993, Regulatory Planning
and Review), the Regulatory Flexibility
Act (RFA) (September 19, 1980, Pub. L.
96–354), section 1102(b) of the Social
Security Act, the Unfunded Mandates
Reform Act of 1995 (Pub. L. 104–4),
Executive Order 13132 on Federalism,
and the Congressional Review Act (5
U.S.C. 804(2)). In accordance with OMB
Circular A–4, HHS has quantified the
benefits and costs where possible, and
has also provided a qualitative
discussion of some of the benefits and
costs that may stem from this proposed
rule.
B. Executive Orders 13563 and 12866
Executive Order 12866 (58 FR 51735)
directs agencies to assess all costs and
benefits of available regulatory
alternatives and, if regulation is
necessary, to select regulatory
approaches that maximize net benefits
(including potential economic,
environmental, public health and safety
effects; distributive impacts; and
equity). Executive Order 13563 (76 FR
3821, January 21, 2011) is supplemental
to and reaffirms the principles,
structures, and definitions governing
regulatory review as established in
Executive Order 12866.
Section 3(f) of Executive Order 12866
defines a ‘‘significant regulatory action’’
as an action that is likely to result in a
proposed rule—(1) Having an annual
effect on the economy of $100 million
E:\FR\FM\19JNP3.SGM
19JNP3
37073
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
or more in any one year, or adversely
and materially affecting a sector of the
economy, productivity, competition,
jobs, the environment, public health or
safety, or State, local or tribal
governments or communities (also
referred to as ‘‘economically
significant’’); (2) creating a serious
inconsistency or otherwise interfering
with an action taken or planned by
another agency; (3) materially altering
the budgetary impacts of entitlement
grants, user fees, or loan programs or the
rights and obligations of recipients
thereof; or (4) raising novel legal or
policy issues arising out of legal
mandates, the President’s priorities, or
the principles set forth in the Executive
Order.
A regulatory impact analysis (RIA)
must be prepared for major rules with
economically significant effects ($100
million or more in any 1 year), and a
‘‘significant’’ regulatory action is subject
to review by the OMB. OMB has
designated this proposed rule as a
‘‘significant regulatory action.’’ Even
though it is not certain whether it would
have economic impacts of $100 million
or more in any one year, HHS has
provided an assessment of the potential
costs and benefits associated with this
proposed regulation.
1. Need for Regulatory Action
Starting in 2014, qualified individuals
and qualified employers will be able to
use coverage provided by QHPs—
private health insurance that has been
certified as meeting certain standards—
through Exchanges. A transitional
reinsurance program and a permanent
risk adjustment program would be in
place to ensure premium stability for
health insurance issuers as enrollment
increases and issuers enroll high-risk
individuals. This proposed rule would
establish general oversight requirements
for State-operated reinsurance and risk
adjustment programs; establish
oversight of issuers inside and outside
of the Exchange when HHS operates risk
adjustment or reinsurance on behalf of
a State; and establish oversight and
monitoring of State Exchanges, FFEs,
SHOPs (both State Exchanges and FFEs)
and issuers of QHPs, specifically with
respect to financial integrity,
maintenance of records, and privacy
and security of PII. This proposed rule
would also restrict the use of funds for
administrative expenses generated for
State Exchanges and State-operated
reinsurance programs; propose
procedures for oversight of advance
payments of the premium tax credit and
cost-sharing reductions; propose
procedures to ensure the accuracy of
data collection, calculations, and
submissions; allow a State to establish
and operate only the SHOP and
establish standards for SHOPs; establish
requirements for customer service
representatives and agents and brokers
who assist consumers; establish
requirements for enrollee satisfaction
survey vendors; and propose additional
standards for special enrollment
periods.
2. Summary of Impacts
In accordance with OMB Circular A–
4, Table V.1 below depicts an
accounting statement summarizing
HHS’s assessment of the benefits and
costs associated with this regulatory
action. The period covered by the RIA
is 2014–2017.
HHS anticipates that the provisions of
this proposed rule will ensure smooth
operation of Exchanges, integrity of the
reinsurance and risk adjustment
programs, safeguard the use of Federal
funds, prevent fraud and abuse, increase
access to healthcare coverage and
provide consumer protections. Affected
entities such as States, QHP issuers,
agents, and brokers would incur costs to
maintain records, submit reports to HHS
and Exchanges, comply with privacy
and security standards for PII, provide
records for compliance reviews, and to
comply with enforcement actions. In
accordance with Executive Order 12866,
HHS believes that the benefits of this
regulatory action justify the costs.
TABLE V.1—ACCOUNTING TABLE
Benefits:
Qualitative:
* Ensure integrity of reinsurance and risk adjustment programs, smooth functioning of State Exchanges and FFEs.
* Prevent fraud and abuse.
* Safeguard the use of Federal funds provided as cost-sharing reductions and advance payments of the premium tax credit and provide value
for taxpayers’ dollars.
* Enable a State to focus on effective implementation of the SHOP by allowing it to operate a State-based SHOP while the Exchange is operated as an FFE.
* Increased access to fair and unbiased customer assistance and information about coverage options for consumers, enabling consumers to
make informed decisions.
* Ensure privacy and security protections.
* Ensure prompt refund of any excess premium paid or any excess cost sharing.
Estimate
Year dollar
Discount
rate percent
2013
2013
7
3
Period
covered
Costs:
tkelley on DSK3SPTVN1PROD with PROPOSALS3
Annualized Monetized ($/year) .............................
$23.3 million 1 .......................................................
$23.2 million 2 .......................................................
2014–2017
2014–2017
Annual costs related to financial oversight, maintenance of records and reporting requirements for State Exchanges and State-operated reinsurance and risk-adjustment programs; record retention requirements for contributors and recipients for reinsurance programs; audit costs for
State programs—Exchanges, risk adjustment and reinsurance; costs for QHP issuers related to reporting requirements, record maintenance,
audits, Web site standards, training for customer service representatives, and documentation of resolution of consumer cases; costs to agents
and brokers and QHPs related to enforcement actions.
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
PO 00000
Frm 00043
Fmt 4701
Sfmt 4702
E:\FR\FM\19JNP3.SGM
19JNP3
37074
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
TABLE V.1—ACCOUNTING TABLE—Continued
Qualitative:
* Costs to Exchanges and non-Exchange entities associated with FFEs and agents and brokers assisting consumers, to comply with privacy
and security standards.
* Costs incurred by enrollee satisfaction survey vendors related to annual application and meeting HHS standards.
* Possible reduction in costs for SHOPs due to elimination of the requirement to accept paper applications and applications by telephone.
* Cost incurred by SHOPs to develop uniform standards for the termination of a group’s coverage in a QHP and to keep sufficient records of terminations and reasonable accommodations.
Note: 1. Approximately $20.6 million of these costs are estimated in section III and $2.7 million are estimated below in the RIA, including the
audit costs in Table V.2. 2. Approximately $20.5 million of these costs are estimated in section III and $2.7 million are estimated below in the
RIA, including the audit costs in Table V.2.
tkelley on DSK3SPTVN1PROD with PROPOSALS3
3. Anticipated Benefits and Costs
Starting in 2014, individuals and
small businesses will be able to use
health insurance coverage purchased
through Exchanges. The Congressional
Budget Office estimated that the number
of people enrolled in coverage through
Exchanges will increase from 7 million
in 2014 to 26 million in 2017.37
Exchanges will create competitive
marketplaces where qualified
individuals and qualified employers can
shop for insurance coverage, and are
expected to reduce the unit price of
quality insurance for the average
consumer by pooling risk and
promoting competition.
The proposed rule would specify the
standards and processes for the
oversight and accountability of entities
responsible for operations of the
Exchanges and reinsurance and risk
adjustment programs. Affected entities
would include States, in their roles of
establishing and operating Exchanges
and SHOPs and administering
reinsurance and risk adjustment
programs; FFEs and FF-SHOPs; issuers
of QHPs; health insurance issuers
offering coverage both inside and
outside of the Exchange when HHS
operates risk adjustment or reinsurance
on behalf of the State; contractors or
other subsidiaries of these
organizations; and insurance agents and
brokers.
a. Benefits
This proposed rule would implement
oversight, record maintenance and
enforcement provisions that would
ensure integrity of the reinsurance and
risk adjustment programs, State
Exchanges and FFE functions; prevent
fraud and abuse; and establish
consumer protection measures.
The proposed rule includes
provisions that would create a system of
oversight, financial integrity and
37 ‘‘CBO’s February 2013 Estimate of the Effects
of the Affordable Care Act on Health Insurance,’’
Congressional Budget Office, February 2013.
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
program integrity in the Exchanges and
the risk adjustment, reinsurance and
risk corridors programs. The proposed
oversight requirements for HHSoperated and State-operated reinsurance
and risk-adjustment programs would
ensure that these programs are effective
and efficient, and use program funds
appropriately. The proposed standards
would also ensure that Federal funds
are used appropriately in the
administration of State Exchange
activities. By monitoring financial
reports and overseeing State Exchange
activities, HHS would safeguard the use
of Federal funds provided as costsharing reductions and advance
payments of the premium tax credit and
provide value for taxpayers’ dollars.
The proposed rule would also allow
a State to operate a State-based SHOP
while the Exchange is operated as an
FFE. This would enable the State to
focus on effective implementation of the
SHOP and gain experience that would
help prepare it to operate both a SHOP
and State Exchange in the future. Each
SHOP would also be required to
develop uniform standards for the
termination of coverage in a QHP,
starting in 2015, unless the SHOP offers
employee choice before then.
Standardizing the timing, form, and
manner of a group’s termination in the
SHOP would ensure that an employer
offering coverage through multiple
health insurance issuers (under the
SHOP ‘employee choice’’ model) will be
subject to uniform, predictable
termination policies.
The proposed rule would implement
consumer protections that would ensure
privacy and security of PII, increased
access to customer assistance,
information about coverage options and
allow consumers to make informed
coverage decisions. Permitting issuer
customer service representatives to
assist individuals with applying for
eligibility determinations or
redeterminations for coverage through
the Exchange would increase assistance
available to consumers, while the
PO 00000
Frm 00044
Fmt 4701
Sfmt 4702
training and compliance standards
would ensure that such assistance is fair
and unbiased. The proposed rule would
establish requirements for customer
service representatives and agents and
brokers who assist consumers, requiring
them to comply with registration and
training requirements. The proposed
rule would also establish standards
under which HHS could terminate its
relationship with agents and brokers in
the FFE, to help ensure that agents and
brokers continue to meet Exchange
standards. In addition, the requirement
for QHP issuers conducting direct
enrollment to provide standardized
comparative information on their Websites would ensure that consumers can
readily differentiate and compare plan
choices leading to informed decisions.
Consumers without bank accounts or
credits cards would also have a variety
of payment options.
The provisions of this rule would also
ensure that enrollees are promptly
refunded any excess premium paid or
any excess cost sharing they should not
have paid. Individuals harmed by
misconduct on the part of non-Exchange
entities would also be eligible for a
special enrollment period. A QHP
would also be required to promptly
reassign an enrollee improperly
assigned to a plan variation (or standard
plan without cost-sharing reductions),
minimizing consumer harm.
The annual application requirement
for enrollee satisfaction survey vendors
would allow HHS to ensure that these
entities participate in relevant training
and post-training certification, follow
protocols related to quality assurance
and the use of HHS data, and adhere to
privacy and security standards when
handling data. This would help to
ensure that ultimately the enrollee
satisfaction survey data are reliable and
valid and that the information is
sufficiently protected.
The proposed enforcement actions
such as CMPs and decertification of a
QHP, termination of agent and broker
agreement for participation in the
E:\FR\FM\19JNP3.SGM
19JNP3
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
tkelley on DSK3SPTVN1PROD with PROPOSALS3
individual market of an FFE, would
improve program performance, reduce
non-compliance by QHPs and agents
and brokers, and decrease the likelihood
of errors and adverse outcomes for
consumers.
b. Costs
Affected entities would incur costs to
comply with the provisions of this
proposed rule. Costs related to
information collection requirements
subject to PRA are discussed in detail in
section III and include administrative
costs incurred by States, issuers and
agents and brokers related to record
maintenance and reporting
requirements; oversight and financial
integrity standards; enforcement
actions; enrollment process for qualified
individuals; and training requirements .
In this section we discuss other costs
related to the proposed provisions.
States operating reinsurance programs
would be required to maintain records.
The costs related to this provision are
generally accounted for in the RIA of the
Payment Notice and are not included in
this RIA. States operating reinsurance
would be required to keep an accurate
accounting for each benefit year, of all
reinsurance funds received from HHS
for reinsurance payments and for
administrative expenses, as well as all
claims for reinsurance payments from
issuers of reinsurance-eligible plans, all
payments made to those issuers, and all
administrative expenses incurred. Stateoperated reinsurance programs will
already have a system in place to track
reinsurance funds received from HHS,
claims from and payments to issuers,
and expenses incurred to operate the
reinsurance program. The cost for States
operating reinsurance to maintain any
records associated with the reinsurance
program was previously estimated in
the RIA of the Payment Notice, and we
believe that the administrative costs
associated with this requirement are
generally accounted for in that estimate.
State-operated reinsurance programs
would submit to HHS annually and
make public a summary report of their
program operations, which would
include a summary of the accounting
kept pursuant to proposed § 153.260(a).
We assume that the data already
collected and used to report to issuers
and HHS would be the same used to
prepare this annual report. Therefore,
the cost associated with this
requirement is the incremental time and
cost to prepare an annual report to HHS
and the public on program operations.
We estimate it will take insurance
management analysts 16 hours (at $51
per hour) and a senior manager 2 hours
(at $77 per hour) to prepare the report.
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
Therefore, we estimate it would cost
each State that operates reinsurance
approximately $970 to submit this
report to HHS. Because two States will
operate reinsurance in the 2014 benefit
year, we estimate that an aggregate cost
of $1,940 as a result of this requirement
in the first year. We note that HHS will
provide a portion of the reinsurance
contributions it collects to a State
operating reinsurance for the purposes
of supporting State administration of
reinsurance payments, which would
likely cover the costs associated with
this requirement.
A State operating a risk adjustment
program would be directed to maintain
documents and records relating to the
risk adjustment program, whether
paper, electronic or in other media, for
each benefit year for at least 10 years,
and make them available upon request
from HHS, the OIG, the Comptroller
General, or their designees, to any such
entity. The documents and records must
be sufficient to enable the evaluation of
a State-operated risk adjustment
program’s compliance with Federal
standards. States would also be directed
to ensure that their contractors,
subcontractors, and agents maintain and
make those documents and records
available upon request from HHS, the
OIG, the Comptroller General, or their
designees. States operating risk
adjustment programs should already
have the documents and records of
accounting procedures needed for
periodic audits. Therefore we estimate
that the additional burden associated
with this requirement is the time, effort,
and additional labor cost required to
maintain and archive the records. We
assume that it would take an insurance
operations analyst 10 hours (at $38.49
an hour) to maintain records. Therefore,
the average cost for each state would be
approximately $385. Because one State
will operate risk adjustment for the 2014
benefit year, we estimate an aggregate
cost of $385 to comply with this
requirement in the first year.
A State operating a risk adjustment
program would be required to submit by
December 31st of the first benefit year
an interim summary report on the first
10 months of risk adjustment activities,
in order to obtain re-certification for the
third benefit year. The cost of
complying with this provision is the
time and effort to write the interim
report and submit it to HHS. We
estimate it would take an insurance
management analyst 16 hours (at $51
per hour) and a senior manager 2 hours
(at $77 per hour) to prepare the interim
summary report. Therefore, we estimate
it would cost each state operating risk
adjustment $970 to submit this report to
PO 00000
Frm 00045
Fmt 4701
Sfmt 4702
37075
HHS (an aggregate cost of $970 in the
2014 benefit year). A State operating a
risk adjustment program would submit
and make public, a summary report of
its risk adjustment program operations
for each benefit year after the first
benefit year for which the State operates
the program. We propose that this
summary report include the results of a
programmatic and financial audit for
each benefit year conducted by an
independent qualified auditing entity.
We believe the cost of this annual report
would be the same as the cost of
producing the interim first-year report
above, except for the cost of audits
required in subsequent years, and these
annual audit costs are estimated later in
this RIA. These estimates also include
the administrative costs related to the
requirement for State-operated risk
adjustment programs to keep accurate
accounting for each benefit year of all
receipts and expenditures related to risk
adjustment payments, charges, and
administration of the program.
States would face a variety of costs
due to the monitoring requirements in
this proposed rule. Conducting
oversight of the Exchanges, Stateoperated risk adjustment and
reinsurance programs, administration of
the advance payments of the premium
tax credit or cost-sharing reductions,
and other activities require independent
external audits, investigations,
rectification of errors, and the
development of summary reports which
would be submitted to HHS. The
estimated total audit costs for State
reinsurance, risk adjustment and
Exchange programs are presented in
Table V.2. It is expected that 18 States
will establish State Exchanges in 2014
and we assume that number will stay
the same during the period covered by
the RIA. We also assume that each State
would conduct a financial audit and a
programmatic audit annually, which
would encompass reinsurance and risk
adjustment programs. Financial audit
costs are estimated based on prices
among the big four audit firms for
governmental entities of similar size to
those of the anticipated State Exchanges
for a financial statement audit and
Yellowbook Report (report on internal
controls) that reflects different levels of
cost for small, medium, and large
entities, for entities with low, medium,
and high risk. Programmatic audit
estimates reflect the experience of
Federal entitlement programs similar to
Medicaid audited under an A–133
program compliance supplement, and
vary only by the size of the program
(small medium and large). For example,
a small Exchange judged to have low
E:\FR\FM\19JNP3.SGM
19JNP3
37076
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
risk would have a combined financial
and programmatic audit cost of $90,000;
a large Exchange, in a State that also
administers a reinsurance program
(which implies a more complex, high
risk operation) would have combined
financial and programmatic audit costs
of $360,000. Audit prices are based on
2012 pricing and reflect an annual
increase of 3 percent each year, based
on recent industry experience.
TABLE V.2.—ESTIMATED AUDIT COSTS FOR STATE PROGRAMS: EXCHANGES, RISK ADJUSTMENT AND REINSURANCE
2014
Mid-range point estimate .................................................................................
Range ..............................................................................................................
Exchanges and non-Exchange entities
associated with FFEs and agents and
brokers permitted by States to assist
consumers would incur costs to comply
with the privacy and security standards
for PII, informing individuals about
related policies, procedures and
technologies developing policies and
procedures, executing training, posting
privacy policies on Web sites and
providing reports of any violations to
HHS. Issuers would also incur expenses
to provide privacy and security training
to their customer service
representatives. It is anticipated that
Exchanges and issuers’ IT systems will
need minimal changes to comply with
these provisions.
The proposed rule would require the
enrollee satisfaction survey vendors
engaged by issuers to meet HHS
standards. Survey vendors would apply
for approval annually in order to
administer enrollee satisfaction surveys
to QHP enrollees on behalf of a QHP
issuer. Vendors would incur costs to
submit the annual applications to HHS
and to meet the requirements necessary
to meet approval.
The proposed rule would also amend
existing requirements so that SHOPs
would no longer be required to accept
paper applications and applications by
telephone. This could reduce the cost of
operating a SHOP. A SHOP would also
incur costs to develop uniform
standards for the termination of a
group’s coverage in a QHP and to keep
sufficient records of terminations and
reasonable accommodations.
tkelley on DSK3SPTVN1PROD with PROPOSALS3
C. Regulatory Alternatives
Under the Executive Order, HHS is
required to consider alternatives to
issuing rules and alternative regulatory
approaches. HHS considered the
following alternatives while developing
this proposed rule:
1. Increased Uniformity of FFE and
State Exchange Standards
Under this alternative, HHS would
require a single standard for Exchanges
across the nation regardless of whether
the Exchange was established and
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
$2,572,000
$2,320,000–
$2,820,000
operated by a State or was Federallyfacilitated. The proposed rule would
defer to State discretion in oversight of
QHPs. This element of State flexibility
would be precluded if greater
uniformity in operations and standards
were to be imposed. Greater
standardization would have an
uncertain impact on Federal oversight
activities but would likely impose
greater costs of compliance on State
operations and issuers of QHPs in those
States.
2. Placing More Responsibility on the
States to Oversee Standards, Including
Those for FFES
Under this alternative, HHS would
place more responsibility on States and
State Exchanges to interpret and meet
statutory requirements. This approach
could create a number of problems. If
every State developed its own
monitoring standards, oversight of
different Exchanges could be quite
uneven, as States across the country
have varying levels of fiscal resources
with which to monitor activities. States
currently have certain levels of
responsibility under the Affordable Care
Act to oversee standards for Exchanges,
QHPs, and other programs. State
Exchanges also have latitude in the
number, type, and standardization of
plans they certify and accept into the
Exchange as QHPs.
There are a number of provisions in
the Affordable Care Act that devolve
responsibilities from the Federal
government to States. Increased
devolution could decrease the need of
Federal oversight, while granting States
increased flexibility to regulate
Exchanges within their borders. There
would also be a decrease in oversightrelated activities for the Federal
government such as HHS investigations
or audits. On the other hand, States
would likely face an increase in their
own oversight activities and related
costs.
HHS believes that the options adopted
for this proposed rule strike the best
balance of ensuring efficient operation
and integrity of Exchanges and the
PO 00000
Frm 00046
Fmt 4701
Sfmt 4702
2015
$2,649,160
$2,389,600–
$2,904,600
2016
$2,728,635
$2,461,288–
$2,991,738
2017
$2,810,494
$2,535,127–
$3,081,490
reinsurance and risk adjustment
programs while providing flexibility to
the States and minimizing the burden
on States.
D. Regulatory Flexibility Act
The Regulatory Flexibility Act (RFA)
requires agencies that issue a rule to
analyze options for regulatory relief of
small businesses if a rule has a
significant impact on a substantial
number of small entities. The RFA
generally defines a ‘‘small entity’’ as—
(1) A proprietary firm meeting the size
standards of the Small Business
Administration (SBA), (2) a nonprofit
organization that is not dominant in its
field, or (3) a small government
jurisdiction with a population of less
than 50,000 (States and individuals are
not included in the definition of ‘‘small
entity’’). HHS uses as its measure of
significant economic impact on a
substantial number of small entities a
change in revenues of more than 3
percent to 5 percent. HHS anticipates
that the proposed rule would not have
a significant economic impact on a
substantial number of small entities.
As discussed in the Web Portal final
rule published on May 5, 2010 (75 FR
24481), HHS examined the health
insurance industry in depth in the RIA
we prepared for the proposed rule on
establishment of the Medicare
Advantage program (69 FR 46866,
August 3, 2004). In that analysis it was
determined that there were few, if any,
insurance firms underwriting
comprehensive health insurance
policies (in contrast, for example, to
travel insurance policies or dental
discount policies) that fell below the
size thresholds for ‘‘small’’ business
established by the SBA (currently $7
million in annual receipts for health
issuers).38 In addition, HHS used the
data from Medical Loss Ratio (MLR)
annual report submissions for the 2011
MLR reporting year to develop an
estimate of the number of small entities
38 ‘‘Table of Size Standards Matched To North
American Industry Classification System Codes,’’
effective January 7, 2013, U.S. Small Business
Administration, available at https://www.sba.gov.
E:\FR\FM\19JNP3.SGM
19JNP3
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
tkelley on DSK3SPTVN1PROD with PROPOSALS3
that offer comprehensive major medical
coverage. These estimates may overstate
the actual number of small health
insurance issuers that would be
affected, since they do not include
receipts from these companies’ other
lines of business. It is estimated that out
of 466 issuers nationwide, there are 22
small entities each with less than $7
million in earned premiums that offer
individual or group health insurance
coverage and would therefore be subject
to the requirements of this proposed
regulation. Thirty six percent of these
small issuers belong to larger holding
groups, and many if not all of these
small issuers are likely to have other
lines of business that would result in
their revenues exceeding $7 million. It
is uncertain how many of these 466
issuers would offer QHPs and be subject
to the provisions of this proposed rule.
Based on this analysis, however, HHS
expects that this proposed rule will not
affect small issuers.
Some of the agents and brokers
affected by the provisions of this
proposed rule may be small entities and
would incur costs to comply with the
provisions of this proposed rule. The
size threshold for ‘‘small’’ business
established by the SBA is currently $7
million in annual receipts for insurance
agencies and brokerages. We anticipate
that agents and brokers will continue to
be an important source of assistance for
many consumers seeking access to
health insurance coverage through an
Exchange, including those who own
and/or are employed by small
businesses. Due to lack of data, HHS is
unable to estimate how many agents and
brokers permitted by States to assist
consumers would be small entities. We
invite comments on this issue.
E. Unfunded Mandates Reform Act
Section 202 of the Unfunded
Mandates Reform Act (UMRA) of 1995
requires that agencies assess anticipated
costs and benefits before issuing any
proposed rule that includes a Federal
mandate that could result in
expenditure in any one year by State,
local or tribal governments, in the
aggregate, or by the private sector, of
$100 million in 1995 dollars, updated
annually for inflation. In 2013, that
threshold level is approximately $141
million.
UMRA does not address the total cost
of a proposed rule. Rather, it focuses on
certain categories of cost, mainly those
‘‘Federal mandate’’ costs resulting
from—(1) imposing enforceable duties
on State, local, or tribal governments, or
on the private sector; or (2) increasing
the stringency of conditions in, or
decreasing the funding of, State, local,
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
or tribal governments under entitlement
programs.
The proposed rule would direct States
to undertake oversight activities for
State Exchanges, State-operated
reinsurance and risk adjustment
programs. The costs related to oversight
activities, recordkeeping, reporting and
audits are estimated to be approximately
$2.8 million in 2014. There are no
mandates on local or tribal
governments. The private sector, for
example, QHP issuers and agents and
brokers, would incur costs to comply
with the record maintenance and
reporting requirements set forth in this
proposed rule. The related costs are
estimated to be approximately $21.8
million in 2014. However, consistent
with policy embodied in UMRA, this
proposed rule has been designed to be
a low-burden alternative for State, local
and tribal governments, and the private
sector while achieving the objectives of
the Affordable Care Act.
F. Federalism
Executive Order 13132 establishes
certain requirements that an agency
must meet when it promulgates a
proposed rule that imposes substantial
direct requirement costs on State and
local governments, preempts State law,
or otherwise has Federalism
implications.
States are the primary regulators of
health insurance coverage. States will
continue to apply State laws regarding
health insurance coverage. However, if
any State law or requirement prevents
the application of a Federal standard,
then that particular State law or
requirement would be preempted. State
requirements that are more stringent
than the Federal requirements would be
not be preempted by this proposed rule.
Accordingly, States have significant
latitude to impose requirements with
respect to health insurance coverage
that are more restrictive than the
Federal law.
States would continue to license,
monitor and regulate all agents and
brokers, both inside and outside of
Exchanges. All State laws related to
agents and brokers, including State laws
related to appointments, contractual
relationships with issuers, and licensing
and marketing requirements, would
continue to apply. Under the proposed
rule, States would have the option to
operate only a State-based SHOP while
the Exchange is operated as an FFE. The
proposed rule would also provide
additional flexibility to States with
respect to the operation of a SHOPspecific Navigator program when the
State operates only a SHOP Exchange.
The State Exchange oversight program
PO 00000
Frm 00047
Fmt 4701
Sfmt 4702
37077
builds on State oversight efforts, where
possible, by coordinating with State
authorities to address compliance issues
and concerns. HHS would coordinate
enforcement actions for QHP issuers
with State efforts in order to streamline
the oversight of QHP issuers by States
and to avoid inappropriate duplication
of enforcement actions. Because QHPs
are one of several commercial market
insurance products operating in State
markets, HHS would not seek to
inappropriately duplicate or interfere
with the traditional regulatory roles
played by the State DOIs. HHS would
generally confine its QHP oversight to
Exchange-specific requirements and
attributes. HHS would also seek to work
collaboratively with State DOIs on
topics of mutual concern, in the interest
of efficiently deploying oversight
resources and avoiding needlessly
duplicative regulatory roles. HHS may
consider the regulatory action taken by
a State against a QHP issuer as a factor
in determining whether to decertify a
QHP. As mentioned earlier in the
preamble, HHS recognizes that States
play an important role in handling
consumer cases related to health
insurance and HHS anticipates that
States will continue to assist consumers
with these grievances and complaints.
QHP issuers are expected to comply
with standards established by State law
and regulation for cases forwarded to an
issuer by a State in which it offers
QHPs.
The requirements specified in this
proposed rule would impose direct
costs on State and local governments
and we seek comments on how to
minimize those costs. State Exchanges
and State-operated reinsurance and riskadjustment programs would be required
to undertake oversight, record
maintenance and reporting activities.
In compliance with the requirement
of Executive Order 13132 that agencies
examine closely any policies that may
have Federalism implications or limit
the policymaking discretion of the
States, HHS has engaged in efforts to
consult with and work cooperatively
with affected States. Throughout the
process of developing this proposed
rule, HHS has attempted to balance the
States’ interests in regulating health
insurance issuers, and the Congress’
intent to provide uniform protections to
consumers in every State. By doing so,
it is HHS’ view that it has complied
with the requirements of Executive
Order 13132. Under the requirements
set forth in section 8(a) of Executive
Order 13132, and by the signatures
affixed to this rule, HHS certifies that
the CMS Center for Consumer
Information and Insurance Oversight
E:\FR\FM\19JNP3.SGM
19JNP3
37078
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
has complied with the requirements of
Executive Order 13132 for the attached
proposed rule in a meaningful and
timely manner.
G. Congressional Review Act
This proposed rule is subject to the
Congressional Review Act provisions of
the Small Business Regulatory
Enforcement Fairness Act of 1996 (5
U.S.C. 801 et seq.), which specifies that
before a rule can take effect, the Federal
agency promulgating the rule shall
submit to each House of the Congress
and to the Comptroller General a report
containing a copy of the rule along with
other specified information, and has
been transmitted to the Congress and
the Comptroller General for review.
List of Subjects
Public assistance programs, Reporting
and recordkeeping requirements, State
and local governments, Sunshine Act,
Technical assistance, Women, and
Youth.
For the reasons set forth in the
preamble, the Department of Health and
Human Services proposes to amend 45
CFR parts 144, 147, 153, 155, and 156
as set forth below:
PART 144—REQUIREMENTS
RELATING TO HEALTH INSURANCE
COVERAGE
1. The authority citation for part 144
is revised to read as follows:
■
Authority: Secs. 2701 through 2763, 2791,
and 2792 of the Public Health Service Act (42
U.S.C. 300gg through 300gg-63, 300gg-91,
and 300gg-92).
2. Section 144.102 is amended by
revising the second sentence of
paragraph (c) to read as follows:
45 CFR Part 144
Health care, Health insurance,
Reporting and recordkeeping
requirements.
■
45 CFR Part 147
Health care, Health insurance,
Reporting and recordkeeping
requirements, and State regulation of
health insurance.
*
§ 144.102
45 CFR Part 153
Administrative practice and
procedure, Adverse selection, Health
care, Health insurance, Health records,
Organization and functions
(Government agencies), Premium
stabilization, Reporting and
recordkeeping requirements,
Reinsurance, Risk adjustment, Risk
corridors, Risk mitigation, State and
local governments.
tkelley on DSK3SPTVN1PROD with PROPOSALS3
45 CFR Part 155
Administrative practice and
procedure, Health care access, Health
insurance, Reporting and recordkeeping
requirements, State and local
governments, Cost-sharing reductions,
Advance payments of premium tax
credit, Administration and calculation
of advance payments of the premium
tax credit, Plan variations, Actuarial
value.
45 CFR Part 156
Administrative practice and
procedure, Advertising, Advisory
Committees, Brokers, Conflict of
interest, Consumer protection, Grant
programs-health, Grants administration,
Health care, Health insurance, Health
maintenance organization (HMO),
Health records, Hospitals, American
Indian/Alaska Natives, Individuals with
disabilities, Loan programs-health,
Organization and functions
(Government agencies), Medicaid,
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
Scope and applicability.
*
*
*
*
(c) * * * If the coverage is offered to
an association member other than in
connection with a group health plan,
the coverage is considered individual
health insurance coverage for purposes
of 45 CFR parts 144 through 148. * * *
*
*
*
*
*
■ 3. Section 144.103 is amended by
revising the definitions of ‘‘Group
market,’’ ‘‘Individual market,’’ ‘‘Large
employer,’’ ‘‘Policy year,’’ and ‘‘Small
employer’’ to read as follows:
§ 144.103
Definitions.
*
*
*
*
*
Group market means the market for
health insurance coverage offered in
connection with a group health plan.
*
*
*
*
*
Individual market means the market
for health insurance coverage offered to
individuals other than in connection
with a group health plan.
*
*
*
*
*
Large employer means, in connection
with a group health plan with respect to
a calendar year and a plan year, an
employer who employed an average of
at least 101 employees on business days
during the preceding calendar year and
who employs at least 1 employee on the
first day of the plan year. In the case of
plan years beginning before January 1,
2016, a State may elect to define large
employer by substituting ‘‘51
employees’’ for ‘‘101 employees.’’
*
*
*
*
*
Policy year means, with respect to—
(1) A grandfathered health plan
offered in the individual health
insurance market, the 12-month period
that is designated as the policy year in
PO 00000
Frm 00048
Fmt 4701
Sfmt 4702
the policy documents of the individual
health insurance coverage. If there is no
designation of a policy year in the
policy document (or no such policy
document is available), then the policy
year is the deductible or limit year used
under the coverage. If deductibles or
other limits are not imposed on a yearly
basis, the policy year is the calendar
year.
(2) A non-grandfathered health plan
offered in the individual health
insurance market, or in a market in
which the State has merged the
individual and small group risk pools,
beginning January 1, 2015, a calendar
year for which health insurance
coverage provides coverage for health
benefits.
*
*
*
*
*
Small employer means, in connection
with a group health plan with respect to
a calendar year and a plan year, an
employer who employed an average of
at least 1 but not more than 100
employees on business days during the
preceding calendar year and who
employs at least 1 employee on the first
day of the plan year. In the case of plan
years beginning before January 1, 2016,
a State may elect to define small
employer by substituting ‘‘50
employees’’ for ‘‘100 employees.’’
*
*
*
*
*
PART 147—HEALTH INSURANCE
REFORM REQUIREMENTS FOR THE
GROUP AND INDIVIDUAL HEALTH
INSURANCE MARKETS
4. The authority citation for part 147
continues to read as follows:
■
Authority: Secs. 2701 through 2763, 2791,
and 2792 of the Public Health Service Act (42
U.S.C. 300gg through 300gg-63, 300gg-91,
and 300gg-92), as amended.
5. Section 147.102 is amended by
revising paragraph (a) introductory text
and adding a sentence at the end of
paragraph (a)(1)(ii) to read as follows:
■
§ 147.102
Fair health insurance premiums.
*
*
*
*
*
(a) In general. With respect to the
premium rate charged by a health
insurance issuer in accordance with
§ 156.80 of this subchapter for health
insurance coverage offered in the
individual or group market—
(1) * * *
(ii) * * * For purposes of this
paragraph (a)(1), rating area is
determined in the small group market
using the group policyholder’s principal
business address and in the individual
market using the primary policyholder’s
address.
*
*
*
*
*
E:\FR\FM\19JNP3.SGM
19JNP3
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
6. Section 147.104 is amended by
revising paragraph (a), adding a
sentence at the end of paragraph (b)(2),
and revising paragraphs (c)(2), (d)(1)(ii),
and (d)(2) introductory text to read as
follows:
■
tkelley on DSK3SPTVN1PROD with PROPOSALS3
§ 147.104 Guaranteed availability of
coverage.
(a) Guaranteed availability of
coverage in the individual and group
market. Subject to paragraphs (b)
through (d) of this section, a health
insurance issuer that offers health
insurance coverage in the individual,
small group, or large group market in a
State must offer to any individual or
employer in the State all products that
are approved for sale in the applicable
market, and must accept any individual
or employer that applies for any of those
products.
*
*
*
*
*
(b) * * *
(2) * * * As of January 1, 2015,
health insurance coverage in the
individual market or in a market in
which the State has merged the
individual and small group risk pools
must be offered on a calendar year basis.
*
*
*
*
*
(c) * * *
(2) An issuer that denies health
insurance coverage to an individual or
an employer in any service area, in
accordance with paragraph (c)(1)(ii) of
this section, may not offer coverage in
the individual, small group, or large
group market, as applicable, for a period
of 180 calendar days after the date the
coverage is denied. This paragraph (c)(2)
does not limit the issuer’s ability to
renew coverage already in force or
relieve the issuer of the responsibility to
renew that coverage.
*
*
*
*
*
(d) * * *
(1) * * *
(ii) It is applying this paragraph (d)(1)
uniformly to all employers or individual
in the large group, small group, or
individual market, as applicable, in the
State consistent with applicable State
law and without regard to the claims
experience of those individuals,
employers and their employees (and
their dependents) or any health statusrelated factor relating to such
individuals, employees, and
dependents.
(2) An issuer that denies health
insurance coverage to any employer or
individual in a State under paragraph
(d)(1) of this section may not offer
coverage in the large group, small group,
or individual market, as applicable, in
the State before the later of either of the
following dates:
*
*
*
*
*
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
7. Section 147.106 is amended by
revising paragraphs (a) and (d)(1)
introductory text to read as follows:
§ 147.106 Guaranteed renewability of
coverage.
(a) General rule. Subject to paragraphs
(b) through (d) of this section, a health
insurance issuer offering health
insurance coverage in the individual,
small group, or large group market is
required to renew or continue in force
the coverage at the option of the plan
sponsor or the individual, as applicable.
*
*
*
*
*
(d) * * *
(1) An issuer may elect to discontinue
offering all health insurance coverage in
the individual, small group, or large
group market, or all markets, in a State
in accordance with applicable State law
only if—
*
*
*
*
*
PART 153—STANDARDS RELATED TO
REINSURANCE, RISK CORRIDORS
AND RISK ADJUSTMENT UNDER THE
AFFORDBALE CARE ACT
8. The authority citation for part 153
continues to read as follows:
Authority: Secs. 1321, 1341–1343, Pub. L.
111–148, 24 Stat. 119.
9. Section 153.20 is amended by
revising the definition of ‘‘contributing
entity’’ to read as follows:
§ 153.20
Definitions.
*
*
*
*
*
Contributing entity means a health
insurance issuer or a self-insured group
health plan (including a group health
plan that is partially self-insured and
partially insured, where the health
insurance coverage does not constitute
major medical coverage). A self-insured
group health plan is responsible for the
reinsurance contributions, although it
may elect to use a third party
administrator or administrative servicesonly contractor for transfer of the
reinsurance contributions.
*
*
*
*
*
10. Section 153.240 is amended by
revising paragraph (c) to read as follows:
§ 153.240 Disbursement of reinsurance
payments.
*
*
*
*
*
(c) Maintenance of records. If a State
establishes a reinsurance program, the
State must maintain documents and
records relating to the reinsurance
program, whether paper, electronic, or
in other media, for each benefit year for
at least 10 years, and make them
available upon request from HHS, the
OIG, the Comptroller General, or their
designees, to any such entity. The
PO 00000
Frm 00049
Fmt 4701
Sfmt 4702
37079
documents and records must be
sufficient to enable the evaluation of the
State-operated reinsurance program’s
compliance with Federal standards. The
State must also ensure that its
contractors, subcontractors, and agents
similarly maintain and make relevant
documents and records available upon
request from HHS, the OIG, the
Comptroller General, or their designees,
to any such entity.
*
*
*
*
*
■ 11. Section 153.260 is added to
subpart C to read as follows:
§ 153.260 General oversight requirements
for State-operated reinsurance programs.
(a) Accounting requirements. A State
that establishes a reinsurance program
must ensure that its applicable
reinsurance entity keeps an accounting
for each benefit year of:
(1) All reinsurance contributions
received from HHS for reinsurance
payments and for administrative
expenses;
(2) All claims for reinsurance
payments received from issuers of
reinsurance-eligible plans;
(3) All reinsurance payments made to
issuers of reinsurance-eligible plans;
and
(4) All administrative expenses
incurred for the reinsurance program.
(b) State summary report. A State that
establishes a reinsurance program must
submit to HHS and make public a report
on its reinsurance program operations
for each benefit year in the manner and
timeframe specified by HHS. The report
must summarize the accounting for the
benefit year kept pursuant to paragraph
(a) of this section.
(c) Independent external audit. A
State that establishes a reinsurance
program must engage an independent
qualified auditing entity to perform a
financial and programmatic audit for
each benefit year of its State-operated
reinsurance program in accordance with
generally accepted auditing standards.
The State must:
(1) Provide to HHS the results of the
audit, in the manner and timeframe to
be specified by HHS;
(2) Ensure that the audit addresses the
prohibitions set forth in § 153.265;
(3) Identify to HHS any material
weakness or significant deficiency
identified in the audit, and address in
writing to HHS how the State intends to
correct any such material weakness or
significant deficiency; and
(4) Make public a summary of the
results of the audit, including any
material weakness or significant
deficiency, in the manner and
timeframe to be specified by HHS.
E:\FR\FM\19JNP3.SGM
19JNP3
37080
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
12. Section 153.265 is added to
subpart C to read as follows:
■
§ 153.265 Restrictions on use of
reinsurance funds for administrative
expenses.
A State that establishes a reinsurance
program must ensure that its applicable
reinsurance entity does not use any
funds for the support of reinsurance
operations, including any reinsurance
contributions provided under the
national contribution rate for
administrative expenses, for any of the
following purposes:
(a) Staff retreats;
(b) Promotional giveaways;
(c) Excessive executive compensation;
or
(d) Promotion of Federal or State
legislative or regulatory modifications.
■ 13. Section 153.310 is amended by
adding paragraphs (c)(4), (d)(3) and
(d)(4), and by removing paragraph (f) to
read as follows:
§ 153.310
Risk adjustment administration.
tkelley on DSK3SPTVN1PROD with PROPOSALS3
*
*
*
*
*
(c) * * *
(4) Maintenance of records. A State
operating a risk adjustment program
must maintain documents and records
relating to the risk adjustment program,
whether paper, electronic, or in other
media, for each benefit year for at least
10 years, and make them available upon
request from HHS, the OIG, the
Comptroller General, or their designees,
to any such entity. The documents and
records must be sufficient to enable the
evaluation of the State-operated risk
adjustment program’s compliance with
Federal standards. A State operating a
risk adjustment program must also
ensure that its contractors,
subcontractors, and agents similarly
maintain and make relevant documents
and records available upon request from
HHS, the OIG, the Comptroller General,
or their designees, to any such entity.
(d) * * *
(3) In addition to requirements set
forth in paragraphs (d)(1) and (d)(2) of
this section, to obtain recertification
from HHS to operate risk adjustment for
a third benefit year, the State must, in
the first benefit year for which it
operates risk adjustment, provide to
HHS an interim report, in a manner
specified by HHS, including a detailed
summary of its risk adjustment activities
in the first 10 months of the benefit
year, no later than December 31 of the
applicable benefit year.
(4) To obtain recertification from HHS
to operate risk adjustment for each
benefit year after the third benefit year,
each State operating a risk adjustment
program must submit to HHS and make
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
public a detailed summary of its risk
adjustment program operations for the
most recent benefit year for which risk
adjustment operations have been
completed, in the manner and
timeframe specified by HHS.
(i) The summary must include the
results of a programmatic and financial
audit for each benefit year of the Stateoperated risk adjustment program
conducted by an independent qualified
auditing entity in accordance with
generally accepted auditing standards.
(ii) The summary must identify to
HHS any material weakness or
significant deficiency identified in the
audit and address in writing to HHS
how the State intends to correct any
such material weakness or significant
deficiency.
*
*
*
*
*
■ 14. Section 153.365 is added to
subpart D to read as follows:
§ 153.365 General oversight requirements
for State-operated risk adjustment
programs.
If a State is operating a risk
adjustment program, it must keep an
accounting of all receipts and
expenditures related to risk adjustment
payments and charges and the
administration of risk adjustmentrelated functions and activities for each
benefit year.
■ 15. Section 153.400 is amended by
revising paragraph (a)(1)(i) and by
adding paragraph (a)(3) to read as
follows:
§ 153.400
Reinsurance contribution funds.
(a) * * *
(1) * * *
(i) Such plan or coverage is not major
medical coverage, subject to paragraph
(a)(3) of this section.
*
*
*
*
*
(3) Notwithstanding paragraph
(a)(1)(i) of this section, a health
insurance issuer must make reinsurance
contributions for lives covered by its
group health insurance coverage even if
the insurance coverage does not
constitute major medical coverage, if –
(i) The group health plan provides
health insurance coverage for those
covered lives through more than one
insurance policy that in combination
constitute major medical coverage but
individually do not;
(ii) The lives are not covered by selfinsured coverage of the group health
plan (except for self-insured coverage
limited to excepted benefits); and
(iii) The health insurance coverage
under the policy offered by the health
insurance issuer represents a percentage
of the total health insurance coverage
offered in combination by the group
PO 00000
Frm 00050
Fmt 4701
Sfmt 4702
health plan greater than the percentage
offered under any of the other policies.
For purposes of this paragraph, the
percentage of coverage offered under
various policies is determined based on
the average premium per covered life for
those policies. In the event that the
percentage of coverage for two or more
insurance policies is equal, the issuer of
the policy that provides the greatest
portion of in-network hospitalization
benefits will be responsible for
reinsurance contributions.
*
*
*
*
*
■ 16. Section 153.405 is amended by
adding paragraph (h) to read as follows:
§ 153.405 Calculation of reinsurance
contributions.
*
*
*
*
*
(h) Maintenance of records. A
contributing entity must maintain
documents and records, whether paper,
electronic, or in other media, sufficient
to substantiate the enrollment count
submitted pursuant to this section for a
period of at least 10 years, and must
make that evidence available upon
request from HHS, the OIG, the
Comptroller General, or their designees,
to any such entity, for purposes of
verification, investigation, audit, or
other review of reinsurance contribution
amounts.
■ 17. Section 153.410 is amended by
adding paragraph (c) to read as follows:
§ 153.410 Requests for reinsurance
payment.
*
*
*
*
*
(c) Maintenance of records. An issuer
of a reinsurance-eligible plan must
maintain documents and records,
whether paper, electronic, or in other
media, sufficient to substantiate the
requests for reinsurance payments made
pursuant to this section for a period of
at least 10 years, and must make that
evidence available upon request from
HHS, the OIG, the Comptroller General,
or their designees, or, in a State where
the State is operating reinsurance, the
State or its designee, to any such entity,
for purposes of verification,
investigation, audit, or other review of
reinsurance payment requests.
■ 18. Section 153.620 is amended by
revising paragraph (b) to read as follows:
§ 153.620 Compliance with risk adjustment
standards.
*
*
*
*
*
(b) Issuer records maintenance
requirements. An issuer that offers risk
adjustment covered plans must also
maintain documents and records,
whether paper, electronic, or in other
media, sufficient to enable the
evaluation of the issuer’s compliance
E:\FR\FM\19JNP3.SGM
19JNP3
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
with applicable risk adjustment
standards, and must make that evidence
available upon request to HHS, OIG, the
Comptroller General, or their designees,
or in a State where the State is operating
risk adjustment, the State or its designee
to any such entity.
■ 19. Section 153.740 is added to
subpart H to read as follows:
§ 153.740 Failure to comply with HHSoperated risk adjustment and reinsurance
data requirements.
(a) Enforcement actions. If an issuer of
a risk adjustment covered plan or
reinsurance-eligible plan fails to
establish a dedicated distributed data
environment in a manner and timeframe
specified by HHS; fails to provide HHS
with access to the required data in such
environment in accordance with
§ 153.700(a) or otherwise fails to comply
with the requirements of § 153.700
through § 153.730; fails to adhere to the
reinsurance data submission
requirements set forth in § 153.420; or
fails to adhere to the risk adjustment
data submission and data storage
requirements set forth in § 153.610
through § 153.630, HHS may impose
civil money penalties in accordance
with the procedures set forth in
§ 156.805 of this subchapter.
(b) Default risk adjustment charge. If
an issuer of a risk adjustment covered
plan fails to establish a dedicated
distributed data environment or fails to
provide HHS with access to the required
data in such environment in accordance
with § 153.610(a), § 153.700, § 153.710,
or § 153.730 such that HHS cannot
apply the applicable Federally certified
risk adjustment methodology to
calculate the risk adjustment payment
transfer amount for the risk adjustment
covered plan in a timely fashion, HHS
will assess a default risk adjustment
charge.
PART 155—EXCHANGE
ESTABLISHMENT STANDARDS AND
OTHER RELATED STANDARDS
UNDER THE AFFORDABLE CARE ACT
20. The authority citation for part 155
continues to read as follows:
tkelley on DSK3SPTVN1PROD with PROPOSALS3
■
Authority: Title I of the Affordable Care
Act, sections 1301, 1302, 1303, 1304, 1311,
1312, 1313, 1321, 1322, 1331, 1334, 1402,
1411, 1412, 1413, Pub. L. 111–148, 124 Stat.
119 (42 U.S.C. 18021–18024, 18031–18033,
18041–18042, 18051, 18054, 18071, and
18081–18083.
21. Section 155.20 is amended by
revising the definition for ‘‘Exchange’’
and by adding a definition for ‘‘Issuer
customer service representative’’ in
alphabetical order to read as follows:
■
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
§ 155.20
Definitions.
*
*
*
*
*
Exchange means a governmental
agency or non-profit entity that meets
the applicable standards of this part and
makes QHPs available to qualified
individuals and/or qualified employers.
Unless otherwise identified, this term
includes an Exchange serving the
individual market for qualified
individuals and a SHOP serving the
small group market for qualified
employers, regardless of whether the
Exchange is established and operated by
a State (including a regional Exchange
or subsidiary Exchange) or by HHS.
*
*
*
*
*
Issuer customer service representative
means an employee, contractor, or agent
of a QHP issuer that provides assistance
to applicants and enrollees, but is not
licensed as an agent, broker, or producer
under State law.
*
*
*
*
*
■ 22. Section 155.100 is amended by
revising paragraph (a) to read as follows:
§ 155.100 Establishment of a State
Exchange.
(a) General requirements. Each State
may elect to establish:
(1) An Exchange that facilitates the
purchase of health insurance coverage
in QHPs in the individual market and
that provides for the establishment of a
SHOP; or
(2) An Exchange that provides only
for the establishment of a SHOP.
(3) Timing. For plan years beginning
before January 1, 2015, only States with
a conditionally approved Exchange
Blueprint may elect to establish an
Exchange that provides only for the
establishment of a SHOP, pursuant to
the process in § 155.105(e). For plan
years beginning on or after January 1,
2015, any State may elect to establish an
Exchange that provides only for the
establishment of a SHOP, pursuant to
the process in § 155.106(a).
*
*
*
*
*
■ 23. Section 155.105 is amended by
revising paragraphs (b)(1), (b)(2) and (f)
to read as follows:
§ 155.105
Approval of a State Exchange.
*
*
*
*
*
(b) * * *
(1) The Exchange is able to carry out
the required functions of an Exchange
consistent with subparts C, D, E, H, and
K of this part unless the State is
approved to operate only a SHOP by
HHS pursuant to § 155.100(a)(2), in
which case the Exchange must perform
the minimum functions described in
subpart H and all applicable provisions
of other subparts referenced therein;
PO 00000
Frm 00051
Fmt 4701
Sfmt 4702
37081
(2) The Exchange is capable of
carrying out the information reporting
requirements in accordance with section
36B of the Code, unless the State is
approved to operate only a SHOP by
HHS pursuant to § 155.100(a)(2); and
*
*
*
*
*
(f) HHS operation of an Exchange. (1)
If a State does not elect to operate an
Exchange under § 155.100(a)(1) or an
electing State does not have an
approved or conditionally approved
Exchange pursuant to § 155.100(a)(1) by
January 1, 2013, HHS must (directly or
through agreement with a not-for-profit
entity) establish and operate such
Exchange within the State. In this case,
the requirements in § 155.120(c),
§ 155.130 and subparts C, D, E, H, and
K of this part will apply.
(2) If an electing State has an
approved or conditionally approved
Exchange pursuant to § 155.100(a)(2) by
January 1, 2013, HHS must (directly or
through agreement with a not-for-profit
entity) establish and operate an
Exchange that facilitates the purchase of
health insurance coverage in QHPs in
the individual market and operate such
Exchange within the State. In this case,
the requirements in § 155.120(c),
§ 155.130 and subparts C, D, E, and K
of this part will apply to the Exchange
operated by HHS.
■ 24. Section 155.140 is amended by
revising paragraph (c)(2)(ii) to read as
follows:
§ 155.140 Establishment of a regional
Exchange or subsidiary Exchange.
*
*
*
*
*
(c) * * *
(2) * * *
(ii) Encompass the same geographic
area for its regional or subsidiary SHOP
and its regional or subsidiary Exchange
except:
(A) In the case of a regional Exchange
established pursuant to § 155.100(a)(2),
the regional SHOP must encompass a
geographic area that matches the
combined geographic areas of the
individual market Exchanges
established to serve the same set of
States establishing the regional SHOP;
and
(B) In the case of a subsidiary
Exchange established pursuant to
§ 155.100(a)(2), the combined
geographic area of all subsidiary SHOPs
established in the State must encompass
the geographic area of the individual
market Exchange established to serve
the State.
■ 25. Section 155.200 is amended by
revising paragraph (a) to read as follows:
E:\FR\FM\19JNP3.SGM
19JNP3
37082
§ 155.200
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
Functions of an Exchange.
(a) General requirements. The
Exchange must perform the minimum
functions described in this subpart and
in subparts D, E, H, and K of this part
unless the State is approved to operate
only a SHOP by HHS pursuant to
§ 155.100(a)(2), in which case the
Exchange operated by the State must
perform the minimum functions
described in subpart H and all
applicable provisions of other subparts
referenced therein while the Exchange
operated by HHS must perform the
minimum functions described in this
subpart and in subparts D, E, and K of
this part.
*
*
*
*
*
■ 26. Section 155.220 is amended by
revising paragraph (c)(3)(i); by adding
paragraphs (c)(3)(vii), (c)(4), (d)(4), (f),
(g), and (h); by removing the word
‘‘and’’ from the end of paragraph
(c)(3)(v); and by removing the period at
the end of paragraph (c)(3)(vi) and by
adding ‘‘; and’’ in its place to read as
follows:—
§ 155.220 Ability of States to permit agents
and brokers to assist qualified individuals,
qualified employers, or qualified employees
enrolling in QHPs.
tkelley on DSK3SPTVN1PROD with PROPOSALS3
*
*
*
*
*
(c) * * *
(3) * * *
(i) Disclose and display all QHP
information provided by the Exchange
or directly by QHP issuers consistent
with the requirements of § 155.205(b)(1)
and § 155.205(c), and display a Web link
to the Exchange Web site;
*
*
*
*
*
(vii) For the Federally-facilitated
Exchange, prominently display language
notifying consumers that the agent’s or
broker’s Web site is not the Exchange
Web site, that the agent or broker’s Web
site might not display all QHP data
available on the Exchange Web site, that
the agent or broker has entered into an
agreement with HHS pursuant to
paragraph (d) of this section, and that
the agent or broker agrees to conform to
the standards specified in paragraph (c)
and (d) of this section.
(4) When an Internet Web site of an
agent or broker is used to complete the
QHP selection in the Federallyfacilitated Exchange, and an agent or
broker permits another agent or broker
to access or use the Web site pursuant
to an arrangement, the agent or broker
who makes the Web site available must
provide a list of agents and brokers who
enter into such an arrangement to the
Federally-facilitated Exchange, and
must ensure that any agent or broker
accessing or using the Web site pursuant
to the arrangement:
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
(i) Complies with paragraphs (c) and
(d) of this section; and
(ii) Complies with the policies and
procedures that the agent or broker
making the Web site available has
established pursuant to paragraph (d)(4)
of this section.
(d) * * *
(4) In the Federally-facilitated
Exchange, comply with the following
standards:
(i) Establish policies and procedures
to ensure compliance with paragraph
(d)(3) of this section;
(ii) Train its employees,
representatives, contractors and agents
with respect to the policies and
procedures established pursuant to
paragraph (d)(3) of this section on a
periodic basis; and
(iii) Ensure as a condition of contract
or agreement that its employees,
representatives, contractors, agents
comply with the policies and
procedures established pursuant to
paragraph (d)(3) of this section.
*
*
*
*
*
(f) Termination notice to HHS. (1) An
agent or broker may terminate its
agreement with HHS by sending to HHS
a written notice at least 30 days in
advance of the date of intended
termination.
(2) The notice must include the
intended date of termination, but if it
does not specify a date of termination,
or the date provided is not acceptable to
HHS, HHS may set a different
termination date that will be no less
than 30 days from the date on the agent
or broker’s notice of termination.
(3) When termination becomes
effective, the agent or broker will not be
able to assist any individual through the
Federally-facilitated Exchange, but the
agent or broker must continue to protect
PII created, collected, use or disclosed
during the term of the agreement with
the Federally-facilitated Exchange.
(g) Standards for termination for
cause from the Federally-facilitated
Exchange. (1) If, in HHS’s
determination, a specific finding of
noncompliance or pattern of
noncompliance is sufficiently severe,
HHS may terminate an agent’s or
broker’s agreement with the Federallyfacilitated Exchange for cause.
(2) An agent or broker may be
determined noncompliant if HHS finds
that the agent or broker violated—
(i) Any standard specified under this
section;
(ii) Any term or condition of its
agreement with the Federally-facilitated
Exchange required under paragraph (d)
of this section, including but not limited
to compliance with Federally-
PO 00000
Frm 00052
Fmt 4701
Sfmt 4702
Facilitated Exchange privacy and
security standards;
(iii) Any State law applicable to
agents or brokers, as required under
paragraph (e) of this section, including
but not limited to State laws related to
confidentiality and conflicts of interest;
or
(iv) Any Federal law applicable to
agents or brokers.
(3) HHS will notify the agent or broker
of the specific finding of noncompliance
or pattern of noncompliance, and after
30 days from the date of the notice, may
terminate the agreement for cause if the
matter is not resolved to the satisfaction
of HHS.
(4) After the period in paragraph (f)(3)
of this section has elapsed, the agent or
broker will no longer be registered with
the Federally-facilitated Exchange or
able to transact data through a secure
connection with HHS.
(h) Request for reconsideration of
termination for cause from the
Federally-facilitated Exchange. (1)
Request for reconsideration. An agent or
broker whose agreement with the
Federally-facilitated Exchange has been
terminated may request reconsideration
of such action in the manner and form
established by HHS.
(2) Timeframe for request. The agent
or broker must submit a request for
reconsideration to the HHS
reconsideration entity within 30
calendar days of the date of the written
notice from HHS.
(3) Notice of reconsideration decision.
The HHS reconsideration entity will
provide the agent or broker with a
written notice of the reconsideration
decision within 30 calendar days of the
date it receives the request for
reconsideration. This decision will
constitute HHS’s final determination.
■ 27. Section 155.270 is amended by
revising paragraph (a) to read as follows:
§ 155.270 Use of standards and protocols
for electronic transactions.
(a) HIPAA administrative
simplification. To the extent that the
Exchange performs electronic
transactions with a covered entity, the
Exchange must use standards,
implementation specifications,
operating rules, and code sets that are
adopted by the Secretary in 45 CFR
parts 160 and 162 or that are otherwise
approved by HHS.
*
*
*
*
*
■ 28. Section 155.280 is added to
subpart C to read as follows:
§ 155.280 Oversight and monitoring of
privacy and security requirements.
(a) General. HHS will oversee and
monitor the Federally-facilitated
E:\FR\FM\19JNP3.SGM
19JNP3
tkelley on DSK3SPTVN1PROD with PROPOSALS3
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
Exchanges and non-Exchange entities
associated with Federally-facilitated
Exchanges which are required to
comply with the privacy and security
standards established and implemented
by a Federally-facilitated Exchange
pursuant to § 155.260 for compliance
with those standards. HHS will oversee
and monitor State Exchanges for
compliance with the standards State
Exchanges establish and implement
pursuant to § 155.260. State Exchanges
will oversee and monitor non-Exchange
entities associated with the State
Exchanges for compliance with the
standards established and implemented
by the State Exchange pursuant to
§ 155.260.
(b) Audits and investigations. HHS
may conduct oversight activities that
include but are not limited to the
following: audits, investigations,
inspections, and any reasonable
activities necessary for appropriate
oversight of compliance with the
Exchange privacy and security
standards. HHS may also pursue civil,
criminal or administrative proceedings
or actions as determined necessary.
(c) Security and privacy incidents and
breaches. (1) The following definitions
apply to privacy and security incidents
and breaches:
(i) Incident means the act of violating
an explicit or implied security policy,
which includes attempts (either failed
or successful) to gain unauthorized
access to a system or its data, unwanted
disruption or denial of service, the
unauthorized use of a system for the
processing or storage of data; and
changes to system hardware, firmware,
or software characteristics without the
owner’s knowledge, instruction, or
consent.
(ii) Breach means the loss of control,
compromise, unauthorized disclosure,
unauthorized acquisition, unauthorized
access, or any similar term referring to
situations where persons other than
authorized users and for an other than
authorized purpose have access or
potential access to personally
identifiable information, whether
physical or electronic.
(2) Incident or breach management.
The entity where an incident or breach
occurs is responsible for managing the
incident or breach in accordance with
the entity’s documented incident
handling and breach notification
procedures.
(3) Reporting. Federally-facilitated
Exchanges, non-Exchange entities
associated with the Federally-facilitated
Exchange, and State Exchanges must
report all privacy and security incidents
and breaches to HHS within one (1)
hour of discovering the incident or
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
breach. A non-Exchange entity
associated with a State Exchange must
report all privacy and security incidents
and breaches to the State Exchange with
which they are associated.
■ 29. Section 155.310 is amended by
adding and reserving paragraph (j) and
adding paragraph (k) to read as follows:
§ 155.310
Eligibility process.
*
*
*
*
*
(j) [Reserved]
(k) Incomplete application. If an
application filer submits an application
that does not include sufficient
information for the Exchange to conduct
an eligibility determination for
enrollment in a QHP through the
Exchange or for insurance affordability
programs, if applicable, the Exchange
must—
(1) Provide notice to the applicant
indicating that information necessary to
complete an eligibility determination is
missing, specifying the missing
information, and providing instructions
on how to provide the missing
information; and
(2) Provide the applicant with a
period of no less than 15 days and no
more than 90 days from the date on
which the notice described in paragraph
(k)(1) of this section is sent to the
applicant to provide the information
needed to complete the application to
the Exchange.
(3) During the period described in
paragraph (k)(2) of this section, the
Exchange must not proceed with an
applicant’s eligibility determination or
provide advance payments of the
premium tax credit or cost-sharing
reductions, unless an application filer
has provided sufficient information to
determine his or her eligibility for
enrollment in a QHP through the
Exchange, in which case the Exchange
must make such a determination for
enrollment in a QHP.
■ 30. Section 155.320 is amended by
revising the section heading; by
redesignating paragraphs (b)(1) and
(b)(2) as paragraph (b)(1)(i) and (b)(1)(ii),
by revising newly designated paragraph
(b)(1), and by adding paragraph (b)(2) to
read as follows:
§ 155.320 Verification of eligibility for
minimum essential coverage other than
through an eligible employer-sponsored
plan.
*
*
*
*
*
(b) * * *
(1)(i) The Exchange must verify
whether an applicant is eligible for
minimum essential coverage other than
through an eligible employer-sponsored
plan, Medicaid, CHIP, or the BHP, using
information obtained by transmitting
PO 00000
Frm 00053
Fmt 4701
Sfmt 4702
37083
identifying information specified by
HHS to HHS for verification purposes.
(ii) The Exchange must verify whether
an applicant has already been
determined eligible for coverage through
Medicaid, CHIP, or the BHP, if a BHP
is operating in the service area of the
Exchange, within the State or States in
which the Exchange operates using
information obtained from the agencies
administering such programs.
(2) Consistent with § 164.512(k)(6)(i)
of this subchapter, a health plan that is
a government program providing public
benefits, is expressly authorized to
disclose protected health information,
as that term is defined at § 160.103 of
this subchapter, that relates to eligibility
for or enrollment in the health plan to
HHS for verification of applicant
eligibility for minimum essential
coverage as part of the eligibility
determination process for advance
payments of the premium tax credit or
cost-sharing reductions.
*
*
*
*
*
■ 31. Section 155.340 is amended by
adding paragraph (h) to read as follows:
§ 155.340 Administration of advance
payments of the premium tax credit and
cost-sharing reductions.
*
*
*
*
*
(h) Failure to reduce enrollee’s
premiums to account for advance
payments of the premium tax credits. If
the Exchange discovers that it did not
reduce an enrollee’s premium by the
amount of the advance payment of the
premium tax credit, then the Exchange
must refund to the enrollee any excess
premium paid by or for the enrollee and
notify the enrollee of the improper
reduction no later than 30 calendar days
after discovery of the improper
reduction
■ 32. Section 155.415 is added to read
as follows:
§ 155.415 Allowing issuer customer
service representatives to assist with
eligibility applications.
(a) Exchange option. An Exchange, to
the extent permitted by State law, may
permit issuer customer service
representatives who do not meet the
definition of agent or broker at § 155.20
to assist individuals in the individual
market with applying for a
determination or redetermination of
eligibility for coverage through the
Exchange and insurance affordability
programs, and to facilitate selection of a
QHP offered by the issuer represented
by the customer service representative,
provided that such issuer customer
service representatives meet the
requirements set forth in
§ 156.1230(a)(2) of this subchapter.
E:\FR\FM\19JNP3.SGM
19JNP3
37084
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
(b) [Reserved]
33. Section 155.420 is amended by
removing the period at the end of
paragraph (d)(9) and by adding ‘‘; and’’
in its place, and by adding paragraph
(d)(10) to read as follows:
■
§ 155.420
Special enrollment periods.
*
*
*
*
*
(d) * * *
(10) It has been determined by the
Exchange that a qualified individual
was not enrolled in QHP coverage, was
not enrolled in the QHP selected by the
individual, or is eligible for but is not
receiving advance payments of the
premium tax credit or cost-sharing
reductions as a result of misconduct on
the part of a non-Exchange entity
providing enrollment assistance or
conducting enrollment activities. For
purposes of this provision, misconduct
includes, but is not limited to, the
failure of the non-Exchange entity to
comply with applicable standards under
this part, part 156 of this subchapter, or
other applicable Federal or State laws,
as determined by the Exchange.
*
*
*
*
*
■ 34. In § 155.700, paragraph (b) is
amended by adding the definition of
‘‘SHOP application filer’’ in alphabetical
order to read as follows:
§ 155.700 Standards for the establishment
of a SHOP
*
*
*
*
*
(b) * * *
SHOP application filer means an
applicant, an authorized representative,
an agent or broker of the employer, or
an employer filing for its employees
where not prohibited by other law.
■ 35. Section 155.705 is amended by
revising paragraphs (b)(6)(i), and
(b)(6)(ii), and by adding paragraphs (c)
and (d) to read as follows:
§ 155.705
Functions of a SHOP.
tkelley on DSK3SPTVN1PROD with PROPOSALS3
*
*
*
*
*
(b) * * *
(6) * * *
(i) Require all QHP issuers to make
any change to rates at a uniform time
that is no more frequently than
quarterly.
(ii) In the FF–SHOP, rates may be
updated quarterly with effective dates of
January 1, April 1, July 1, or October 1
of each calendar year, beginning with
rates effective no sooner than July 1,
2014. The updated rates must be
submitted to HHS at least 60 days in
advance of the effective date of the rates.
*
*
*
*
*
(c) Coordination with individual
market Exchange for eligibility
determinations. A SHOP must provide
data related to eligibility and enrollment
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
of a qualified employee to the
individual market Exchange that
corresponds to the service area of the
SHOP, unless the SHOP is operated
pursuant to § 155.100(a)(2).
(d) Duties of Navigators in the SHOP.
In States that have elected to operate
only a SHOP pursuant to
§ 155.100(a)(2), at State option and if
State law permits the Navigator duties
described in § 155.210(e)(3) and
§ 155.210(e)(4) may be fulfilled through
referrals to agents and brokers.
■ 36. Section 155.730 is amended by
revising paragraph (f) to read as follows:
§ 155.730
Application standards for SHOP.
*
*
*
*
*
(f) The SHOP must:
(1) Accept applications from SHOP
application filers; and
(2) Provide the tools to file an
application via an Internet Web site.
*
*
*
*
*
■ 37. Section 155.735 is added to
subpart H to read as follows:
§ 155.735
Termination of coverage.
(a) General requirements. The SHOP
must determine the timing, form, and
manner in which coverage in a QHP
may be terminated.
(b) Termination of employer group
health coverage at the request of the
employer. (1) The SHOP must establish
policies for advance notice of
termination required from the employer
and effective dates of termination.
(2) In the FF–SHOP, an employer may
terminate coverage for all enrollees
covered by the employer group health
plan effective on the last day of any
month, provided that the employer has
given notice to the FF–SHOP on or
before the 15th day of any month. If
notice is given after the 15th of the
month, the FF–SHOP may terminate the
coverage on the last day of the following
month.
(c) Termination of employer group
health coverage for non-payment of
premiums. (1) The SHOP must establish
policies for termination for nonpayment of premiums, including but not
limited to policies regarding due dates
for payment of premiums to the SHOP,
grace periods, employer and employee
notices, and reinstatement provisions.
(2) In an FF–SHOP—
(i) For a given month of coverage,
premium payment is due by the first
day of the coverage month.
(ii) If premium payment is not
received 31 days from the first of the
coverage month, the FF–SHOP may
terminate the qualified employer for
lack of payment.
(iii) If a qualified employer is
terminated due to lack of premium
PO 00000
Frm 00054
Fmt 4701
Sfmt 4702
payment, but within 30 days following
its termination the qualified employer
requests reinstatement, pays all
premiums owed including any prior
premiums owed for coverage during the
grace period, and pays the premium for
the next month’s coverage, the FF–
SHOP must reinstate the qualified
employer in its previous coverage.
(d) Termination of employee or
dependent coverage. (1) The SHOP must
establish consistent policies regarding
the process for and effective dates of
termination of employee or dependent
coverage in the following
circumstances:
(i) The employee or dependent is no
longer eligible for coverage under the
employer’s group health plan;
(ii) The employee requests that the
SHOP terminate the coverage of the
employee or a dependent of the
employee under the employer’s group
health plan;
(iii) The QHP in which the employee
is enrolled terminates or is decertified
as described in § 155.1080;
(iv) The enrollee changes from one
QHP to another during the employer’s
annual open enrollment period or
during a special enrollment period in
accordance with § 155.725(j); or
(v) The enrollee’s coverage is
rescinded in accordance with § 147.128
of this subchapter.
(2) In the FF–SHOP, termination is
effective on the last day of the month in
which the FF–SHOP receives notice of
an event described in paragraph (d)(1) of
this section, and notice must have been
received by the FF–SHOP prior to the
proposed date of termination.
(e) Termination of coverage tracking
and approval. The SHOP must comply
with the standards described in
§ 155.430(c).
(f) Effective date. The provisions of
§ 155.735 apply to coverage—
(1) Beginning on or after January 1,
2015; and
(2) In any SHOP providing qualified
employers with the option described in
§ 155.705(b)(2) or the option described
in § 155.705(b)(4) before January 1,
2015, beginning with the date that
option is offered.
38. Subpart M is added to read as
follows:
■
Subpart M—Oversight and Program
Integrity Standards for State
Exchanges
Sec.
155.1200 General program integrity and
oversight requirements.
155.1210 Maintenance of records.
E:\FR\FM\19JNP3.SGM
19JNP3
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
Subpart M—Oversight and Program
Integrity Standards for State
Exchanges
§ 155.1200 General program integrity and
oversight requirements.
(a) General requirement. A State
Exchange must:
(1) Keep an accurate accounting of
Exchange receipts and expenditures in
accordance with generally accepted
accounting principles (GAAP).
(2) Monitor and report to HHS on
Exchange related activities.
(3) Collect and report to HHS
performance monitoring data.
(b) Reporting. The State Exchange
must, at least annually, provide to HHS,
in a manner specified by HHS, the
following data and information:
(1) A financial statement presented in
accordance with GAAP by April 1 of
each year,
(2) Eligibility and enrollment reports,
and
(3) Performance monitoring data.
(c) External audits. The State
Exchange must engage an independent
qualified auditing entity which follows
generally accepted governmental
auditing standards (GAGAS) to perform
an annual independent external
financial and programmatic audit and
must make such information available
to HHS for review. The State must:
(1) Provide to HHS the results of the
annual external audit; and
(2) Inform HHS of any material
weakness or significant deficiency and
any intended corrective action
identified in the audit;
(d) External audit standard. The State
Exchange must ensure that independent
audits of State Exchange financial
statements and program activities in
paragraph (c) of this section address:
(1) Compliance with paragraph (a)(1)
of this section;
(2) Compliance with requirements
under subparts D, E, and K of this part;
(3) Processes and procedures designed
to prevent improper eligibility
determinations and enrollment
transactions; and
(4) Identification of errors that have
resulted in incorrect eligibility
determinations.
tkelley on DSK3SPTVN1PROD with PROPOSALS3
§ 155.1210
Maintenance of records.
(a) General. The State Exchange must
maintain and must ensure its
contractors, subcontractors, and agents
maintain for 10 years, documents and
records (whether paper, electronic, or
other media) and other evidence of
accounting procedures and practices,
which are sufficient to do the following:
(1) Accommodate periodic auditing of
the State Exchange’s financial records;
and
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
37085
(2) Enable HHS or its designee(s) to
inspect facilities, or otherwise evaluate
the State- Exchange’s compliance with
Federal standards.
(b) Records. The State Exchange and
its contractors, subcontractors, and
agents must ensure that the records
specified in paragraph (a) of this section
include, at a minimum, the following:
(1) Information concerning
management and operation of the State
Exchange’s financial and other record
keeping systems;
(2) Financial statements, including
cash flow statements, and accounts
receivable and matters pertaining to the
costs of operations;
(3) Any financial reports filed with
other Federal programs or State
authorities;
(4) Data and records relating to the
State Exchange’s eligibility verifications
and determinations, enrollment
transactions, appeals, and plan variation
certifications; and
(5) Qualified health plan contracting
(including benefit review) data and
consumer outreach and Navigator grant
oversight information.
(c) A State Exchange must make all
records and must ensure its contractors,
subcontractors, and agents must make
all records in paragraph (a) of this
section available to HHS, the OIG, the
Comptroller General, or their designees,
upon request.
Downstream entity means any party,
including an agent or broker, that enters
into an agreement with a delegated
entity or with another downstream
entity for purposes of providing
administrative or health care services
related to the agreement between the
delegated entity and the QHP issuer.
The term ‘‘downstream entity’’ is
intended to reach the entity that directly
provides administrative services or
health care services to qualified
individuals, qualified employers, or
qualified employees and their
dependents.
Enrollee satisfaction survey vendor
means an organization has relevant
survey administration experience (e.g.,
CAHPS® surveys), organizational survey
capacity, and quality control procedures
for survey administration.
*
*
*
*
*
Exchange has the meaning given to
the term in § 155.20 of this subchapter.
*
*
*
*
*
Registered user of the enrollee
satisfaction survey data warehouse
means enrollee satisfaction survey
vendors, QHP issuers, and Exchanges
authorized to access CMS’s secure data
warehouse to submit survey data and to
preview survey results prior to public
reporting.
■ 41. Section 156.80 is amended by
adding paragraph (d)(3) to read as
follows:
PART 156—HEALTH INSURANCE
ISSUER STANARDS UNDER THE
AFFORDABLE CARE ACT, INCLUDING
STANDARDS RELATED TO
EXCHANGES
§ 156.80
39. The authority citation for part 156
continues to read as follows:
■
Authority: Title I of the Affordable Care
Act, sections 1301–1304, 1311–1313, 1321,
1322, 1324, 1334, 1342–1343, and 1401–
1402, Pub. L. 111–148, 124 Stat. 119 (42
U.S.C. 18042).
40. Section 156.20 is amended by
adding definitions for ‘‘Delegated
entity,’’ ‘‘Downstream entity,’’ ‘‘Enrollee
satisfaction survey vendor,’’
‘‘Exchange,’’ and ‘‘Registered user of the
enrollee satisfaction survey data
warehouse,’’ in alphabetical order to
read as follows:
■
§ 156.20
Definitions
*
*
*
*
*
Delegated entity means any party,
including an agent or broker, that enters
into an agreement with a QHP issuer to
provide administrative services or
health care services to qualified
individuals, qualified employers, or
qualified employees and their
dependents.
PO 00000
Frm 00055
Fmt 4701
Sfmt 4702
Single risk pool.
*
*
*
*
*
(d) * * *
(3) Frequency of index rate and planlevel adjustments. A health insurance
issuer may make the market-wide index
rate adjustment described in paragraph
(d)(1) of this section or the plan-level
adjustments described in paragraph
(d)(2) of this section—
(i) With respect to the individual
market or markets in which the
individual and small group risk pools
were merged by the State pursuant to
paragraph (c) of this section, on an
annual basis.
(ii) With respect to the small group
market, on an annual basis, and
beginning the quarter after HHS issues
notification that the FF–SHOP can
process quarterly rate updates, on a
quarterly basis.
*
*
*
*
*
■ 42. Section 156.285 is amended by
revising paragraphs (d)(1)(i) and (iii) to
read as follows:
§ 156.285
SHOP.
*
Additional standards specific to
*
*
(d) * * *
(1) * * *
E:\FR\FM\19JNP3.SGM
19JNP3
*
*
37086
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
(i) (A) Effective in plan years
beginning on or after January 1, 2015,
requirements regarding termination of
coverage established in § 155.735 of this
subchapter, if applicable to the coverage
being terminated; otherwise
(B) General requirements regarding
termination of coverage established in
§ 155.270 of this subchapter.
*
*
*
*
*
(iii) (A) Effective in plan years
beginning on or after January 1, 2015,
requirements regarding termination of
coverage effective dates as set forth in
§ 155.735 of this subchapter, if
applicable to the coverage being
terminated; otherwise
(B) Requirements regarding
termination of coverage effective dates
as set forth in § 156.270(i).
*
*
*
*
*
■ 43. Subpart D is added to read as
follows:
Subpart D—Federally-Facilitated Exchange
Qualified Health Plan Issuer Standards
Sec.
156.330 Changes of ownership in a
Federally-Facilitated Exchange.
156.340 Standards for downstream and
delegated entities.
Subpart D—Federally-Facilitated
Exchange Qualified Health Plan Issuer
Standards
§ 156.330 Changes of ownership in a
Federally-Facilitated Exchange.
When a QHP issuer that offers one or
more QHPs in a Federally-facilitated
Exchange undergoes a change of
ownership as recognized by the State in
which the issuer offers the QHP, the
QHP issuer must notify HHS of the
change in a manner to be specified by
HHS, and provide the legal name and
Taxpayer Identification Number (TIN) of
the new owner and the effective date of
the change at least 30 days prior to the
effective date of the change of
ownership. The new owner must agree
to adhere to all applicable statutes and
regulations.
tkelley on DSK3SPTVN1PROD with PROPOSALS3
§ 156.340 Standards for downstream and
delegated entities.
(a) General requirement. Effective
October 1, 2013, notwithstanding any
relationship(s) that a QHP issuer may
have with delegated and downstream
entities, a QHP issuer maintains
responsibility for its compliance and the
compliance of any of its delegated or
downstream entities, as applicable, with
all applicable standards, including—
(1) Standards of subpart C of part 156
with respect to each of its QHPs on an
ongoing basis;
(2) Exchange processes, procedures,
and standards in accordance with
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
subparts H and K of part 155 and, in the
small group market, § 155.705 of this
subchapter;
(3) Standards of § 155.220 of this
subchapter with respect to assisting
with enrollment in QHPs; and
(4) Standards of § 156.705 and
§ 156.715 for maintenance of records
and compliance reviews for QHP issuers
operating in a Federally-facilitated
Exchange or FF–SHOP.
(b) Delegation agreement
specifications. If any of the QHP issuer’s
activities or obligations, in accordance
with paragraph (a) of this section, are
delegated to other parties, the QHP
issuer’s agreement with any delegated or
downstream entity must—
(1) Specify the delegated activities
and reporting responsibilities;
(2) Provide for revocation of the
delegated activities and reporting
standards or specify other remedies in
instances where HHS or the QHP issuer
determines that such parties have not
performed satisfactorily;
(3) Specify that the delegated or
downstream entity must comply with
all applicable laws and regulations
relating to the standards specified under
paragraph (a) of this section;
(4) Specify that the delegated or
downstream entity must permit access
by the Secretary and the OIG or their
designees in connection with their right
to evaluate through audit, inspection, or
other means, to the delegated or
downstream entity’s books, contracts,
computers, or other electronic systems,
including medical records and
documentation, relating to the QHP
issuer’s obligations in accordance with
Federal standards under paragraph (a) of
this section until 10 years from the final
date of the agreement period; and
(5) Contain specifications described in
paragraph (b) of this section by no later
than January 1, 2015, for existing
agreements; and no later than the
effective date of the agreement for
agreements that are newly entered into
as of October 1, 2013.
■ 44. Section 156.400 is amended by
revising the definition of ‘‘Most
generous or more generous’’ to read as
follows:
§ 156.400
Definitions.
*
*
*
*
*
Most generous or more generous
means, as between a QHP (including a
standard silver plan) or plan variation
and one or more other plan variations of
the same QHP, the standard plan or plan
variation designed for the category of
individuals last listed in § 155.305(g)(3)
of this subchapter. Least generous or
less generous has the opposite meaning.
*
*
*
*
*
PO 00000
Frm 00056
Fmt 4701
Sfmt 4702
45. Section 156.410 is amended by
adding paragraphs (c) and (d) to read as
follows:
■
§ 156.410 Cost-sharing reductions for
enrollees.
*
*
*
*
*
(c) Improper cost-sharing reductions.
(1) If a QHP issuer fails to ensure that
an individual assigned to a plan
variation receives the cost-sharing
reductions required under the
applicable plan variation, taking into
account § 156.425(b) concerning
continuity of deductibles and out-ofpocket amounts (if applicable), then the
QHP issuer must, no later than 30
calendar days after discovery of the
application of the cost-sharing
reduction, refund any resulting excess
cost sharing paid by or for the enrollee
and notify the enrollee of the improper
application.
(2) If a QHP issuer provides an
individual assigned to a plan variation
more cost-sharing reductions than
required under the applicable plan
variation, taking into account
§ 156.425(b) concerning continuity of
deductibles and out-of-pocket amounts
(if applicable), then the QHP issuer will
not be eligible for reimbursement of any
excess cost-sharing reductions provided
to the enrollee, and may not seek
reimbursement from the enrollee or the
applicable provider for any of the excess
cost-sharing reductions.
(d) Improper assignment. If a QHP
issuer does not assign an individual to
the applicable plan variation (or
standard plan without cost-sharing
reductions) in accordance with
§ 156.410(b) and § 156.425(a) based on
the eligibility and enrollment
information or notification provided by
the Exchange, then the QHP issuer
must, no later than 30 calendar days
after discovery of the improper
assignment, reassign the enrollee to the
applicable plan variation (or standard
plan without cost-sharing reductions)
and notify the enrollee of the improper
assignment such that—
(1) If, pursuant to a reassignment
under this paragraph (d), a QHP issuer
reassigns an enrollee from a more
generous plan variation to a less
generous plan variation of a QHP (or a
standard plan without cost-sharing
reductions), the QHP issuer will not be
eligible for reimbursement for any of the
excess cost-sharing reductions provided
to the enrollee following the effective
date of eligibility required by the
Exchange, and may not seek
reimbursement from the enrollee or the
applicable provider for any of the excess
cost-sharing reductions.
E:\FR\FM\19JNP3.SGM
19JNP3
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
(2) If, pursuant to a reassignment
under this paragraph (d), a QHP issuer
reassigns an enrollee from a less
generous plan variation (or a standard
plan without cost-sharing reductions) to
a more generous plan variation of a
QHP, the QHP issuer must recalculate
the enrollee’s liability for cost sharing
paid between the effective date of
eligibility required by the Exchange and
the date the issuer effectuated the
change, and must refund any excess cost
sharing paid by or for the enrollee
during such period, no later than 30
calendar days after discovery of the
improper assignment.
■ 46. Section 156.460 is amended by
adding paragraph (c) to read as follows:
§ 156.460 Reduction of enrollee’s share of
premium to account for advance payments
of the premium tax credit.
*
*
*
*
*
(c) Refunds to enrollees for improper
reduction of enrollee’s share of
premium to account for advance
payments of the premium tax credit. If
a QHP issuer discovers that it did not
reduce the portion of the premium
charged to or for an enrollee for the
applicable month(s) by the amount of
the advance payment of the premium
tax credit in accordance with paragraph
(a)(1) of this section, the QHP issuer
must refund to the enrollee any excess
premium paid by or for the enrollee and
notify the enrollee of the improper
reduction no later than 30 calendar days
after the QHP issuer’s discovery of the
improper reduction.
■ 47. Section 156.480 is added to
subpart E to read as follows:
tkelley on DSK3SPTVN1PROD with PROPOSALS3
§ 156.480 Oversight of the administration
of the cost-sharing reductions and advance
payments of the premium tax credit
programs.
(a) Maintenance of records. An issuer
that offers a QHP in the individual
market through a State Exchange must
adhere to, and ensure that any relevant
delegated entities and downstream
entities adhere to, the standards set
forth in § 156.705 concerning
maintenance of documents and records,
whether paper, electronic, or in other
media, by issuers offering QHPs in a
Federally-facilitated Exchange, in
connection with cost-sharing reductions
and advance payments of the premium
tax credit.
(b) Annual reporting requirements.
For each benefit year, an issuer that
offers a QHP in the individual market
through an Exchange must report to
HHS, in the manner and timeframe
required by HHS, summary statistics
specified by HHS with respect to
administration of cost-sharing reduction
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
and advance payments of the premium
tax credit programs.
(c) Audits. HHS or its designee may
audit an issuer that offers a QHP in the
individual market through an Exchange
to assess compliance with the
requirements of this subpart.
Subpart G—[Added and Reserved]
48. Subpart G is added and reserved.
■ 49. Subpart H is added to read as
follows:
■
Subpart H—Oversight and Financial
Integrity Standards for Issuers of Qualified
Health Plans in Federally-Facilitated
Exchanges
Sec.
156.705 Maintenance of records for the
Federally-Facilitated Exchange.
156.715 Investigations and compliance
reviews in Federally-facilitated
Exchanges.
Subpart H—Oversight and Financial
Integrity Standards for Issuers of
Qualified Health Plans in Federallyfacilitated Exchanges
§ 156.705 Maintenance of records for the
Federally-facilitated Exchange.
(a) General standard. Issuers offering
QHPs in a Federally-facilitated
Exchange must maintain all documents
and records (whether paper, electronic,
or other media) and other evidence of
accounting procedures and practices,
necessary for HHS to do the following:
(1) Periodically audit financial
records related to QHP issuers’
participation in a Federally-facilitated
Exchange, and evaluate the ability of
QHP issuers to bear the risk of potential
financial losses; and
(2) Conduct compliance reviews or
otherwise monitor QHP issuers’
compliance with all Exchange standards
applicable to issuers offering QHPs in a
Federally-facilitated Exchange as listed
in this part.
(b) Records. The records described in
paragraph (a) of this section include the
sources listed in § 155.1210(b)(2), (b)(3),
and (b)(5) of this subchapter.
(c) Record retention timeframe.
Issuers offering QHPs in a Federallyfacilitated Exchange must maintain all
records referenced in paragraph (a) of
this section for 10 years.
(d) Record availability. Issuers
offering QHPs in a Federally-facilitated
Exchange must make all records in
paragraph (a) of this section available to
HHS, the OIG, the Comptroller General,
or their designees, upon request.
§ 156.715 Investigations and compliance
reviews in Federally-facilitated Exchanges.
(a) General standard. Issuers offering
QHPs in the Federally-facilitated
PO 00000
Frm 00057
Fmt 4701
Sfmt 4702
37087
Exchange may be subject to compliance
reviews to ensure ongoing compliance
with Exchange standards applicable to
issuers offering QHPs in the Federallyfacilitated Exchange.
(b) Records. In preparation for or in
the course of the compliance review, a
QHP issuer must make available for
HHS to review the records of the QHP
issuer that pertain to its activities within
the Federally-facilitated Exchange. Such
records may include, but are not limited
to the following:
(1) The QHP issuer’s books and
contracts, including the QHP issuer’s
policy manuals and other QHP plan
benefit information provided to the QHP
issuer’s enrollees;
(2) The QHP issuer’s policies and
procedures, protocols, standard
operating procedures, or other similar
manuals related to the QHP issuer’s
activities in the Federally-facilitated
Exchange;
(3) Any other information reasonably
necessary for HHS to—
(i) Evaluate the QHP issuer’s
compliance with QHP certification
standards and other Exchange standards
applicable to issuers offering QHPs in
the Federally-facilitated Exchange;
(ii) Evaluate the QHP’s performance,
including its adherence to an effective
compliance plan, within the Federallyfacilitated Exchange;
(iii) Verify that the QHP issuer has
performed the duties attested to as part
of the QHP certification process; and
(iv) Assess the likelihood of fraud or
abuse.
(c) Interest of qualified individuals
and qualified employers. HHS’s findings
from the compliance reviews under this
section may be in conjunction with
other finds related to the QHP issuers’
compliance with certification standards,
used to confirm that permitting the
issuer’s QHPs to be available through
the Federally-facilitated Exchange is in
the interest of the qualified individuals
and qualified employers as provided
under § 155.1000(c)(2) of this
subchapter.
(d) Onsite and desk reviews. The QHP
issuer will make available, for the
purposes listed in paragraph (c) of this
section, its premises, physical facilities
and equipment (including computer and
other electronic systems), for HHS to
conduct a compliance review as
provided under this section.
(1) A compliance review under this
section will be carried out as an onsite
or desk review based on the specific
circumstances.
(2) Unless otherwise specified,
nothing in this section is intended to
preempt Federal laws and regulations
E:\FR\FM\19JNP3.SGM
19JNP3
37088
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
related to information privacy and
security.
(e) Compliance review timeframe. A
QHP issuer may be subject to a
compliance review up to 10 years from
the last day of that plan benefit year, or
10 years from the last day that the QHP
certification is effective if the QHP is no
longer available through a Federallyfacilitated Exchange; provided,
however, that if the 10 year review
period falls during an ongoing
compliance review, the review period
would be extended until the compliance
review is completed.
50. Subpart I is added to read as
follows:
■
Subpart I—Enforcement Remedies in
Federally-Facilitated Exchanges
Sec.
156.800 Available remedies; Scope.
156.805 Bases and process for imposing
civil money penalties in Federallyfacilitated Exchanges.
156.810 Bases and process for
decertification of a QHP offered by an
issuer through a Federally-facilitated
Exchange.
Subpart I—Enforcement Remedies in
Federally-facilitated Exchanges
§ 156.800
Available remedies; Scope.
(a) Kinds of sanctions. HHS may
impose the following types of sanctions
on QHP issuers in a Federally-facilitated
Exchange that are not in compliance
with Exchange standards applicable to
issuers offering QHPs in the Federallyfacilitated Exchange:
(1) Civil money penalties as specified
in § 156.805; and
(2) Decertification of a QHP offered by
the non-compliant QHP issuer in a
Federally-facilitated Exchange as
described in § 156.810.
(b) Scope. Sanctions under this
subpart are applicable only for noncompliance with QHP issuer
participation standards and other
standards applicable to issuers offering
QHPs in a Federally-facilitated
Exchange.
tkelley on DSK3SPTVN1PROD with PROPOSALS3
§ 156.805 Bases and process for imposing
civil money penalties in Federally-facilitated
Exchanges.
(a) Grounds for imposing civil money
penalties. Civil money penalties may be
imposed on an issuer in a Federallyfacilitated Exchange by HHS if, based on
credible evidence, HHS has reasonably
determined that the issuer has engaged
in one or more of the following actions:
(1) Misconduct in the Federallyfacilitated Exchange or substantial noncompliance with the Exchange
standards applicable to issuers offering
QHPs in the Federally-facilitated
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
Exchange under subparts C through G of
part 153 of this subchapter;
(2) Limiting the QHP’s enrollees’
access to medically necessary items and
services that are required to be covered
as a condition of the QHP issuer’s
ongoing participation in the Federallyfacilitated Exchange, if the limitation
has adversely affected or has a
substantial likelihood of adversely
affecting one or more enrollees in the
QHP offered by the QHP issuer;
(3) Imposing on enrollees premiums
in excess of the monthly beneficiary
premiums permitted by Federal
standards applicable to QHP issuers
participating in the Federally-facilitated
Exchange;
(4) Engaging in any practice that
would reasonably be expected to have
the effect of denying or discouraging
enrollment into a QHP offered by the
issuer (except as permitted by this part)
by qualified individuals whose medical
condition or history indicates the
potential for a future need for significant
medical services or items;
(5) Intentionally or recklessly
misrepresenting or falsifying
information that it furnishes—
(i) To HHS; or
(ii) To an individual or entity upon
which HHS relies to make its
certifications or evaluations of the QHP
issuer’s ongoing compliance with
Exchange standards applicable to
issuers offering QHPs in the Federallyfacilitated Exchange;
(6) Failure to remit user fees assessed
under § 156.50(c); or
(7) Failure to comply with the costsharing reductions and advance
payments of the premium tax credit
standards of subpart E of this part.
(b) Factors in determining the amount
of civil money penalties assessed. In
determining the amount of civil money
penalties, HHS may take into account
the following:
(1) The QHP issuer’s previous or
ongoing record of compliance;
(2) The level of the violation, as
determined in part by—
(i) The frequency of the violation,
taking into consideration whether any
violation is an isolated occurrence,
represents a pattern, or is widespread;
and
(ii) The magnitude of financial and
other impacts on enrollees and qualified
individuals; and
(3) Aggravating or mitigating
circumstances, or other such factors as
justice may require, including
complaints about the issuer with regard
to the issuer’s compliance with the
medical loss ratio standards required by
the Affordable Care Act and as codified
by applicable regulations.
PO 00000
Frm 00058
Fmt 4701
Sfmt 4702
(c) Maximum penalty. The maximum
amount of penalty imposed for each
violation is $100 for each day for each
QHP issuer for each individual
adversely affected by the QHP issuer’s
non-compliance; and where the number
of individuals cannot be determined,
HHS may estimate the number of
individuals adversely affected by the
violation.
(d) Notice of intent to issue civil
money penalty. If HHS proposes to
assess a civil money penalty in
accordance with this part, HHS will
send a written notice of this decision
to—
(1) The QHP issuer against whom the
civil money penalty is being imposed,
whose notice must include the
following:
(i) A description of the basis for the
determination;
(ii) The basis for the penalty;
(iii) The amount of the penalty;
(iv) The date the penalty is due;
(v) An explanation of the issuer’s right
to a hearing under subpart J of this part;
and
(vi) Information about where to file
the request for hearing.
(e) Failure to request a hearing. (1) If
the QHP issuer does not request a
hearing within 30 days of the issuance
of the notice described in paragraph
(d)(1) of this section, HHS may assess
the proposed civil money penalty.
(2) HHS will notify the QHP issuer in
writing of any penalty that has been
assessed and of the means by which the
responsible entity may satisfy the
judgment.
(3) The QHP issuer has no right to
appeal a penalty with respect to which
it has not requested a hearing in
accordance with subpart J of this part
unless the QHP issuer can show good
cause, as determined under
§ 156.905(b), for failing to timely
exercise its right to a hearing.
§ 156.810 Bases and process for
decertification of a QHP offered by an
issuer through a Federally-facilitated
Exchange.
(a) Bases for decertification. A QHP
may be decertified on one or more of the
following grounds:
(1) The QHP issuer substantially fails
to comply with the Federal laws and
regulations applicable to QHP issuers
participating in the Federally-facilitated
Exchange;
(2) The QHP issuer substantially fails
to comply with the standards related to
the risk adjustment, reinsurance, or risk
corridors programs under 45 CFR Part
153, including providing HHS with
valid risk adjustment, reinsurance or
risk corridors data;
E:\FR\FM\19JNP3.SGM
19JNP3
tkelley on DSK3SPTVN1PROD with PROPOSALS3
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
(3) The QHP issuer substantially fails
to comply with the transparency and
marketing standards in §§ 156.220 and
156.225;
(4) The QHP issuer substantially fails
to comply with the standards regarding
advance payments of the premium tax
credit and cost-sharing in subpart E of
this part;
(5) The QHP issuer is operating in the
Federally-facilitated Exchange in a
manner that hinders the efficient and
effective administration of the
Exchange;
(6) The QHP no longer meets the
conditions of the applicable certification
criteria;
(7) Based on credible evidence, the
QHP issuer has committed or
participated in fraudulent or abusive
activities, including submission of false
or fraudulent data;
(8) The QHP issuer substantially fails
to meet the requirements under
§ 156.230 related to network adequacy
standards or, § 156.235 related to
inclusion of essential community
providers;
(9) The QHP issuer substantially fails
to comply with the law and regulations
related to internal claims and appeals
and external review processes; or
(10) The State recommends to HHS
that the QHP should no longer be
available in a Federally-facilitated
Exchange.
(b) State sanctions and
determinations. (1) State sanctions.
HHS may consider regulatory or
enforcement actions taken by a State
against a QHP issuer as a factor in
determining whether to decertify a QHP
offered by that issuer.
(2) State determinations. HHS may
decertify a QHP offered by an issuer in
a Federally-facilitated Exchange based
on a determinations or actions by a State
as it relates to the issuer offering QHPs
in a Federally-facilitated Exchange,
including when a State places an issuer
or its parent organization into
receivership or when the State
recommends to HHS that the QHP no
longer be available in a Federallyfacilitated Exchange.
(c) Standard decertification process.
For decertification actions on grounds
other than those described in
§ 156.810(a)(7), (a)(8), or (a)(9), HHS will
provide written notices to the QHP
issuer, enrollees in that QHP, and the
State department of insurance in the
State in which the QHP is being
decertified. The written notice must
include the following:
(1) The effective date of the
decertification, which will be a date
specified by HHS that is no earlier than
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
30 days after the date of issuance of the
notice;
(2) The reason for the decertification,
including the regulation or regulations
that are the basis for the decertification;
(3) For the written notice to the QHP
issuer, information about the effect of
the decertification on the ability of the
issuer to offer the QHP in the Federallyfacilitated Exchange and must include
information about the procedure for
appealing the decertification by making
a hearing request; and
(4) The written notice to the QHP
enrollees must include information
about the effect of the decertification on
enrollment in the QHP and about the
availability of a special enrollment
period, as described in § 155.420 of this
subchapter.
(d) Expedited decertification process.
For decertification actions on grounds
described in § 156.810(a)(7), (a)(8), or
(a)(9), HHS will provide written notice
to the QHP issuer, enrollees, and the
State department of insurance in the
State in which the QHP is being
decertified. The written notice must
include the following:
(1) The effective date of the
decertification, which will be a date
specified by HHS; and
(2) The information required by
paragraphs (c)(2) through (c)(4) of this
section.
(e) Appeals. An issuer may appeal the
decertification of a QHP offered by that
issuer under paragraph (c) or (d) of this
section by filing a request for hearing
under subpart J of this part.
(1) Effect of request for hearing. If an
issuer files a request for hearing under
this paragraph,
(i) If the decertification is under
paragraph (c) of this section, the
decertification will not take effect prior
to the issuance of the final
administrative decision in the appeal,
notwithstanding the effective date
specified in the notice under paragraph
(c)(1) of this section.
(ii) If the decertification is under
paragraph (d) of this section, the
decertification will be effective on the
date specified in the notice of
decertification, but the certification of
the QHP may be reinstated immediately
upon issuance of a final administrative
decision that the QHP should not be
decertified.
(2) [Reserved]
51. Subpart J is added to read as
follows:
■
Subpart J—Administrative Review of QHP
Issuer Sanctions in Federally-Facilitated
Exchanges
Sec.
156.901 Definitions.
PO 00000
Frm 00059
Fmt 4701
Sfmt 4702
37089
156.903 Scope of Administrative Law
Judge’s (ALJ) authority.
156.905 Filing of request for hearing.
156.907 Form and content of request for
hearing.
156.909 Amendment of notice of
assessment or decertification request for
hearing.
156.911 Dismissal of request for hearing.
156.913 Settlement.
156.915 Intervention.
156.917 Issues to be heard and decided by
ALJ.
156.919 Forms of hearing.
156.921 Appearance of counsel.
156.923 Communications with the ALJ.
156.925 Motions.
156.927 Form and service of submissions.
156.929 Computation of time and
extensions of time.
156.931 Acknowledgment of request for
hearing.
156.935 Discovery.
156.937 Submission of briefs and proposed
hearing exhibits.
156.939 Effect of submission of proposed
hearing exhibits.
156.941 Prehearing conferences.
156.943 Standard of proof.
156.945 Evidence.
156.947 The record.
156.949 Cost of transcripts.
156.951 Posthearing briefs.
156.953 ALJ decision.
156.955 Sanctions.
156.957 Review by Administrator.
156.959 Judicial review.
156.961 Failure to pay assessment.
156.963 Final order not subject to review.
Subpart J—Administrative Review of
QHP Issuer Sanctions in FederallyFacilitated Exchanges
§ 156.901
Definitions.
In this subpart, unless the context
indicates otherwise:
ALJ means administrative law judge
of the Departmental Appeals Board of
HHS.
Filing date means the date
postmarked by the U.S. Postal Service,
deposited with a carrier for commercial
delivery, or hand delivered.
Hearing includes a hearing on a
written record as well as an in-person or
telephone hearing.
Party means HHS or the respondent.
Receipt date means five days after the
date of a document, unless there is a
showing that it was in fact received
later.
Respondent means an entity that
received a notice of proposed
assessment of a civil money penalty
issued pursuant to § 156.805 or a notice
of decertification pursuant to
§ 156.810(c) or § 156.810(d).
§ 156.903 Scope of Administrative Law
Judge’s (ALJ) authority.
(a) The ALJ has the authority,
including all of the authority conferred
E:\FR\FM\19JNP3.SGM
19JNP3
37090
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
by the Administrative Procedure Act (5
U.S.C. 554a), to adopt whatever
procedures may be necessary or proper
to carry out in an efficient and effective
manner the ALJ’s duty to provide a fair
and impartial hearing on the record and
to issue an initial decision concerning
the imposition of a civil money penalty
or the decertification of a QHP offered
in a Federally-facilitated Exchange.
(b) The ALJ’s authority includes the
authority to modify, consistent with the
Administrative Procedures Act (5 U.S.C.
552a), any hearing procedures set out in
this subpart.
(c) The ALJ does not have the
authority to find invalid or refuse to
follow Federal statutes or regulations.
§ 156.911
§ 156.905
§ 156.913
Filing of request for hearing.
(a) A respondent has a right to a
hearing before an ALJ if it files a request
for hearing that complies with
§ 156.907(a), within 30 days after the
date of issuance of either HHS’ notice of
proposed assessment under § 156.805,
notice of decertification of a QHP under
§ 156.810(c) or § 156.810(d). The request
for hearing should be addressed as
instructed in the notice of proposed
determination. ‘‘Date of issuance’’ is five
(5) days after the filing date, unless
there is a showing that the document
was received earlier.
(b) The ALJ may extend the time for
filing a request for hearing only if the
ALJ finds that the respondent was
prevented by events or circumstances
beyond its control from filing its request
within the time specified above. Any
request for an extension of time must be
made promptly by written motion.
§ 156.907
hearing.
Form and content of request for
tkelley on DSK3SPTVN1PROD with PROPOSALS3
(a) The request for hearing must do
the following:
(1) Identify any factual or legal bases
for the assessment or decertifications
with which the respondent disagrees.
(2) Describe with reasonable
specificity the basis for the
disagreement, including any affirmative
facts or legal arguments on which the
respondent is relying.
(b) Identify the relevant notice of
assessment or decertification by date
and attach a copy of the notice.
§ 156.909 Amendment of notice of
assessment or decertification request for
hearing.
The ALJ may permit CMS to amend
its notice of assessment or
decertification, or permit the respondent
to amend a request for hearing that
complies with § 156.907(a), if the ALJ
finds that no undue prejudice to either
party will result.
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
Dismissal of request for hearing.
An ALJ will order a request for
hearing dismissed if the ALJ determines
that:
(a) The request for hearing was not
filed within 30 days as specified by
§ 156.905(a) or any extension of time
granted by the ALJ pursuant to
§ 156.905(b).
(b) The request for hearing fails to
meet the requirements of § 156.907.
(c) The entity that filed the request for
hearing is not a respondent under
§ 156.901.
(d) The respondent has abandoned its
request.
(e) The respondent withdraws its
request for hearing.
Settlement.
HHS has exclusive authority to settle
any issue or any case, without the
consent of the ALJ at any time before or
after the ALJ’s decision.
§ 156.915
Intervention.
(a) The ALJ may grant the request of
an entity, other than the respondent, to
intervene if all of the following occur:
(1) The entity has a significant interest
relating to the subject matter of the case.
(2) Disposition of the case will, as a
practical matter, likely impair or impede
the entity’s ability to protect that
interest.
(3) The entity’s interest is not
adequately represented by the existing
parties.
(4) The intervention will not unduly
delay or prejudice the adjudication of
the rights of the existing parties.
(b) A request for intervention must
specify the grounds for intervention and
the manner in which the entity seeks to
participate in the proceedings. Any
participation by an intervenor must be
in the manner and by any deadline set
by the ALJ.
(c) The Department of Labor (DOL) or
the Internal Revenue Service (IRS) may
intervene without regard to paragraphs
(a)(1) through (a)(3) of this section.
§ 156.917
by ALJ.
Issues to be heard and decided
(a) The ALJ has the authority to hear
and decide the following issues:
(1) Whether a basis exists to assess a
civil money penalty against the
respondent.
(2) Whether the amount of the
assessed civil money penalty is
reasonable.
(3) Whether a basis exists to decertify
a QHP offered by the respondent in the
Federally-facilitated Exchange.
(b) In deciding whether the amount of
a civil money penalty is reasonable, the
ALJ—
PO 00000
Frm 00060
Fmt 4701
Sfmt 4702
(1) Will apply the factors that are
identified in § 156.805 for civil money
penalties.
(2) May consider evidence of record
relating to any factor that HHS did not
apply in making its initial
determination, so long as that factor is
identified in this subpart.
(c) If the ALJ finds that a basis exists
to assess a civil money penalty, the ALJ
may sustain, reduce, or increase the
penalty that HHS assessed
§ 156.919
Forms of hearing.
(a) All hearings before an ALJ are on
the record. The ALJ may receive
argument or testimony in writing, in
person, or by telephone. The ALJ may
receive testimony by telephone only if
the ALJ determines that doing so is in
the interest of justice and economy and
that no party will be unduly prejudiced.
The ALJ may require submission of a
witness’ direct testimony in writing
only if the witness is available for crossexamination.
(b) The ALJ may decide a case based
solely on the written record where there
is no disputed issue of material fact the
resolution of which requires the receipt
of oral testimony.
§ 156.921
Appearance of counsel.
Any attorney who is to appear on
behalf of a party must promptly file,
with the ALJ, a notice of appearance.
§ 156.923
Communications with the ALJ.
No party or person (except employees
of the ALJ’s office) may communicate in
any way with the ALJ on any matter at
issue in a case, unless on notice and
opportunity for both parties to
participate. This provision does not
prohibit a party or person from
inquiring about the status of a case or
asking routine questions concerning
administrative functions or procedures.
§ 156.925
Motions.
(a) Any request to the ALJ for an order
or ruling must be by motion, stating the
relief sought, the authority relied upon,
and the facts alleged. All motions must
be in writing, with a copy served on the
opposing party, except in either of the
following situations:
(1) The motion is presented during an
oral proceeding before an ALJ at which
both parties have the opportunity to be
present.
(2) An extension of time is being
requested by agreement of the parties or
with waiver of objections by the
opposing party.
(b) Unless otherwise specified in this
subpart, any response or opposition to
a motion must be filed within 20 days
of the party’s receipt of the motion. The
E:\FR\FM\19JNP3.SGM
19JNP3
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
ALJ does not rule on a motion before the
time for filing a response to the motion
has expired except where the response
is filed at an earlier date, where the
opposing party consents to the motion
being granted, or where the ALJ
determines that the motion should be
denied.
§ 156.927 Form and service of
submissions.
(a) Every submission filed with the
ALJ must be filed in triplicate, including
one original of any signed documents,
and include:
(1) A caption on the first page, setting
forth the title of the case, the docket
number (if known), and a description of
the submission (such as ‘‘Motion for
Discovery’’).
(2) The signatory’s name, address, and
telephone number.
(3) A signed certificate of service,
specifying each address to which a copy
of the submission is sent, the date on
which it is sent, and the method of
service.
(b) A party filing a submission with
the ALJ must, at the time of filing, serve
a copy of such submission on the
opposing party. An intervenor filing a
submission with the ALJ must, at the
time of filing, serve a copy of the
submission on all parties. Service must
be made by mailing or hand delivering
a copy of the submission to the
opposing party. If a party is represented
by an attorney, service must be made on
the attorney.
tkelley on DSK3SPTVN1PROD with PROPOSALS3
§ 156.929 Computation of time and
extensions of time.
(a) For purposes of this subpart, in
computing any period of time, the time
begins with the day following the act,
event, or default and includes the last
day of the period unless it is a Saturday,
Sunday, or legal holiday observed by
the Federal government, in which event
it includes the next business day. When
the period of time allowed is less than
seven days, intermediate Saturdays,
Sundays, and legal holidays observed by
the Federal government are excluded
from the computation.
(b) The period of time for filing any
responsive pleading or papers is
determined by the date of receipt (as
defined in § 156.901) of the submission
to which a response is being made.
(c) The ALJ may grant extensions of
the filing deadlines specified in these
regulations or set by the ALJ for good
cause shown (except that requests for
extensions of time to file a request for
hearing may be granted only on the
grounds specified in § 156.905(b)).
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
§ 156.931
hearing.
Acknowledgment of request for
After receipt of the request for
hearing, the ALJ assigned to the case or
someone acting on behalf of the ALJ will
send a letter to the parties that
acknowledges receipt of the request for
hearing, identifies the docket number
assigned to the case, provides
instructions for filing submissions and
other general information concerning
procedures, and sets out the next steps
in the case.
§ 156.935
Discovery.
(a) The parties must identify any need
for discovery from the opposing party as
soon as possible, but no later than the
time for the reply specified in
§ 156.937(c). Upon request of a party,
the ALJ may stay proceedings for a
reasonable period pending completion
of discovery if the ALJ determines that
a party would not be able to make the
submissions required by § 156.937
without discovery. The parties should
attempt to resolve any discovery issues
informally before seeking an order from
the ALJ.
(b) Discovery devices may include
requests for production of documents,
requests for admission, interrogatories,
depositions, and stipulations. The ALJ
orders interrogatories or depositions
only if these are the only means to
develop the record adequately on an
issue that the ALJ must resolve to
decide the case.
(c) Each discovery request must be
responded to within 30 days of receipt,
unless that period of time is extended
for good cause by the ALJ.
(d) A party to whom a discovery
request is directed may object in writing
for any of the following reasons:
(1) Compliance with the request is
unduly burdensome or expensive.
(2) Compliance with the request will
unduly delay the proceedings.
(3) The request seeks information that
is wholly outside of any matter in
dispute.
(4) The request seeks privileged
information. Any party asserting a claim
of privilege must sufficiently describe
the information or document being
withheld to show that the privilege
applies. If an asserted privilege applies
to only part of a document, a party
withholding the entire document must
state why the nonprivileged part is not
segregable.
(5) The disclosure of information
responsive to the discovery request is
prohibited by law.
(e) Any motion to compel discovery
must be filed within 10 days after
receipt of objections to the party’s
discovery request, within 10 days after
PO 00000
Frm 00061
Fmt 4701
Sfmt 4702
37091
the time for response to the discovery
request has elapsed if no response is
received, or within 10 days after receipt
of an incomplete response to the
discovery request. The motion must be
reasonably specific as to the information
or document sought and must state its
relevance to the issues in the case.
§ 156.937 Submission of briefs and
proposed hearing exhibits.
(a) Within 60 days of its receipt of the
acknowledgment provided for in
§ 156.931, the respondent must file the
following with the ALJ:
(1) A statement of its arguments
concerning CMS’s notice of assessment
or decertification (respondent’s brief),
including citations to the respondent’s
hearing exhibits provided in accordance
with paragraph (a)(2) of this section.
The brief may not address factual or
legal bases for the assessment or
decertification that the respondent did
not identify as disputed in its request
for hearing or in an amendment to that
request permitted by the ALJ.
(2) All documents (including any
affidavits) supporting its arguments,
tabbed and organized chronologically
and accompanied by an indexed list
identifying each document.
(3) A statement regarding whether
there is a need for an in-person hearing
and, if so, a list of proposed witnesses
and a summary of their expected
testimony that refers to any factual
dispute to which the testimony will
relate.
(4) Any stipulations or admissions.
(b) Within 30 days of its receipt of the
respondent’s submission required by
paragraph (a) of this section, CMS will
file the following with the ALJ:
(1) A statement responding to the
respondent’s brief, including the
respondent’s proposed hearing exhibits,
if appropriate. The statement may
include citations to CMS’s proposed
hearing exhibits submitted in
accordance with paragraph (b)(2) of this
section.
(2) Any documents supporting CMS’s
response not already submitted as part
of the respondent’s proposed hearing
exhibits, organized and indexed as
indicated in paragraph (a)(2) of this
section (CMS’s proposed hearing
exhibits).
(3) A statement regarding whether
there is a need for an in-person hearing
and, if so, a list of proposed witnesses
and a summary of their expected
testimony that refers to any factual
dispute to which the testimony will
relate.
(4) Any admissions or stipulations.
(c) Within 15 days of its receipt of
CMS’s submission required by
E:\FR\FM\19JNP3.SGM
19JNP3
37092
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
paragraph (b) of this section, the
respondent may file with the ALJ a
reply to CMS’s submission.
§ 156.939 Effect of submission of
proposed hearing exhibits.
(a) Any proposed hearing exhibit
submitted by a party in accordance with
§ 156.937 is deemed part of the record
unless the opposing party raises an
objection to that exhibit and the ALJ
rules to exclude it from the record. An
objection must be raised either in
writing prior to the prehearing
conference provided for in § 156.941 or
at the prehearing conference. The ALJ
may require a party to submit the
original hearing exhibit on his or her
own motion or in response to a
challenge to the authenticity of a
proposed hearing exhibit.
(b) A party may introduce a proposed
hearing exhibit following the times for
submission specified in § 156.937 only
if the party establishes to the
satisfaction of the ALJ that it could not
have produced the exhibit earlier and
that the opposing party will not be
prejudiced.
§ 156.941
Prehearing conferences.
An ALJ may schedule one or more
prehearing conferences (generally
conducted by telephone) on the ALJ’s
own motion or at the request of either
party for the purpose of any of the
following:
(a) Hearing argument on any
outstanding discovery request.
(b) Establishing a schedule for any
supplements to the submissions
required by § 156.937 because of
information obtained through discovery.
(c) Hearing argument on a motion.
(d) Discussing whether the parties can
agree to submission of the case on a
stipulated record.
(e) Establishing a schedule for an inperson hearing, including setting
deadlines for the submission of written
direct testimony or for the written
reports of experts.
(f) Discussing whether the issues for
a hearing can be simplified or narrowed.
(g) Discussing potential settlement of
the case.
(h) Discussing any other procedural or
substantive issues.
tkelley on DSK3SPTVN1PROD with PROPOSALS3
§ 156.943
Standard of proof.
(a) In all cases before an ALJ—
(1) CMS has the burden of coming
forward with evidence sufficient to
establish a prima facie case;
(2) The respondent has the burden of
coming forward with evidence in
response, once CMS has established a
prima facie case; and
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
(3) CMS has the burden of persuasion
regarding facts material to the
assessment or decertification; and
(4) The respondent has the burden of
persuasion regarding facts relating to an
affirmative defense.
(b) The preponderance of the
evidence standard applies to all cases
before the ALJ.
§ 156.945
Evidence.
(a) The ALJ will determine the
admissibility of evidence.
(b) Except as provided in this part, the
ALJ will not be bound by the Federal
Rules of Evidence. However, the ALJ
may apply the Federal Rules of
Evidence where appropriate; for
example, to exclude unreliable
evidence.
(c) The ALJ excludes irrelevant or
immaterial evidence.
(d) Although relevant, evidence may
be excluded if its probative value is
substantially outweighed by the danger
of unfair prejudice, confusion of the
issues, or by considerations of undue
delay or needless presentation of
cumulative evidence.
(e) Although relevant, evidence is
excluded if it is privileged under
Federal law.
(f) Evidence concerning offers of
compromise or settlement made in this
action will be inadmissible to the extent
provided in the Federal Rules of
Evidence.
(g) Evidence of acts other than those
at issue in the instant case is admissible
in determining the amount of any civil
money penalty if those acts are used
under § 156.805 of this part to consider
the entity’s prior record of compliance,
or to show motive, opportunity, intent,
knowledge, preparation, identity, or
lack of mistake. This evidence is
admissible regardless of whether the
acts occurred during the statute of
limitations period applicable to the acts
that constitute the basis for liability in
the case and regardless of whether HHS’
notice sent in accordance with § 156.805
referred to them.
(h) The ALJ will permit the parties to
introduce rebuttal witnesses and
evidence.
(i) All documents and other evidence
offered or taken for the record will be
open to examination by all parties,
unless the ALJ orders otherwise for good
cause shown.
(j) The ALJ may not consider evidence
regarding the willingness and ability to
enter into and successfully complete a
corrective action plan when that
evidence pertains to matters occurring
after HHS’ notice under § 156.805(d) or
§ 156.810(c) or § 156.810(d).
PO 00000
Frm 00062
Fmt 4701
Sfmt 4702
§ 156.947
The record.
(a) Any testimony that is taken inperson or by telephone is recorded and
transcribed. The ALJ may order that
other proceedings in a case, such as a
prehearing conference or oral argument
of a motion, be recorded and
transcribed.
(b) The transcript of any testimony,
exhibits and other evidence that is
admitted, and all pleadings and other
documents that are filed in the case
constitute the record for purposes of an
ALJ decision.
(c) For good cause, the ALJ may order
appropriate redactions made to the
record.
§ 156.949
Cost of transcripts.
Generally, each party is responsible
for 50 percent of the transcript cost.
Where there is an intervenor, the ALJ
determines what percentage of the
transcript cost is to be paid for by the
intervenor.
§ 156.951
Posthearing briefs.
Each party is entitled to file proposed
findings and conclusions, and
supporting reasons, in a posthearing
brief. The ALJ will establish the
schedule by which such briefs must be
filed. The ALJ may direct the parties to
brief specific questions in a case and
may impose page limits on posthearing
briefs. Additionally, the ALJ may allow
the parties to file posthearing reply
briefs.
§ 156.953
ALJ decision.
The ALJ will issue an initial agency
decision based only on the record and
on applicable law; the decision will
contain findings of fact and conclusions
of law. The ALJ’s decision is final and
appealable after 30 days unless it is
modified or vacated under § 156.957.
§ 156.955
Sanctions.
(a) The ALJ may sanction a party or
an attorney for failing to comply with an
order or other directive or with a
requirement of a regulation, for
abandonment of a case, or for other
actions that interfere with the speedy,
orderly or fair conduct of the hearing.
Any sanction that is imposed will relate
reasonably to the severity and nature of
the failure or action.
(b) A sanction may include any of the
following actions:
(1) In the case of failure or refusal to
provide or permit discovery, drawing
negative fact inferences or treating such
failure or refusal as an admission by
deeming the matter, or certain facts, to
be established.
(2) Prohibiting a party from
introducing certain evidence or
E:\FR\FM\19JNP3.SGM
19JNP3
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
otherwise advocating a particular claim
or defense.
(3) Striking pleadings, in whole or in
part.
(4) Staying the case.
(5) Dismissing the case.
(6) Entering a decision by default.
(7) Refusing to consider any motion or
other document that is not filed in a
timely manner.
(8) Taking other appropriate action.
tkelley on DSK3SPTVN1PROD with PROPOSALS3
§ 156.957
Review by Administrator.
(a) The Administrator of CMS (which
for purposes of this section may include
his or her delegate), at his or her
discretion, may review in whole or in
part any initial agency decision issued
under § 156.953.
(b) The Administrator may decide to
review an initial agency decision if it
appears from a preliminary review of
the decision (or from a preliminary
review of the record on which the initial
agency decision was based, if available
at the time) that:
(1) The ALJ made an erroneous
interpretation of law or regulation.
(2) The initial agency decision is not
supported by substantial evidence.
(3) The ALJ has incorrectly assumed
or denied jurisdiction or extended his or
her authority to a degree not provided
for by statute or regulation.
(4) The ALJ decision requires
clarification, amplification, or an
alternative legal basis for the decision.
(5) The ALJ decision otherwise
requires modification, reversal, or
remand.
(c) Within 30 days of the date of the
initial agency decision, the
Administrator will mail a notice
advising the respondent of any intent to
review the decision in whole or in part.
(d) Within 30 days of receipt of a
notice that the Administrator intends to
review an initial agency decision, the
respondent may submit, in writing, to
the Administrator any arguments in
support of, or exceptions to, the initial
agency decision.
(e) This submission of the information
indicated in paragraph (d) of this
section must be limited to issues the
Administrator has identified in his or
her notice of intent to review, if the
Administrator has given notice of an
intent to review the initial agency
decision only in part. A copy of this
submission must be sent to the other
party.
(f) After receipt of any submissions
made pursuant to paragraph (d) of this
section and any additional submissions
for which the Administrator may
provide, the Administrator will affirm,
reverse, modify, or remand the initial
agency decision. The Administrator will
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
mail a copy of his or her decision to the
respondent.
(g) The Administrator’s decision will
be based on the record on which the
initial agency decision was based (as
forwarded by the ALJ to the
Administrator) and any materials
submitted pursuant to paragraphs (b),
(d), and (f) of this section.
(h) The Administrator’s decision may
rely on decisions of any courts and
other applicable law, whether or not
cited in the initial agency decision.
§ 156.959
Judicial review.
(a) Filing of an action for review. Any
responsible entity against whom a final
order imposing a civil money penalty or
decertification of a QHP is entered may
obtain review in the United States
District Court for any district in which
the entity is located or in the United
States District Court for the District of
Columbia by doing the following:
(1) Filing a notice of appeal in that
court within 30 days from the date of a
final order.
(2) Simultaneously sending a copy of
the notice of appeal by registered mail
to HHS.
(b) Certification of administrative
record. HHS promptly certifies and files
with the court the record upon which
the penalty was assessed.
(c) Standard of review. The findings
of HHS and the ALJ may not be set aside
unless they are found to be unsupported
by substantial evidence, as provided by
5 U.S.C. 706(2)(E).
§ 156.961
Failure to pay assessment.
If any entity fails to pay an assessment
after it becomes a final order, or after the
court has entered final judgment in
favor of CMS, CMS refers the matter to
the Attorney General, who brings an
action against the entity in the
appropriate United States district court
to recover the amount assessed.
§ 156.963
Final order not subject to review.
In an action brought under § 156.961,
the validity and appropriateness of the
final order described in § 156.945 is not
subject to review.
52. Subpart K is added to read as
follows:
■
Subpart K—Cases Forwarded to
Qualified Health Plans and Qualified
Health Plan Issuers in FederallyFacilitated Exchanges
§ 156.1010
Standards.
(a) A case is a communication brought
by a complainant that expresses
dissatisfaction with a specific person or
entity subject to State or Federal laws
regulating insurance, concerning the
PO 00000
Frm 00063
Fmt 4701
Sfmt 4702
37093
person or entity’s activities related to
the offering of insurance, other than a
communication with respect to an
adverse benefit determination as
defined in § 147.136(a)(2)(i) of this
subchapter. Issues related to adverse
benefit determinations are not
addressed in this section and are subject
to the provisions in § 147.136 of this
subchapter governing internal claims
appeals and external review.
(b) QHP issuers operating in a
Federally-facilitated Exchange must
investigate and resolve, as appropriate,
cases from the complainant forwarded
to the issuer by HHS. Cases received by
a QHP issuer operating in a Federallyfacilitated Exchange directly from a
complainant or the complainant’s
authorized representative will be
handled by the issuer through its
internal customer service process.
(c) Cases may be forwarded to a QHP
issuer operating in a Federallyfacilitated Exchange through a casework
tracking system developed by HHS or
other means as determined by HHS.
(d) Cases received by a QHP issuer
operating in a Federally-facilitated
Exchange from HHS must be resolved
within 15 calendar days of receipt of the
case. Urgent cases as defined in
§ 156.1010(e) that do not otherwise fall
within the scope of § 147.136 of this
subchapter must be resolved no later
than 72 hours after receipt of the case.
Where applicable State laws and
regulations establish timeframes for case
resolution that are stricter than the
standards contained in this paragraph,
QHP issuers operating in a Federallyfacilitated Exchange must comply with
such stricter laws and regulations.
(e) For cases received from HHS by a
QHP issuer operating in a Federallyfacilitated Exchange, an urgent case is
one in which there is an immediate
need for health services because the
non-urgent standard could seriously
jeopardize the enrollee’s or potential
enrollee’s life, or health or ability to
attain, maintain, or regain maximum
function.
(f) For cases received from HHS, QHP
issuers operating in a Federallyfacilitated Exchange are required to
notify complainants regarding the
disposition of the as soon as possible
upon resolution of the case, but in no
event later than seven (7) business days
after the case is resolved. Notification
may be by verbal or written means as
determined most appropriate by the
QHP issuer.
(g) For cases received from HHS, QHP
issuers operating in a Federallyfacilitated Exchange must use the
casework tracking system developed by
HHS, or other means as determined by
E:\FR\FM\19JNP3.SGM
19JNP3
37094
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
HHS, to document, no later than seven
(7) business days after resolution of the
case, that the case has been resolved.
The record must include a clear and
concise narrative explaining how the
case was resolved including information
about how and when the complainant
was notified of the resolution.
(h) Cases received by a QHP issuer
operating in a Federally-facilitated
Exchange from a State in which the
issuer offers QHPs must be investigated
and resolved according to applicable
State laws and regulations. With respect
to cases directly handled by the State,
HHS or any other appropriate regulatory
authority, QHP issuers operating in a
Federally-facilitated Exchange must
cooperate fully with the efforts of the
State, HHS, or other regulatory authority
to resolve the case.
53. Subpart L is added to read as
follows:
■
Subpart L—Quality Standards
tkelley on DSK3SPTVN1PROD with PROPOSALS3
§ 156.1105 Establishment of standards for
HHS-approved enrollee satisfaction survey
vendors for use by QHP issuers in
Exchanges.
(a) Application for approval. An
enrollee satisfaction survey vendor must
be approved by HHS, in a form and
manner to be determined by HHS, to
administer, on behalf of a QHP issuer,
enrollee satisfaction surveys to QHP
enrollees. HHS will approve enrollee
satisfaction survey vendors on an
annual basis, and each enrollee
satisfaction survey vendor must submit
an application for each year that
approval is sought.
(b) Standards. To be approved by
HHS, an enrollee satisfaction survey
vendor must meet each of the following
standards:
(1) Sign and submit an application
form for approval in accordance with
paragraph (a) of this section;
(2) Ensure, on an annual basis, that
appropriate staff participate in enrollee
satisfaction survey vendor training and
successfully complete a post-training
certification exercise as established by
HHS;
(3) Ensure the accuracy of their data
collection, calculation and submission
processes and attest to HHS the veracity
of the data and these processes;
(4) Sign and execute a standard HHS
data use agreement, in a form and
manner to be determined by HHS, that
establishes protocols related to the
disclosure, use, and reuse of HHS data;
(5) Adhere to the enrollee satisfaction
survey protocols and technical
specifications in a manner and form
required by HHS;
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
(6) Develop and submit to HHS a
quality assurance plan and any
supporting documentation as
determined to be relevant by HHS. The
plan must describe in adequate detail
the implementation of and compliance
with all required protocols and
technical specifications described in
paragraph (b)(5) of this section;
(7) Adhere to privacy and security
standards established and implemented
under § 155.260 of this subchapter by
the Exchange with which they are
associated;
(8) Comply with all applicable State
and Federal laws;
(9) Become a registered user of the
enrollee satisfaction survey data
warehouse to submit files to HHS on
behalf of its authorized QHP contracts;
(10) Participate in and cooperate with
HHS oversight for quality-related
activities, including, but not limited to:
review of the enrollee satisfaction
survey vendor’s quality assurance plan
and other supporting documentation;
analysis of the vendor’s submitted data
and sampling procedures; and site visits
and conference calls; and,
(11) Comply with minimum business
criteria as established by HHS.
(c) Approved list. A list of approved
enrollee satisfaction survey vendors will
be published on an HHS Web site.
54. Subpart M is added to read as
follows:
■
Subpart M—Qualified Health Plan Issuer
Responsibilities
Sec.
156.1210 Confirmation of HHS payment
and collections reports.
156.1230 Direct enrollment with the QHP
issuer in a manner considered to be
through the Exchange.
156.1240 Enrollment process for qualified
individuals.
Subpart M—Qualified Health Plan
Issuer Responsibilities
§ 156.1210 Confirmation of HHS payment
and collections reports.
Within 15 calendar days of the date of
a payment and collections report from
HHS, the issuer must, in a format
specified by HHS, either:
(a) Confirm to HHS that the amounts
identified in the payment and
collections report for the timeframe
specified in the report accurately
reflects applicable payments owed by
the issuer to HHS and the payments
owed to the issuer by HHS; or
(b) Describe to HHS any inaccuracy it
identifies in the payment and
collections report.
PO 00000
Frm 00064
Fmt 4701
Sfmt 4702
§ 156.1230 Direct enrollment with the QHP
issuer in a manner considered to be
through the Exchange.
(a) A QHP issuer that is directly
contacted by a potential applicant may,
at the Exchange’s option, enroll such
applicant in a QHP in a manner that is
considered through the Exchange. In
order for the enrollment to be made
directly with the issuer in a manner that
is considered to be through the
Exchange, the QHP issuer needs to
comply with at least the following
requirements:
(1) QHP issuer general requirements.
(i) The QHP issuer follows the
enrollment process for qualified
individuals consistent with § 156.265.
(ii) The QHP issuer’s Web site
provides applicants the ability to view
QHPs offered by the issuer with the data
elements listed in § 155.205(b)(1)(i)
through (viii) of this subchapter.
(iii) The QHP issuer’s Web site clearly
distinguishes between QHPs for which
the consumer is eligible and other nonQHPs that the issuer may offer, and
indicate that APTC and CSRs apply only
to QHPs offered through the Exchange.
(iv) The QHP issuer informs all
applicants of the availability of other
QHP products offered through the
Exchange and displays the Web link to
or describes how to access the Exchange
Web site.
(v) The QHP issuer’s Web site allows
applicants to select and attest to an
APTC amount, if applicable, in
accordance with § 155.310(d)(2) of this
subchapter.
(2) QHP issuer customer service
representative eligibility application
assistance requirements. If permitted by
the Exchange pursuant to § 155.415 of
this subchapter, and to the extent
permitted by State law, a QHP issuer
may permit its issuer customer service
representatives who do not meet the
definition of agent or broker at § 155.20
of this subchapter to assist individuals
in the individual market with applying
for a determination or redetermination
of eligibility for coverage through the
Exchange and for insurance affordability
programs, and to facilitate selection of a
QHP offered by the issuer represented
by the customer service representative,
provided that such issuer customer
service representatives comply with the
terms of an agreement between the
issuer and the Exchange under which
the issuer customer service
representative at least—
(i) Receives training on QHP options
and insurance affordability programs,
eligibility, and benefits rules and
regulations;
(ii) Complies with the Exchange’s
privacy and security standards adopted
E:\FR\FM\19JNP3.SGM
19JNP3
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 / Proposed Rules
tkelley on DSK3SPTVN1PROD with PROPOSALS3
consistent with § 155.260 of this
subchapter; and
(iii) Complies with applicable State
law related to the sale, solicitation, and
negotiation of health insurance
products, including applicable State law
related to agent, broker, and producer
licensure; confidentiality; and conflicts
of interest.
(3) Premium accuracy requirements.
A QHP issuer must ensure that
(i) The premium it charges to an
enrollee is the same amount as was
accepted by the Exchange in its
certification of the QHP issuer after
accounting for any applicable APTC.
(ii) No later than 30 calendar days
after discovery of an incorrect amount it
has charged an enrollee, retroactively
correct any incorrect amounts collected.
(iii) For issuers of QHPs in a
Federally-facilitated Exchange, it allows
HHS to review the premiums charged to
VerDate Mar<15>2010
18:02 Jun 18, 2013
Jkt 229001
qualified individuals through
compliance reviews as set forth in
§ 156.715(a).
(b) Direct enrollment in a Federallyfacilitated Exchange. The individual
market Federally-facilitated Exchanges
will permit issuers of QHPs in each
Federally-facilitated Exchange to
directly enroll applicants in a manner
that is considered to be through the
Exchange, pursuant to paragraph (a) of
this section, to the extent permitted by
applicable State law.
§ 156.1240 Enrollment process for
qualified individuals.
(a) Premium payment. A QHP issuer
must—
(1) Follow the premium payment
process established by the Exchange in
accordance with § 155.240.
(2) Offer method of payment options
that do not discriminate against
PO 00000
Frm 00065
Fmt 4701
Sfmt 9990
37095
individuals without bank accounts or
credit cards.
(b) [Reserved]
(Catalog of Federal Domestic Assistance
Program No. 93.778, Medical Assistance
Program)
(Catalog of Federal Domestic Assistance
Program No. 93.773, Medicare—Hospital
Insurance; and Program No. 93.774,
Medicare—Supplementary Medical
Insurance Program)
Dated: May 28, 2013.
Marilyn Tavenner,
Administrator, Centers for Medicare &
Medicaid Services.
Approved: May 31, 2013
Kathleen Sebelius,
Secretary, Department of Health and Human
Services.
[FR Doc. 2013–14540 Filed 6–14–13; 1:00 pm]
BILLING CODE 4120–01–P
E:\FR\FM\19JNP3.SGM
19JNP3
]]>Agencies
[Federal Register Volume 78, Number 118 (Wednesday, June 19, 2013)]
[Proposed Rules]
[Pages 37031-37095]
From the Federal Register Online via the Government Printing Office [www.gpo.gov]
[FR Doc No: 2013-14540]
[GRAPHIC] [TIFF OMITTED] TP19JN13.005
[[Page 37024]]
[GRAPHIC] [TIFF OMITTED] TP19JN13.006
[[Page 37025]]
[GRAPHIC] [TIFF OMITTED] TP19JN13.007
[[Page 37026]]
[GRAPHIC] [TIFF OMITTED] TP19JN13.008
[[Page 37027]]
[GRAPHIC] [TIFF OMITTED] TP19JN13.009
[[Page 37028]]
[GRAPHIC] [TIFF OMITTED] TP19JN13.010
[[Page 37029]]
[GRAPHIC] [TIFF OMITTED] TP19JN13.011
[[Page 37030]]
[GRAPHIC] [TIFF OMITTED] TP19JN13.012
* * * * *
GLOSSARY OF TERMS
* * * * *
Conditional demand feature Has the meaning provided in rule 2a-7.
* * * * *
Credit rating agency Any nationally recognized statistical rating
organizations, as that term is defined in section 3(a)(62) of the
Securities Exchange Act of 1934.
* * * * *
Demand feature Has the meaning provided in rule 2a-7.
* * * * *
Guarantee For purposes of Question 63, has the meaning provided in
paragraph (a)(16)(i) of rule 2a-7.
Guarantor For purposes of Question 63, the provider of any
guarantee.
* * * * *
Illiquid security Has the meaning provided in rule 2a-7.
* * * * *
Maturity The maturity of the relevant asset, determined without
reference to the maturity shortening provisions contained in paragraph
(i) of rule 2a-7 regarding interest rate readjustments.
* * * * *
Risk limiting conditions The conditions specified in paragraph (d)
of rule 2a-7.
* * * * *
WAL Weighted average portfolio maturity of a liquidity fund
calculated taking into account the maturity shortening provisions
contained in paragraph (i) of rule 2a-7, but determined without
reference to the exceptions in paragraph (i) of rule 2a-7 regarding
interest rate readjustments.
WAM Weighted average portfolio maturity of a liquidity fund
calculated taking into account the maturity shortening provisions
contained in paragraph (i) of rule 2a-7
By the Commission.
Dated: June 5, 2013.
Elizabeth M. Murphy,
Secretary.
[FR Doc. 2013-13687 Filed 6-18-13; 8:45 am]
BILLING CODE 8011-01-P
[[Page 37031]]
Vol. 78
Wednesday,
No. 118
June 19, 2013
Part III
Department of Health and Human Services
-----------------------------------------------------------------------
45 CFR Parts 144, 147, 153, et al.
Patient Protection and Affordable Care Act; Program Integrity:
Exchange, SHOP, Premium Stabilization Programs, and Market Standards;
Proposed Rule
Federal Register / Vol. 78, No. 118 / Wednesday, June 19, 2013 /
Proposed Rules
[[Page 37032]]
-----------------------------------------------------------------------
DEPARTMENT OF HEALTH AND HUMAN SERVICES
45 CFR Parts 144, 147, 153, 155, and 156
[CMS-9957-P]
RIN 0938-AR82
Patient Protection and Affordable Care Act; Program Integrity:
Exchange, SHOP, Premium Stabilization Programs, and Market Standards
AGENCY: Centers for Medicare & Medicaid Services (CMS), HHS.
ACTION: Proposed rule.
-----------------------------------------------------------------------
SUMMARY: This proposed rule sets forth financial integrity and
oversight standards with respect to Affordable Insurance Exchanges;
Qualified Health Plan (QHP) issuers in Federally-facilitated Exchanges
(FFEs); and States with regard to the operation of risk adjustment and
reinsurance programs. It also proposes additional standards with
respect to agents and brokers. These standards, which include financial
integrity provisions and protections against fraud and abuse, are
consistent with Title I of the Patient Protection and Affordable Care
Act as amended by the Health Care and Education Reconciliation Act of
2010, referred to collectively as the Affordable Care Act.
DATES: To be assured consideration, comments must be received at one of
the addresses provided below, no later than 5 p.m. on July 19, 2013.
ADDRESSES: In commenting, please refer to file code CMS-9957-P. Because
of staff and resource limitations, we cannot accept comments by
facsimile (FAX) transmission.
You may submit comments in one of four ways (please choose only one
of the ways listed):
1. Electronically. You may submit electronic comments on this
regulation to https://www.regulations.gov. Follow the ``Submit a
comment'' instructions.
2. By regular mail. You may mail written comments to the following
address ONLY: Centers for Medicare & Medicaid Services, Department of
Health and Human Services, Attention: CMS-9957-P, P.O. Box 8010,
Baltimore, MD 21244-8010.
Please allow sufficient time for mailed comments to be received
before the close of the comment period.
3. By express or overnight mail. You may send written comments to
the following address ONLY: Centers for Medicare & Medicaid Services,
Department of Health and Human Services, Attention: CMS-9957-P, Mail
Stop C4-26-05, 7500 Security Boulevard, Baltimore, MD 21244-1850.
4. By hand or courier. Alternatively, you may deliver (by hand or
courier) your written comments ONLY to the following addresses prior to
the close of the comment period:
a. For delivery in Washington, DC--Centers for Medicare & Medicaid
Services, Department of Health and Human Services, Room 445-G, Hubert
H. Humphrey Building, 200 Independence Avenue SW., Washington, DC 20201
(Because access to the interior of the Hubert H. Humphrey Building
is not readily available to persons without Federal government
identification, commenters are encouraged to leave their comments in
the CMS drop slots located in the main lobby of the building. A stamp-
in clock is available for persons wishing to retain a proof of filing
by stamping in and retaining an extra copy of the comments being
filed.)
b. For delivery in Baltimore, MD--Centers for Medicare & Medicaid
Services, Department of Health and Human Services, 7500 Security
Boulevard, Baltimore, MD 21244-1850.
If you intend to deliver your comments to the Baltimore address,
call telephone number (410) 786-7195 in advance to schedule your
arrival with one of our staff members. Comments erroneously mailed to
the addresses indicated as appropriate for hand or courier delivery may
be delayed and received after the comment period.
For information on viewing public comments, see the beginning of
the SUPPLEMENTARY INFORMATION section.
FOR FURTHER INFORMATION CONTACT: Leigha Basini at (301) 492-4307, or
Noah Isserman at (301) 492-4401 for general information. Ariel Novick
at (301) 492-4309, for matters related to cost-sharing reductions and
advance payments of the premium tax credit.
Adam Shaw at (410) 786-1091, for matters related to the risk
adjustment, reinsurance and risk corridors programs.
Shelley Bain at (301) 492-4453, or Anne Pesto at (410) 786-3492, for
matters related to Part 155, Subpart M.
Cindy Yen at (301) 492-5142, for matters related to Part 155, Subparts
C and E, and Part 156.
Scott Dafflitto at (301) 492-4198, for matters relating to SHOP.
Jacob Ackerman at (301) 492-4179, for matters related to Parts 144 and
Part 147 and the single risk pool.
Rebecca Zimmermann at (301) 492-4396, for matters related to quality
standards, Part 156, Subpart L.
SUPPLEMENTARY INFORMATION:
Inspection of Public Comments: All comments received before the
close of the comment period are available for viewing by the public,
including any personally identifiable or confidential business
information that is included in a comment. We post all comments
received before the close of the comment period on the following Web
site as soon as possible after they have been received: https://www.regulations.gov. Follow the search instructions on that Web site to
view public comments.
Comments received timely will also be available for public
inspection as they are received, generally beginning approximately 3
weeks after publication of a document, at the headquarters of the
Centers for Medicare & Medicaid Services, 7500 Security Boulevard,
Baltimore, Maryland 21244, Monday through Friday of each week from 8:30
a.m. to 4 p.m. To schedule an appointment to view public comments,
phone 1-800-743-3951.
Electronic Access
This Federal Register document is also available from the Federal
Register online database through Federal Digital System (FDsys), a
service of the U.S. Government Printing Office. This database can be
accessed via the internet at https://www.gpo.gov/fdsys.
Acronyms and Short Forms
Because of the many organizations and terms to which we refer by
acronym in this proposed rule, we are listing these acronyms and their
corresponding terms in alphabetical order below:
Affordable Care Act The Affordable Care Act of 2010 (which is the
collective term for the Patient Protection and Affordable Care Act
(Pub. L. 111-148) and the Health Care and Education Reconciliation
Act (Pub. L. 111-152))
ALJ Administrative Law Judge
APTC Advance payments of the premium tax credit
ARF Allowable rating factor
AV Actuarial Value
CAHPS[supreg] Consumer Assessment of Healthcare Providers and
Systems
CFR Code of Federal Regulations
CMP Civil money penalty
CMS Centers for Medicare & Medicaid Services
DOI State Department of Insurance
DOL U.S. Department of Labor
FEHB Federal Employees Health Benefits
FFE Federally-facilitated Exchange
FFE API Federally-facilitated Exchange application programming
interface
FF-SHOP Federally-facilitated Small Business Health Options Program
GAAP Generally-accepted accounting principles
GAAS Generally accepted auditing standards
[[Page 37033]]
GAGAS Generally accepted governmental auditing standards
GAO United States Government Accountability Office
HHS U.S. Department of Health and Human Services
HIPAA Health Insurance Portability and Accountability Act of 1996
(Pub. L. 104-191)
IRS Internal Revenue Service
MLR Medical Loss Ratio
NAIC National Association of Insurance Commissioners
NCQA National Committee for Quality Assurance
OIG Office of the Inspector General of the U.S. Department of Health
and Human Services
OMB Office of Management and Budget
PHS Act Public Health Service Act
PII Personally Identifiable Information
PRA Paperwork Reduction Act
QHP Qualified Health Plan
SHOP Small Business Health Options Program
The Code Internal Revenue Code of 1986
TIN Taxpayer Identification Number
Executive Summary
Starting on January 1, 2014, qualified individuals and qualified
employers will be able to be covered by private health insurance
through competitive marketplaces called Affordable Insurance Exchanges,
or ``Exchanges'' (also called Health Insurance Marketplaces). This
proposed rule sets forth oversight and financial integrity standards
with respect to Exchanges, QHP issuers in Federally-facilitated
Exchanges (FFEs), and States with regard to the operation of risk
adjustment and reinsurance programs. It also proposes additional
standards for special enrollment periods, survey vendors that may
conduct enrollee satisfaction surveys on behalf of QHP issuers in
Exchanges, issuer participation in an FFE, and States' operation of a
SHOP. Finally, it proposes additional standards for agents and brokers,
geographic rating areas, and guaranteed availability and renewability.
Nothing in these proposed regulations would limit the authority of the
Office of the Inspector General of the U.S. Department of Health and
Human Services (OIG) as prescribed by the Inspector General Act of 1978
or any other law.
Although many of the proposed provisions in this proposed rule
would become effective by 2014, we do not believe that affected parties
will have difficulty complying with the provisions by their effective
dates, because most of the proposed standards are based on existing
standards currently in effect in the private market, were previously
proposed through the Blueprint process, discussed in agency-issued sub-
regulatory guidance, or were discussed in the preambles to the Exchange
Establishment Rule,\1\ Premium Stabilization Rule,\2\ and the HHS
Notice of Benefit and Payment Parameters for 2014.\3\ In addition to
general comments on the substance of the proposed provisions, we seek
input on ways to implement these proposed policies to minimize burden.
---------------------------------------------------------------------------
\1\ Patient Protection and Affordable Care Act; Establishment of
Exchanges and Qualified Health Plans; Exchange Standards for
Employers, 77 FR 18310 (March 27, 2012).
\2\ Patient Protection and Affordable Care Act; Standards
Related to Reinsurance, Risk Corridors and Risk Adjustment, 77 FR
17220 (March 23. 2012).
\3\ Patient Protection and Affordable Care Act; HHS Notice of
Benefit and Payment Parameters for 2014 and Amendments to the HHS
Notice of Benefit and Payment Parameters for 2014, 78 FR 15410 and
15541 (Mar. 11, 2013).
---------------------------------------------------------------------------
Table of Contents
I. Background
A. Legislative Overview
B. Stakeholder Consultation and Input
C. Structure of the Proposed Rule
II. Provisions of the Proposed Rule
A. Part 144--Requirements Related to Health Insurance Coverage
B. Part 147--Health Insurance Reform Requirements for the Group
and Individual Health Insurance Markets
C. Part 153--Standards Related to Reinsurance, Risk Corridors,
and Risk Adjustment under the Affordable Care Act
1. Subpart A--General Provisions
2. Subpart C--State Standards Related to the Reinsurance Program
3. Subpart D--State Standards Related to the Risk Adjustment
Program
4. Risk Adjustment Methodology
5. Subpart E--Health Insurance Issuer and Group Health Plan
Standards Related to the Reinsurance Program
6. Subpart F--Health Insurance Issuer Standards Related to the
Risk Corridors Program
7. Subpart G--Health Insurance Issuer Standards Related to the
Risk Adjustment Program
8. Subpart H--Distributed Data Collection for HHS-Operated
Programs
D. Part 155--Exchange Establishment Standards and Other Related
Standards Under the Affordable Care Act
1. Subpart A--General Provisions
2. Subpart B--General Standards Related to the Establishment of
an Exchange
3. Subpart C--General Functions of an Exchange
4. Subpart D--Exchange Functions in the Individual Market:
Eligibility Determinations for Exchange Participation and Insurance
Affordability Programs
5. Subpart E--Exchange Functions in the Individual Market:
Enrollment in Qualified Health Plans
6. Subpart H--Exchange Functions: Small Business Health Options
Program (SHOP)
7. Subpart M--Oversight and Program Integrity Standards for
State Exchanges
E. Part 156--Health Insurance Issuer Standards Under the
Affordable Care Act, Including Standards Related to Exchanges
1. Subpart A--General Provisions
2. Subpart C--Qualified Health Plan Minimum Certification
Standards
3. Subpart D--Federally-facilitated Exchange Qualified Health
Plan Issuer Standards
4. Subpart E--Health Insurance Issuer Responsibilities with
Respect to Advance Payments of the Premium Tax Credit and Cost-
sharing Reductions
5. Subpart H--Oversight and Financial Integrity Standards for
Issuers of Qualified Health Plans in Federally-facilitated Exchanges
6. Subpart I--Enforcement Remedies in Federally-facilitated
Exchanges
7. Subpart J--Administrative Review of QHP Issuer Sanctions in
Federally-facilitated Exchanges
8. Subpart K--Cases Forwarded to Qualified Health Plans and
Qualified Health Plan Issuers in Federally-facilitated Exchanges by
HHS
9. Subpart L--Quality Standards
10. Subpart M--Qualified Health Plan Issuer Responsibilities
III. Collection of Information Requirements
IV. Response to Comments
V. Regulatory Impact Analysis
I. Background
A. Legislative Overview
The Patient Protection and Affordable Care Act (Pub. L. 111-148)
was enacted on March 23, 2010. The Health Care and Education
Reconciliation Act of 2010 (Pub. L. 111-152), which amended and revised
several provisions of the Patient Protection and Affordable Care Act,
was enacted on March 30, 2010. In this proposed rule, we refer to the
two statutes collectively as the ``Affordable Care Act.'' Subtitles A
and C of Title I of the Affordable Care Act reorganized, amended, and
added to the provisions of part A of Title XXVII of the Public Health
Service Act (PHS Act) relating to health insurance issuers in the group
and individual markets and to group health plans that are non-Federal
governmental plans. As relevant here, these PHS Act provisions include
section 2701 (fair health insurance premiums), section 2702 (guaranteed
availability of coverage), and section 2703 (guaranteed renewability of
coverage).
Starting on October 1, 2013 for coverage starting as soon as
January 1, 2014, qualified individuals and qualified employers will be
able to purchase QHPs--private health insurance that has been certified
as meeting certain standards--through competitive marketplaces called
Exchanges or Health Insurance
[[Page 37034]]
Marketplaces. The Departments of Health and Human Services, Labor, and
the Treasury have been working in close coordination to release
guidance related to QHPs and Exchanges in several phases. The word
``Exchanges'' refers to both State Exchanges, also called State-based
Exchanges, and Federally-facilitated Exchanges (FFEs). In this proposed
rule, we use the terms ``State Exchange'' or ``FFE'' when we are
referring to a particular type of Exchange. When we refer to ``FFEs,''
we are also referring to State Partnership Exchanges, which are a form
of FFEs.
In this proposed rule, we encourage State flexibility within the
boundaries of the law. Sections 1311(b) and 1321(b) of the Affordable
Care Act provide that each State has the opportunity to establish an
Exchange. Section 1311(b)(1) gives each State the opportunity to
establish an Exchange that both facilitates the purchase of QHPs and
provides for the establishment of a Small Business Health Options
Program (SHOP) that will help qualified employers enroll their
employees in QHPs. Section 1311(b)(2) contemplates the separate
operation of the individual market Exchange and the SHOP under
different governance and administrative structures, because it permits
the individual market Exchange and SHOP to be merged only if States
have adequate resources to assist both populations (individual and
small employers) as a merged entity.
Section 1311(c)(4) of the Affordable Care Act directs the Secretary
to establish an enrollee satisfaction survey system that would evaluate
the level of enrollee satisfaction of members in each QHP offered
through an Exchange with more than 500 enrollees in the previous year.
Section 1321(a) of the Affordable Care Act provides general
authority for the Secretary to establish standards and regulations to
implement the statutory requirements related to Exchanges, QHPs, and
other components of Title I of the Affordable Care Act.
Section 1321(c)(1) requires the Secretary of Health and Human
Services (referred to throughout this rule as the Secretary) to
establish and operate an FFE within States that either: do not elect to
establish an Exchange; or, as determined by the Secretary, will not
have any required Exchange operational by January 1, 2014.
Section 1321(c)(2) of the Affordable Care Act authorizes the
Secretary to enforce the Exchange standards using civil money penalties
(CMPs) on the same basis as detailed in section 2723(b) of the PHS
Act.\4\ Section 2723(b) of the PHS Act authorizes the Secretary to
impose CMPs as a means of enforcing the individual and group market
reforms contained in Title XXVII, Part A of the PHS Act when a State
fails to substantially enforce these provisions.
---------------------------------------------------------------------------
\4\ Section 1321(c) of the Affordable Care Act erroneously cites
to section 2736(b) of the PHS Act instead of 2723(b) of the PHS Act.
This was clearly a typographical error, and we have interpreted
section 1321(c) of the Affordable Care Act to incorporate section
2723(b) of the PHS Act.
---------------------------------------------------------------------------
Section 1311(d)(5)(A) of the Affordable Care Act provides that
States, when establishing Exchanges, must ensure that such Exchanges
are self-sustaining beginning in 2015, including allowing Exchanges to
charge assessments or user fees to participating issuers to generate
funding to support their operations. Section 1311(d)(5)(B) contains a
prohibition on the wasteful use of funds. When operating an FFE under
section 1321(c)(1) of the Affordable Care Act, HHS has the authority
under sections 1321(c)(1) and 1311(d)(5)(A) to collect and spend such
user fees. In addition, 31 U.S.C. 9701 permits a Federal agency to
establish a charge for a service provided by the agency. Office of
Management and Budget (OMB) Circular A-25 Revised establishes Federal
policy regarding user fees and specifies that a user charge will be
assessed against each identifiable recipient for special benefits
derived from Federal activities beyond those received by the general
public.
Section 1311(e)(1)(B) of the Affordable Care Act specifies that an
Exchange may certify a health plan as a QHP if the Exchange determines
that making available such a health plan through the Exchange is in the
interests of qualified individuals and qualified employers in the State
or States in which the Exchange operates.
Section 1312(c) of the Affordable Care Act directs a health
insurance issuer to consider all enrollees in all health plans (other
than grandfathered health plans) offered by such issuer to be members
of a single risk pool for each of its individual and small group
markets. Section 1312(c) of the Affordable Care Act gives States the
option to merge the individual and small group markets within the State
into a single risk pool.
Section 1312(e) of the Affordable Care Act directs the Secretary to
establish procedures under which a State may permit agents and brokers
to enroll qualified individuals and qualified employers in QHPs through
an Exchange, and to assist individuals in applying for advance payments
of the premium tax credit and cost-sharing reductions.
Section 1313 of the Affordable Care Act, combined with section 1321
of the Affordable Care Act, provides the Secretary with the authority
to oversee the financial integrity, compliance with HHS standards, and
efficient and non-discriminatory administration of State Exchange
activities. Section 1313(a)(6)(A) of the Affordable Care Act specifies
that payments made by, through, or in connection with an Exchange are
subject to the False Claims Act (31 U.S.C. 3729, et seq.) if those
payments include any Federal funds.
Section 1341 of the Affordable Care Act establishes a transitional
reinsurance program which begins in 2014 and is designed to provide
issuers with greater payment stability as insurance market reforms are
implemented and Exchanges facilitate increased enrollment. Section 1342
of the Affordable Care Act establishes a temporary risk corridors
program which permits the Federal government and QHPs to share in gains
or losses resulting from inaccurate rate setting from 2014 through
2016. Section 1343 of the Affordable Care Act establishes a permanent
risk adjustment program which is intended to provide increased payments
to health insurance issuers that attract higher-risk populations, such
as those with chronic conditions, and eliminate incentives for issuers
to avoid higher-risk enrollees.
Section 1401 of the Affordable Care Act amended the Internal
Revenue Code (26 U.S.C.) to add section 36B, allowing a refundable
premium tax credit to help individuals and families afford health
insurance coverage. Under sections 1401, 1411, and 1412 of the
Affordable Care Act and 45 CFR part 155, subpart D, an Exchange will
make a determination of advance payments of the premium tax credit for
individuals who enroll in QHP coverage through an Exchange and seek
financial assistance. Section 1402 of the Affordable Care Act provides
for the reduction of cost sharing for certain individuals enrolled in a
QHP through an Exchange, and section 1412 of the Affordable Care Act
provides for the advance payment of these reductions to issuers.
Section 1411(g) of the Affordable Care Act specifies that
information provided by an applicant or received from a Federal agency
may be used only for the purpose of, and to the extent necessary in
ensuring the efficient operation of the Exchange, including for the
purpose of verifying the eligibility of an individual to enroll through
an Exchange, to claim a premium tax credit or cost-sharing reduction,
or for verifying the amount of the tax credit or reduction.
[[Page 37035]]
Section 1411(h) of the Affordable Care Act sets forth civil
penalties that any person will be subject to if a person provides
inaccurate information as part of the application or improperly uses or
discloses information.
Unless otherwise specified, the provisions in this proposed rule
related to the establishment of minimum functions of an Exchange are
based on the general authority of Secretary under section 1321(a)(1) of
the Affordable Care Act. Nothing in these proposed regulations would
limit the authority of the OIG as prescribed by the Inspector General
Act of 1978 or any other law.
B. Stakeholder Consultation and Input
HHS has consulted with stakeholders on a number of polices related
to the operation of Exchanges, including the SHOP, and premium
stabilization programs. HHS has held a number listening sessions with
consumers, providers, employers, health plans, and State
representatives to gather public input. HHS consulted with stakeholders
through regular meetings with the National Association of Insurance
Commissioners (NAIC), regular contact with States through the Exchange
grant process, and meetings with tribal leaders and representatives,
health insurance issuers, trade groups, consumer advocates, employers,
and other interested parties. We considered all of the public input as
we developed the policies in this proposed rule.
C. Structure of the Proposed Rule
The regulations outlined in this proposed rule would be codified in
45 CFR parts 144, 147, 153, 155, and 156. Part 153 outlines select
oversight provisions related to the premium stabilization programs,
such as maintenance of records, and sanctions for failing to establish
a dedicated distributed data environment. Part 155 outlines the
standards relative to the establishment, operation, and minimum
functionality of Exchanges, including oversight provisions related to
State Exchanges, such as those pertaining to financial integrity and
maintenance of records. It also includes standards for States'
establishment of a SHOP and agents and brokers. Part 156 outlines the
standards for health insurance issuers with respect to participation in
an Exchange, including minimum certification standards for QHPs and
select oversight provisions related to QHP issuers in FFEs, such as
those pertaining to maintenance of records, compliance reviews, and
sanctions. It also includes provisions related to quality, the handling
of consumer cases by issuers, and issuer standards related to the SHOP.
We note that this rule includes standards for the SHOP to
coordinate with the functions of the individual market Exchange for
determining eligibility for insurance affordability programs in Sec.
155.705(c). This provision was previously proposed in recent rulemaking
and published in the Federal Register (78 FR 4723) on January 22, 2013.
We received several comments on this provision. Some commenters
supported the proposal in Sec. 155.705(c), while other commenters
raised concerns that the proposed rules were overly burdensome and
unrealistic in scope and practicability.
After review of comments, and in light of the proposal included in
this rule permitting a State to operate only a SHOP including the
changes to part 155 of this rule, we are reproposing Sec. 155.705(c)
in this rulemaking.
II. Provisions of the Proposed Regulations
A. Part 144--Requirements Related to Health Insurance Coverage
In Sec. 144.102(c), we propose a technical correction to clarify
whether coverage sold through associations is group or individual
coverage under the PHS Act. The Market Reform Rule \5\ provided, among
other things, that if health insurance coverage ``is offered to an
association's employer-member that is maintaining a group health plan
that has fewer than two participants who are current employees on the
first day of the plan year,'' the coverage is considered individual
health insurance coverage for purposes of Title XXVII of the PHS Act.
This statement reflects the definition of ``individual market'' under
the Health Insurance Portability and Accountability Act of 1996
(HIPAA), but does not reflect the amendments made by the Affordable
Care Act redefining ``small employer'' to include an employer with an
average of at least one employee.\6\ Accordingly, we propose to delete
the reference to group health plans with fewer than two participants
who are current employees on the first day of the plan year from the
rule. We propose conforming amendments to the definitions of ``group
market'' and ``individual market'' in Sec. 144.103.
---------------------------------------------------------------------------
\5\ Patient Protection and Affordable Care Act; Health Insurance
Market Rules; Rate Review'' 78 FR 13406 (February 27, 2013).
\6\ Section 2791(e)(1)(B) and (e)(4) of the PHS Act.
---------------------------------------------------------------------------
In Sec. 144.103, we propose to amend the definition of ``policy
year'' with respect to non-grandfathered coverage in the individual
market or in a market in which the State has merged the individual and
small group risk pools, pursuant to section 1312(c)(3) of the
Affordable Care Act and implementing regulations at 45 CFR 156.80(c).
Under this proposal, ``policy year'' means a calendar year for which
health insurance coverage provides coverage for health benefits. This
is consistent with the proposed technical clarification to Sec.
147.104 discussed below.
We also propose to amend the definitions of ``small employer'' and
``large employer'' in Sec. 144.103, consistent with PHS Act section
2791(e), as amended by the Affordable Care Act. Section 2791(e)(2)
generally defines a large employer as an employer with an average of at
least 101 employees. Section 2791(e)(4) generally defines a small
employer as an employer with an average at least one but not more than
100 employees. Pursuant to section 1304(b)(3) of the Affordable Care
Act, each State has the option to limit small employers to having no
more than 50 employees until 2016.
Although the Affordable Care Act amended the definitions of ``small
employer'' and ``large employer'' for purposes of the PHS Act, ERISA
and the Code continue to define a small employer as one that has 50 or
fewer employees.\7\ Additionally, although the Affordable Care Act
removed an exception for very small plans contained in PHS Act section
2721(a) (providing that title XXVII of PHS Act generally does not apply
to plans (and health insurance coverage offered in connection with such
plans) with less than two participants who are current employees),
parallel provisions in ERISA (section 732(a)) and the Code (section
9831(a)(2)) generally continue to provide that the requirements of part
7 of ERISA, and chapter 100 of the Code, do not apply to such plans.
The Departments of HHS, Labor, and the Treasury recognize that these
statutory changes may create a conflict between the provisions of title
XXVII of the PHS Act and part 7 of ERISA and chapter 100 of the Code
with respect to insured group health plans. We solicit comments on what
interpretations of the statute, if any, are necessary to ensure smooth
implementation across the PHS Act, ERISA, and the Code, including
comments to help ensure that shared provisions are administered to have
the same effect at all times, as required under HIPAA section 104 and
the
[[Page 37036]]
Departments' Memorandum of Understanding.\8\
---------------------------------------------------------------------------
\7\ See Affordable Care Act Implementation FAQs--Set 5, Q8
(December 22, 2010). Available at: https://www.cms.gov/CCIIO/Resources/Fact-Sheets-and-FAQs/aca_implementation_faqs5.html.
\8\ See 64 FR 70164 (December 15, 1999).
---------------------------------------------------------------------------
B. Part 147--Health Insurance Reform Requirements for the Group and
Individual Health Insurance Markets
1. Fair Health Insurance Premiums (Sec. 147.102)
Section 2701 of the PHS Act, as added by the Affordable Care Act,
and implementing regulations at 45 CFR 147.102, direct a health
insurance issuer offering non-grandfathered health insurance coverage
in the individual and small group markets, beginning with plan or
policy years starting in 2014, to limit any variation in premium rates
with respect to a particular plan or coverage to family size, age,
tobacco use, and geographic rating area. Under Sec. 147.102(c),
generally, issuers in the individual and small group markets must
calculate premiums on a per-member basis by adding the rate of each
covered family member or employees and their dependents to determine
the total family or group premium, respectively.
HHS has received several inquiries since the issuance of the Market
Reform Rule asking whether geographic rating in the small group market
is based on employee or employer address. HHS has also received several
inquiries asking which rating areas should be used for individual
market coverage if family members live in multiple locations.
PHS Act section 2701(a)(4) and Sec. 147.102(c) require any rating
variation for age and tobacco use to be applied on a per-member basis,
but do not impose the same requirement on rating for geography.
Accordingly, consistent with guidance released on April 26, 2013
describing our intended clarification,\9\ we propose to clarify in
Sec. 147.102(a)(1)(ii) that the rating area is determined in the small
group market using the principal business address of the group
policyholder, and in the individual market, using the address of the
primary policyholder, regardless of the location of other individuals
covered under the plan or coverage. This would apply both inside and
outside of the Exchange and SHOP. We seek comment on this proposal.
---------------------------------------------------------------------------
\9\ Questions and Answers Related to the Health Insurance Market
Reforms, (April 26, 2013). Available at: https://www.cms.gov/CCIIO/Resources/Fact-Sheets-and-FAQs/qa_hmr.html.
---------------------------------------------------------------------------
Additionally, to clarify the connection between the premium rating
requirements of PHS Act section 2701 and the single risk pool
requirement of section 1312(c) of the Affordable Care Act, we propose
in Sec. 147.102(a) to add a cross-reference to the single risk pool
standard codified in 45 CFR 156.80. Because of this connection, HHS
considers both provisions to be subject to the general enforcement
authority under PHS Act section 2723.
2. Guaranteed Availability and Renewability of Coverage (Sec. Sec.
147.104, 147.106)
Section 2702 of the PHS Act, as amended by the Affordable Care Act,
generally directs a health insurance issuer that offers health
insurance coverage in the individual or ``group market'' in a State to
accept every individual or employer in the State that applies for such
coverage. Section 2703 of the PHS Act, as amended by the Affordable
Care Act, generally requires an issuer in the individual or ``group''
market to renew or continue in force coverage at the option of the plan
sponsor or individual, as applicable. Both of these statutes and their
implementing regulations, codified at 45 CFR 147.104 and 147.106, do
not distinguish between the different segments of the group market,
meaning the large group and small group markets. We explained in the
preamble of the Market Reform Rule (78 FR 13419), in the context of the
market withdrawal exception to guaranteed renewability, that because
the statutory language refers only to the ``group market,'' the
regulations implement the statute without segmenting the group market.
After further review and consideration of the statutory provisions,
we are proposing to clarify that the guaranteed availability and
renewability requirements apply within the applicable market segment
(the individual, small group, or large group market). This
clarification is consistent with the information we provided in a
document titled, ``Frequently Asked Questions on Health Insurance
Marketplaces,'' dated May 14, 2013.\10\ We recognize that issuers in
the large group and small group markets may be subject to distinct
requirements under the PHS Act (for example, requirement to cover the
essential health benefits package under section 2707(a)) and that
failing to segment the markets for purposes of guaranteed availability
and guaranteed renewability would have consequences not contemplated by
the PHS Act. Accordingly, we propose amendments recognizing the
distinction of the large group and small group markets for purposes of
the guaranteed availability and guaranteed renewability requirements.
The proposed clarifications would make clear, for example, that a
health insurance issuer must offer to a large employer all products
that are approved for sale in the large group market, but not those
products approved for sale only in the small group market, and vice
versa. We propose similar amendments recognizing the distinction of the
large group and small group segments of the group market for purposes
of the guaranteed renewability provisions.
---------------------------------------------------------------------------
\10\ Available at: https://www.cms.gov/CCIIO/Resources/Fact-Sheets-and-FAQs/Downloads/marketplace-faq-5-14-2013.pdf.
---------------------------------------------------------------------------
Also, in Sec. 147.104(b)(2), we propose a clarification that, as
of January 1, 2015, all non-grandfathered coverage in the individual
market or in a market in which the State has merged the individual and
small group risk pools, pursuant to section 1312(c)(3) of the
Affordable Care Act and implementing regulations at 45 CFR 156.80(c),
must be offered on a calendar year basis. This simply clarifies the
intent of the Market Reform Rule. It is essential that all non-
grandfathered coverage in the individual and merged markets be on a
calendar year basis as of January 1, 2015 to line up with coverage in
the Exchanges and also to be consistent with the requirements of the
single risk pool in Sec. 156.80. For purposes of new enrollment
effective on any date other than January 1, the first policy year
following such enrollment may comprise a prorated policy year, ending
on December 31.
C. Part 153--Standards Related to Reinsurance, Risk Corridors, and Risk
Adjustment under the Affordable Care Act
In this part, we propose certain provisions related to program
integrity for State-operated risk adjustment and reinsurance programs.
Specifically, we propose an accounting requirement for State-operated
reinsurance and risk adjustment programs, and requirements relating to
summary reports and independent external audits for these programs. We
also propose a provision restricting the use of reinsurance funds for
administrative expenses, which we discussed in the preamble to the HHS
Notice of Benefit and Payment Parameters for 2014 \11\ (2014 Payment
Notice). In addition, we propose record retention standards for States
operating risk adjustment, and for contributing entities and
reinsurance-eligible plans when HHS operates reinsurance on behalf of a
State. We seek comment on these proposals. We set forth a general
[[Page 37037]]
description of these provisions in a document titled, ``Frequently
Asked Questions on Health Insurance Marketplaces,'' dated May 14,
2013.\12\
---------------------------------------------------------------------------
\11\ Patient Protection and Affordable Care Act; HHS Notice of
Benefit and Payment Parameters for 2014, 78 FR 15410 (March 11,
2013).
\12\ Available at: https://www.cms.gov/CCIIO/Resources/Fact-Sheets-and-FAQs/Downloads/marketplace-faq-5-14-2013.pdf.
---------------------------------------------------------------------------
We intend to engage in further consultations with stakeholders, and
to propose additional standards related to the oversight of the premium
stabilization programs in future regulations and guidance, including
standards governing data validation for risk adjustment when HHS
operates that program on behalf of a State.
1. Subpart A--General Provisions
a. Definitions (Sec. 153.20)
In this section, we propose an amendment to the definition of a
``contributing entity.'' The current definition states that
``Contributing entity means a health insurance issuer or self-insured
group health plan. A self-insured group health plan is responsible for
the reinsurance contributions, though it may elect to use a third party
administrator or administrative services only contractor for transfer
of the reinsurance contributions.'' This definition does not address
the situation in which the benefit provided to a participant under a
group health plan is partially insured, and partially self-insured (for
example, the medical benefits are provided under a self-insured
arrangement but the prescription drug benefits are provided under an
insured arrangement, or vice versa). However, the reinsurance
contribution counting rules at 45 CFR 153.405(f), which we promulgated
in the 2014 Payment Notice, do address this situation, and place
liability for reinsurance contributions on the plan. We propose to
amend the definition of ``contributing entity'' to clarify that for
purposes of that definition, a self-insured group health plan includes
a group health plan that is partially self-insured and partially
insured, but only where the insured coverage does not constitute major
medical coverage (whether or not the self-insured coverage is major
medical coverage).\13\ This amendment would clarify that if a group
health plan is structured in such a manner, the group health plan would
be liable for reinsurance contributions under the counting rules
applicable to self-insured group health plans at 45 CFR 153.405(f), but
if the insured coverage is major medical coverage, the issuer is liable
for the contributions. For a discussion of group health plans under
which certain coverage options under the plan are insured and other
coverage options are self-insured, see the last paragraph of the
preamble discussion of proposed Sec. 153.400 below.
---------------------------------------------------------------------------
\13\ We described some of the characteristics of major medical
coverage in the 2014 Payment Notice, at 78 FR 15456. We propose
further clarification of this concept below.
---------------------------------------------------------------------------
2. Subpart C--State Standards Related to the Reinsurance Program
Section 1341 of the Affordable Care Act provides for the
establishment of a transitional reinsurance program in each State to
help stabilize premiums for coverage in the individual market from 2014
through 2016. The reinsurance program is designed to alleviate the need
to build into premiums the unknown costs of enrolling individuals with
significant unmet medical needs. In subparts C and E of 45 CFR part
153, finalized on March 23, 2012 in the Premium Stabilization Rule (77
FR 17220), we established standards for the administration of the
reinsurance program. Below, we propose certain provisions related to
the oversight of State-operated reinsurance programs.
a. Maintenance of Records (Sec. 153.240(c))
We propose to amend 45 CFR 153.240(c), a maintenance of records
requirement applicable when a State establishes the reinsurance
program, to be consistent with proposed Sec. 153.310(c)(4), a
maintenance of records requirement for State-operated risk adjustment
programs, which is discussed below. We propose to amend Sec.
153.240(c) such that if a State establishes a reinsurance program, the
State would be directed to maintain documents and records relating to
the reinsurance program, whether paper, electronic, or in other media,
for each benefit year for at least 10 years, and make them available
upon request from HHS, the OIG, the Comptroller General, or their
designees, to any such entity. The documents and records must be
sufficient to enable an evaluation of the State-operated reinsurance
program's compliance with Federal standards. States would also be
directed to ensure that their contractors, subcontractors, and agents
similarly maintain and make relevant documents and records available
upon request from HHS, the OIG, the Comptroller General, or their
designees. We note that a State may satisfy this standard by archiving
these documents and records and ensuring that they are accessible if
needed in the event of an investigation, audit, or other review. We
seek comment on this proposal.
b. General Oversight Requirements for State-Operated Reinsurance
Programs (Sec. 153.260)
HHS expects that States will operate the reinsurance program under
section 1341 of the Affordable Care Act in an effective and efficient
manner, and in accordance with the provisions of subpart C of 45 CFR
part 153. We are therefore proposing, pursuant to our authority under
sections 1321(a)(1) and 1341 of the Affordable Care Act, certain
general oversight requirements for State-operated reinsurance programs.
In Sec. 153.260(a), we propose that a State establishing the
reinsurance program would be directed to ensure that its applicable
reinsurance entity keeps, for each benefit year, an accounting of the
following: (1) All reinsurance funds received from HHS for reinsurance
payments and for administrative expenses; (2) all claims for
reinsurance payments received from issuers of reinsurance-eligible
plans; (3) all reinsurance payments made to issuers of reinsurance-
eligible plans; and (4) all administrative expenses incurred for the
State's reinsurance program. This accounting must be kept in accordance
with generally accepted accounting principles (GAAP), consistently
applied. This accounting would enable HHS to ensure that the
appropriate amount of reinsurance funds collected by the Federal
government is spent for reinsurance payments and administrative
expenses. We seek comment on this proposal.
In Sec. 153.260(b), we propose that a State that establishes the
reinsurance program would be directed to submit to HHS and make public
a summary report on its reinsurance program operations for each benefit
year, in the manner and timeframe specified by HHS. This report must
include a summary of the accounting for the benefit year as set forth
in proposed Sec. 153.260(a). We note that, in the interest of
transparency, HHS intends to publish periodic reports on its operation
of the reinsurance program on States' behalf. We anticipate that these
reports will not correspond entirely in format and substance to those
required of States that operate the reinsurance program due to the fact
that HHS is already subject to a number of auditing and program
integrity requirements, including requirements relating to periodic
reviews of improper payments of Federal funds under the Improper
Payments Elimination and Recovery Act of 2010.
In Sec. 153.260(c), we propose that a State that establishes the
reinsurance program engage an independent qualified auditing entity to
perform a
[[Page 37038]]
financial and programmatic audit of the program for each benefit year
in accordance with generally accepted auditing standards (GAAS). This
auditing entity would be licensed, be in good standing in one or more
States, and be free from bias or the appearance of bias. This entity
may be a government entity. Pursuant to proposed Sec. 153.260(c)(2),
the State would be directed to ensure that this audit addresses the
prohibitions set forth in proposed Sec. 153.265 (concerning improper
use of reinsurance funds for administrative expenses). We seek comment
on this proposal, and intend to provide more information on auditing
standards in future guidance.
In paragraph (c)(1), we propose that the State provide to HHS the
results of the independent external audit for each benefit year, and in
paragraph (c)(3), we propose that the State identify to HHS any
material weakness or significant deficiency identified in the audit (as
these terms are defined in GAAS issued by the American Institute of
Certified Public Accountants, and Government Auditing Standards issued
by the Government Accountability Office (GAO) \14\). We further propose
that the State address in writing to HHS how it intends to correct any
such material weakness or significant deficiency. To ensure
transparency and accountability of a State-operated reinsurance
program's finances and activities, we propose in paragraph (c)(4) that
the State make public a summary of the results of the external audit,
including any material weakness or significant deficiency in a manner
and timeframe specified by HHS. We believe that these measures are
necessary to ensure the proper use of reinsurance contributions under
the national contribution rate, which HHS will collect from all
contributing entities pursuant to 45 CFR 153.220. We seek comment on
this proposal.
---------------------------------------------------------------------------
\14\ See, Government Auditing Standards (2011 Revision),
available at: https://www.gao.gov/yellowbook. For public companies,
the Public Company Accounting Oversight Board (PCAOB) sets audit
standards. See, https://pcaobus.org/Standards/Auditing/Pages/default.aspx. For non-public companies, the AICPA sets audit
standards. See, https://www.aicpa.org/Research/Standards/AuditAttest/Pages/SAS.aspx.
---------------------------------------------------------------------------
c. Restrictions on Use of Reinsurance Funds for Administrative Expenses
(Sec. 153.265)
To achieve the intended purposes of the reinsurance program,
reinsurance contributions collected must be spent on reinsurance
payments, payments to the U.S. Treasury, and on reasonable expenses to
administer the reinsurance program. As stated in the 2014 Payment
Notice, the total reinsurance contributions to be collected for Federal
administrative expenses for operating reinsurance for the 2014 benefit
year is $20.3 million, resulting in a national per capita contribution
rate of $0.11 annually for HHS administrative expenses. The funds for
administrative expenses will be collected by HHS from all contributing
entities, and will be apportioned as follows: $0.055 of the total
administrative expenses collected per capita will be allocated to
administrative expenses incurred in the collection of contributions
from contributing entities; and $0.055 of the total administrative
expenses collected per capita will be allocated to expenses incurred
for activities supporting the administration of payments to issuers of
reinsurance-eligible plans.
The total amounts allocated towards administrative expenses for
reinsurance payments will be allocated in proportion to the State-by-
State total requests for reinsurance payments made under the national
reinsurance payment parameters. Thus, if a State that operates
reinsurance receives total requests for reinsurance payments under the
national reinsurance payment parameters that represent 5 percent of the
total requests received for all States, then the State would receive a
disbursement of 5 percent of the reinsurance contributions allocated to
expenses incurred to support administration of payments to reinsurance-
eligible plans to support its administration of reinsurance payments in
that State. Pursuant to proposed Sec. 153.260(a), a State operating
reinsurance would be directed to keep an accurate accounting of the
reinsurance funds received from HHS for administrative expenses and all
the administrative expenses incurred for the State-operated reinsurance
program. If a State incurs fewer expenses in operating reinsurance for
a benefit year than are allocated to it under the national reinsurance
contribution rate, the State would be directed to carry over those
funds for use in operating reinsurance in subsequent benefit years.
Section 1311(d)(5)(B) of the Affordable Care Act prohibits an
Exchange from utilizing any funds intended for the administrative and
operational expenses of the Exchange for staff retreats, promotional
giveaways, excessive executive compensation, or promotion of Federal or
State legislative and regulatory modifications. In Sec. 153.265, we
propose to extend these prohibitions to State-operated reinsurance
programs so that a State establishing the reinsurance program would be
directed to ensure that its applicable reinsurance entity does not use
any funds for the support of operations of the reinsurance program,
including any reinsurance contributions collected under the national
contribution rate for administrative expenses, for any of the
prohibited purposes stated in section 1311(d)(5)(B) of the Affordable
Care Act. We seek comment on this proposal.
3. Subpart D--State Standards Related to the Risk Adjustment Program
The risk adjustment program is a permanent program created by
section 1343 of the Affordable Care Act that transfers funds from
lower-risk, non-grandfathered plans to higher-risk, non-grandfathered
plans in the individual and small group markets, inside and outside of
the Exchanges. In subparts D and G of 45 CFR part 153, finalized March
23, 2012 (77 FR 17220), we established standards for the administration
of the risk adjustment program. A State approved (or conditionally
approved) by the Secretary to operate an Exchange may establish a risk
adjustment program. Alternatively, a State may have HHS operate a risk
adjustment program on its behalf. Pursuant to our authority under
sections 1321(a)(1) and 1343 of the Affordable Care Act, we propose
below certain provisions related to the oversight of State-operated
risk adjustment programs.
a. Maintenance of Records (Sec. 153.310(c)(4))
In Sec. 153.310(c)(4), we propose that a State operating a risk
adjustment program would be directed to maintain documents and records
relating to the risk adjustment program, whether paper, electronic, or
in other media, for each benefit year for at least 10 years, and make
them available upon request from HHS, the OIG, the Comptroller General,
or their designees, to any such entity. The documents and records must
be sufficient to enable the evaluation of a State-operated risk
adjustment program's compliance with Federal standards. States would
also be directed to ensure that their contractors, subcontractors, and
agents maintain and make those documents and records available upon
request from HHS, the OIG, the Comptroller General, or their designees.
We note that a State may satisfy this standard by archiving these
documents and records and ensuring that they are accessible if needed
in the event of an investigation, audit, or other review. This
provision is consistent with the requirements set forth in proposed
Sec. 153.240(c), which contains
[[Page 37039]]
record retention standards for State-operated reinsurance programs. We
seek comment on this proposal.
b. Interim Report and State Summary Report (Sec. 153.310(d))
In Sec. 153.310(d)(3), we propose that, in addition to the
requirements set forth in 45 CFR 153.310(d)(1) and (d)(2), to obtain
recertification from HHS to operate risk adjustment for a third benefit
year, a State would be directed to, in the first benefit year for which
it operates risk adjustment, provide to HHS an interim report, in a
manner specified by HHS, that includes a detailed summary of its risk
adjustment activities in the first 10 months of the benefit year. We
propose that this report would be due no later than December 31st of
the first benefit year for which a State operates risk adjustment. The
interim report is intended to provide HHS with the information needed
to assess the State's compliance with the applicable Federal standards
related to risk adjustment. We note that because the process for
receiving certification to operate risk adjustment begins more than one
year before the beginning of the applicable benefit year, the first
benefit year for which an interim report based on the first year's
operations could be used for certification purposes is the third
benefit year. We intend to provide more information on the risk
adjustment interim report in future guidance, and we seek comment on
the content and format of this report.
We propose to amend 45 CFR 153.310(f) and re-designate it as Sec.
153.310(d)(4). In Sec. 153.310(d)(4), we propose that in order to
obtain recertification from HHS to operate risk adjustment for each
benefit year after the third benefit year for which it is certified,
each State operating a risk adjustment program would be directed to
submit to HHS and make public a detailed summary of risk adjustment
program operations for the most recent benefit year for which risk
adjustment operations have been completed, in the manner and timeframe
specified by HHS. We propose in Sec. 153.310(d)(4)(i) that this
summary report include the results of a programmatic and financial
audit for the benefit year of the State-operated risk adjustment
program conducted by an independent qualified auditing entity in
accordance with GAAS. As discussed above, this entity, which may be a
government entity, must be licensed and in good standing in one or more
States, and must be free from bias or the appearance of bias. In Sec.
153.310(d)(4)(ii), we propose that the summary report would identify to
HHS any material weakness or significant deficiency (as these terms are
defined in GAAS issued by the American Institute of Certified Public
Accountants, and Government Auditing Standards issued by the GAO \15\)
identified in the external audit and address in writing to HHS how the
State intends to correct any such material weakness or significant
deficiency.
---------------------------------------------------------------------------
\15\ See, Government Auditing Standards (2011 Revision),
available at: https://www.gao.gov/yellowbook. For public companies,
the Public Company Accounting Oversight Board (PCAOB) sets audit
standards. See, https://pcaobus.org/Standards/Auditing/Pages/default.aspx. For non-public companies, the AICPA sets audit
standards. See, https://www.aicpa.org/Research/Standards/AuditAttest/Pages/SAS.aspx.
---------------------------------------------------------------------------
We seek comment on these proposals, including on the content and
format of the summary reports.
c. General Oversight Requirements for State-Operated Risk Adjustment
Programs (Sec. 153.365)
To enable HHS to recertify States to operate risk adjustment
pursuant to 45 CFR 153.310(d), HHS proposes in Sec. 153.365 that a
State operating a risk adjustment program keep an accounting of all
receipts and expenditures related to risk adjustment payments and
charges and the administration of risk adjustment-related functions and
activities for each benefit year. This accounting would be kept in
accordance with GAAP, consistently applied. This requirement parallels
proposed Sec. 153.260(a), which applies to the reinsurance program
when operated by a State.
4. Risk Adjustment Methodology
a. Modification to the Transfer Formula in the HHS Risk Adjustment
Methodology (78 FR at 15430-15434)
In the Payment Notice (78 FR 15430-34), we noted our intent to
modify the risk adjustment payment transfer formula in order to
accommodate community rated States that utilize family tiering rating
factors. In non-community rated States, family policy premiums must be
developed by summing the applicable rates of each individual covered
under the policy, as required under 45 CFR 147.102(c)(1). In the case
of families with more than three children in non-community rated
States, only the applicable rates of the three oldest covered children
under age 21 are counted towards the family policy premium rate (for
example, for a family with four children under age 21, only the
applicable individual rates of the three oldest children would count
towards the family policy premium). These family rating requirements do
not apply to community rated States that utilize family tiering rating
factors. In community rated States, family tiering rating factors do
not have to yield premiums that are equal to the sum of each policy
member's applicable rate, nor do they have to be set in a way that only
counts the rates of the oldest three children under age 21 within a
family policy. For example, a community rated State could establish a
family tiering rating factor of 1.0 for an adult policy, 1.8 for a
policy covering one adult and one or more children, 2.0 for a policy
covering two adults, and 2.8 for a policy covering two adults and one
or more children.
In order to account for the differences in family rating practices
between family tiering States and non-family tiering States, we are
proposing two changes to the risk adjustment payment transfer formula
that HHS will use when operating risk adjustment on behalf of a State.
These changes would only apply to States that are using family tiering
rating structures. In the 2014 Payment Notice, we stated that billable
members exclude children who do not count towards family rates (that
is, children who do not count toward family policy premiums are
excluded) (78 FR 15432, 15434). We propose to clarify that in the case
of family tiering States, billable members would be based on the number
of children that implicitly count towards the premium under a State's
family rating factors. For example, assume a State has the following
four family tiers: One adult; one adult plus one or more children; two
adults; and two adults plus one or more children. Under this tiering
structure, only one child would be counted as a billable member in the
payment transfer formula, because additional children covered under a
family policy would not affect the policy's premium.
Additionally, we are proposing a modification to the allowable
rating factor (ARF) formula that would be used for family tiering
States. In the Payment Notice (78 FR 15433), the ARF is calculated as
the member month weighted average of the age factor applied to each
billable enrollee. In non-family tiering States, the ARF is intended to
measure the extent to which plans are increasing or decreasing their
premiums based on allowable age rating factors. In the case of family
tiering States, premium revenue will not vary by age-specific rating
factors. Rather, policy level premiums will vary only based on the
family tiering factors. In order to capture the impact of the family
tiering factors on plans' premium revenue we are proposing that the ARF
formula for family tiering States be
[[Page 37040]]
based on the family tiering factors instead of age rating factors.
Specifically, for family tiering States, the ARF would be
calculated at the level of the subscriber, as follows:
[GRAPHIC] [TIFF OMITTED] TP19JN13.013
Where:
ARFs is the rating factor for the subscriber (s) (based
on family size/composition) and Ms is the number of
billed person-months that are counted in determining the subscriber
(s) premium.
We note that aside from the changes to the billable member months
definition and the ARF formula discussed above, payment transfers in
family tiering States will be calculated using the formulas provided in
the Payment Notice (78 FR at 15431-34). Additionally, the changes to
the billable member month definition and the ARF formula would not
apply to community rated States that do not implement family tiering
rating factors.
5. Subpart E--Health Insurance Issuer and Group Health Plan Standards
Related to the Reinsurance Program
a. Reinsurance Contribution Funds (Sec. 153.400)
In some health coverage arrangements, an insured group health plan
may provide benefits through more than one policy to the same covered
lives, where each policy standing alone does not constitute major
medical coverage, but the total benefits do.\16\ Under such an
arrangement, a group health plan could, for example, have two policies
with different issuers, one providing benefits for hospitalization and
the other providing benefits for outpatient treatments and prescription
drugs, with the same individuals simultaneously enrolled in both
policies. In such a situation, the question has been raised as to
whether the issuers would be required to make reinsurance contributions
for the insured policies since neither policy would constitute major
medical coverage, and whether the group health plan would be required
to make reinsurance contributions because it would not be a self-
insured plan.
---------------------------------------------------------------------------
\16\ We note that, after 2014, such arrangements generally would
only be permissible in the large employer group context, as issuers
of small employer group market insurance coverage are required to
provide all essential health benefits under any policy they offer
that does not qualify as ``excepted benefits.''
---------------------------------------------------------------------------
Therefore, to clarify the application of the rules (solely for the
purpose of reinsurance contributions), we propose to amend paragraph
(a)(1)(i) of 45 CFR 153.400(a) and add a new paragraph (a)(3) that
would address liability for reinsurance contributions in cases where an
insured group health plan provides health insurance coverage through
more than one policy to the same covered lives, where, as described
above, none of the policies provides major medical coverage
individually, but their combined benefits meet the definition of major
medical coverage. This paragraph (a)(3) would be an exception to the
rule under paragraph (a)(1)(i), which provides that an issuer of health
insurance coverage is not required to make reinsurance contributions
for coverage to the extent the coverage is not major medical coverage.
Under the proposed paragraph (a)(3), notwithstanding paragraph
(a)(1)(i), a health insurance issuer providing coverage under a group
health plan would make reinsurance contributions for lives under its
health insurance coverage even if the insurance coverage does not
constitute major medical coverage, if (i) The group health plan
provides health insurance coverage for the same covered lives through
more than one insurance policy that in combination constitute major
medical coverage but individually do not; (ii) the lives are not
covered by self-insured coverage of the group health plan (except for
self-insured coverage limited to excepted benefits); and (iii) the
health insurance coverage under the policy offered by the health
insurance issuer represents a percentage of the total health insurance
coverage offered in combination by the group health plan greater than
the percentage offered under any of the other policies. Clause (i)
describes the arrangement described in the paragraphs above. Clause
(ii) makes clear that this exception would apply where group health
coverage was divided only among insurance policies, and no portion of
the coverage is self-insured.\17\ Finally, clause (iii) describes how
to determine which issuer is liable for reinsurance contributions in
the situation described above--where multiple insurance policies cover
the same lives in an insured group health plan and each insurance
policy is not major medical coverage, but in combination they are. We
propose in that clause that an issuer of health insurance coverage
providing a percentage of the benefits provided by the group health
plan that is greater than the percentage provided by any of the other
insurance policies would be liable for the reinsurance contributions.
We further propose that for purposes of paragraph (a)(3), the
percentage of coverage offered under various policies would be
determined based on the average premium per covered life for those
policies. In the event that the percentage of coverage for two or more
insurance policies is equal, the issuer of the policy that provides the
greatest portion of in-network hospitalization benefits will be
responsible for reinsurance contributions. For example, if an insured
group health plan covered the same lives under two different health
insurance policies, one with a monthly average premium per covered life
of $250 and the other with a monthly average premium per covered life
of $200, the issuer of the insurance policy with the monthly average
premium per covered life of $250 would be liable for the reinsurance
contributions.
---------------------------------------------------------------------------
\17\ As discussed in relation to the amendment to 45 CFR 153.20
above, where a group health plan has mixed self-insured and insured
coverage, liability for reinsurance contributions, if any, falls
upon the self-insured plan, as already established under our rules.
---------------------------------------------------------------------------
Because an issuer of group health insurance coverage that does not,
by itself, constitute major medical coverage, may not be aware of the
existence of, or premium for, other health insurance coverage obtained
by a plan sponsor covering the same lives under a group health plan, we
are considering directing such an issuer to seek a representation from
the plan sponsor regarding the relative percentage of coverage offered
by the issuer. We seek comment on whether and in what circumstances an
issuer should be entitled to rely upon such representations and what
other means we should consider for ensuring that the relevant issuer
knows of its obligation to make the reinsurance contributions,
including with respect to any role that the employer should have in
ensuring that issuers have information necessary to determine which
issuer is responsible for reinsurance contributions.
We seek comment on these proposals, as well as alternative
approaches that should be considered for determining responsibility for
reinsurance contributions in such circumstances. For example, the
liability rules could impose responsibility for the reinsurance
contributions on the issuer of the coverage that provides the
hospitalization coverage or the rules could allocate liability among
the issuers in proportion to the benefits offered under the respective
policies.
We are also considering proposing a definition for ``major medical
coverage'' that would provide additional clarity around the
responsibility to make payments. While HHS believes that responsibility
for issuers and group
[[Page 37041]]
health plans is clear, we seek comment on what further clarification is
needed and what the definition should be.
Finally, we have received inquiries as to how reinsurance
contribution obligations would be addressed in the case of a group
health plan under which some benefit options for employees are insured
by an issuer, and some options offer benefits without the involvement
of an issuer in insuring the benefits (because either the group health
plan or some non-issuer entity assumes the risk for that coverage
option). We are proposing that in such a case, if a coverage option is
insured by an issuer, the issuer would be responsible for the
reinsurance contribution associated with that coverage option. If an
employee coverage option under such a group health plan is not insured
(because either the group health plan or other non-issuer assumes the
risk), then the group health plan would be responsible for the
reinsurance contribution associated with that coverage option. We seek
comment on this proposed approach.
b. Maintenance of Records (Sec. 153.405(h) and Sec. 153.410(c))
Pursuant to our obligation to safeguard Federal funds, we propose
to amend Sec. 153.405 by adding paragraph (h), in which we propose
that a contributing entity would be directed to maintain documents and
records, whether paper, electronic, or in other media, sufficient to
substantiate the enrollment count submitted pursuant to that section
for at least 10 years, and make that evidence available upon request
from HHS, the OIG, the Comptroller General, or their designees, to any
such entity, for verification of reinsurance contribution amounts. We
also propose to amend Sec. 153.410 by adding paragraph (c), in which
we propose that an issuer of a reinsurance-eligible plan in a State
where HHS operates reinsurance would be directed to maintain documents
and records, whether paper, electronic, or in other media, sufficient
to substantiate the requests for reinsurance payments made pursuant to
that section for at least 10 years, and make that evidence available
upon request from HHS, the OIG, the Comptroller General, or their
designees, (or, in a State where the State is operating reinsurance,
the State or its designee), to any such entity, for verification of
reinsurance payment requests. We note that these standards may be
satisfied if the contributing entity or issuer of a reinsurance-
eligible plan archives the documents and records and ensures that they
are accessible if needed in the event of an investigation, audit, or
other review. These proposed provisions are consistent with the
requirements for record retention under the False Claims Act and those
set forth in proposed Sec. 153.620(b), which apply to issuers of risk
adjustment covered plans. We seek comment on these proposals.
6. Subpart F--Health Insurance Issuer Standards Related to the Risk
Corridors Program
Section 1342(a) of the Affordable Care Act provides that ``a
qualified health plan offered in the individual or small group market''
is to participate in the risk corridors program. In the Exchange
Establishment Rule, we stated that a stand-alone dental plan is ``a
type of qualified health plan.'' However, we did not intend for all
requirements applicable to a QHP to apply to stand-alone dental plans.
For example, under 45 CFR 155.1065(a)(3), certain QHP standards are not
applicable to a stand-alone dental plan if they cannot be met, given
the limited benefit package offered by the plan. We believe that it
would not be appropriate to subject stand-alone dental plans to the
risk corridors program because such plans are considered excepted
benefits plan under section 2791(c) of the PHS Act, meaning that these
plans are not subject to the Federal prohibition on underwriting
premiums or the requirement to base pricing using the single risk pool
or fair health insurance premiums limitations. Thus, although States
have the option to prohibit underwriting for excepted benefits plans,
and issuers of stand-alone dental plans in an FFE may voluntarily
choose to underwrite these plans, we believe that, in general, an
issuer of a stand-alone dental plan will not be subject to the same
rate-setting uncertainty in 2014 as the issuer of a major medical plan,
and will not need the premium risk-sharing protections of risk
corridors.\18\
---------------------------------------------------------------------------
\18\ In the preamble to the Exchange Establishment Rule, we note
that each Exchange can require, as a condition of certification,
comprehensive medical QHPs to offer and price the pediatric dental
EHB (if covered) separately, if doing so would be in the best
interest of consumers. For the 2014 coverage year, CMS will not
require comprehensive medical QHP issuers that provide pediatric
dental coverage to offer and price the pediatric dental EHB
separately from the rest of the plan in connection with
certification by an FFE. We have provided this guidance in Chapter 4
of the 2014 Letter to Issuers on Federal and Partnership
Marketplaces (April 5, 2013).
---------------------------------------------------------------------------
We note that stand-alone dental plans are similarly excluded from
participation in the two other premium stabilization programs--
reinsurance and risk adjustment. We also note that, consistent with the
exclusion of excepted benefits plans from the medical loss ratio (MLR)
requirements, stand-alone dental claims would not be pooled along with
an issuer's other claims for the purposes of determining ``allowable
costs'' in the risk corridors calculation, as defined at 45 CFR
153.500. We seek comment on this approach.
7. Subpart G--Health Insurance Issuer Standards Related to the Risk
Adjustment Program
We propose to amend Sec. 153.620(b) to add a standard that would
direct an issuer that offers risk adjustment covered plans to maintain
documents and records, whether paper, electronic, or in other media,
sufficient to enable the evaluation of the issuer's compliance with
applicable risk adjustment standards, and to make that evidence
available upon request from HHS, OIG, the Comptroller General, or their
designees (or in a State where the State is operating risk adjustment,
the State or its designee), to any such entity. This standard, which is
consistent with other records maintenance standards in this proposed
rule, would direct an issuer of a risk adjustment covered plan to
retain additional records--not only those pertaining to data
validation--to substantiate its compliance with risk adjustment
standards, whether risk adjustment is operated by HHS or a State. We
note that we anticipate that the bulk of the record maintenance
obligations will relate to data validation, but that certain records,
for instance those relating to premium rating or small group status,
will not. We seek comment on this proposal.
8. Subpart H--Distributed Data Collection for HHS-Operated Programs
a. Failure To Comply With HHS-Operated Risk Adjustment and Reinsurance
Data Requirements (Sec. 153.740)
In Sec. 153.740(a), we propose that HHS may pursue an enforcement
action for CMPs against an issuer in a State where HHS operates the
reinsurance or risk adjustment program, if an issuer fails to: (a)
establish a secure, dedicated distributed data environment pursuant to
45 CFR 153.700(a); (b) provide HHS with access to enrollee-level plan
enrollment information, enrollee claims data, or enrollee encounter
data through its dedicated distributed data environment pursuant to 45
CFR 153.710(a); (c) otherwise comply with the requirements of 45 CFR
153.700 through 153.730; (d) adhere to the reinsurance data submission
[[Page 37042]]
requirements set forth in 45 CFR 153.420; or (e) adhere to the risk
adjustment data submission and data storage requirements set forth in
45 CFR 153.610 through 153.630.
Risk Adjustment: For risk adjustment covered plans, HHS will need
access to the risk adjustment enrollee-level plan enrollment
information, enrollee claims data, or enrollee encounter data from the
issuer by April 30th of the year following the applicable benefit year
in order to calculate payment transfers based on claims experience and
premiums as set forth in 45 CFR 153.730. Pursuant to section 1321(c)(2)
of the Affordable Care Act, in HHS's role in operating risk adjustment
on behalf of a State, to enforce the risk adjustment standards, we
propose to apply the standards in proposed Sec. 156.805 in connection
with the imposition of CMPs under this section. If a risk adjustment
covered plan does not comply with the requirements set forth in 45 CFR
153.610 through 153.630 and 45 CFR 153.700 through 153.730, we intend
to apply the proposed sanction so that the level of the enforcement
action would be proportional to the level of the violation. While we
would reserve the right to impose penalties up to the maximum amounts
proposed in Sec. 156.805(c), as a general principle, we intend to work
collaboratively with issuers to address problems in establishing
dedicated distributed data environments in 2014. In our application of
the proposed sanction, we would take into account the totality of the
issuer's circumstances, including such factors as an issuer's previous
record (if any), the frequency and level of the violation, and any
aggravating or mitigating circumstances. Our intent is to encourage QHP
issuers to address non-compliance and not to severely affect their
financial condition, especially where the issuer demonstrates good
faith in monitoring compliance with applicable standards, identifies
any suspected occurrences of non-compliance, and attempts to remedy any
non-compliance. We note that HHS would reserve the right to impose, or
not impose, CMPs as appropriate. For instance, if an issuer of a risk
adjustment covered plan does not establish a dedicated distributed data
environment or provide access to the necessary risk adjustment data to
permit HHS to timely calculate the applicable risk adjustment transfer
amounts, we are proposing that HHS will assess the default risk
adjustment charge described below. However, HHS may elect to pursue
CMPs in conjunction with the imposition of the default risk adjustment
charge if an issuer failed to comply with applicable data security or
privacy standards, putting the interests of third-parties at risk.
Reinsurance: Similar to our proposal for risk adjustment covered
plans, we propose that an issuer of a reinsurance-eligible plan may be
subject to CMPs for failure to comply with 45 CFR 153.420, or 45 CFR
153.700 through 153.730. In our application of the proposed sanction,
we would take into account the totality of the issuer's circumstances,
including such factors as an issuer's previous record (if any), the
frequency and level of the violation, and any aggravating or mitigating
circumstances. In certain cases, we may not pursue CMPs. For example,
if an issuer of a reinsurance-eligible plan fails to set up a dedicated
distributed data environment or meet certain data requirements stated
above, and as a consequence, HHS would not have the necessary data to
calculate or distribute reinsurance payments for the reinsurance-
eligible plan, the reinsurance-eligible plan would not receive
reinsurance payments that it otherwise might have received. However,
HHS would reserve the right to pursue CMPs irrespective of whether or
not an issuer becomes ineligible for reinsurance payments as a result
of failing to comply with 45 CFR 153.420, or 45 CFR 153.700 through
153.730.
b. Default Risk Adjustment Charge
As described in the Premium Stabilization Rule and the 2014 Payment
Notice, HHS will employ a distributed data collection approach for risk
adjustment. Under this approach, issuers in States where HHS operates
risk adjustment will be required to establish dedicated, secure data
environments, and provide HHS with access to ``masked'' \19\ enrollee-
level plan enrollment information, enrollee claims data, and enrollee
encounter data pursuant to 45 CFR 153.710 and 45 CFR 153.720. We would
not store any enrollee PII or individual claim-level information in
connection with this data collection, except for the purposes of data
validation and audit. We believe that this approach minimizes issuer
burden while protecting enrollees' privacy. Issuers must provide access
to required risk adjustment data by April 30th of the year following a
benefit year in order for HHS to calculate risk adjustment payment
transfer amounts pursuant to 45 CFR 153.730.
---------------------------------------------------------------------------
\19\ As described at 45 CFR 153.720(b), masked data means data
associated with a unique identifier, where the unique identifier
does not include the enrollee's PII.
---------------------------------------------------------------------------
In cases where an issuer does not set up a dedicated distributed
data environment or submits inadequate risk adjustment data, HHS would
not have the required risk adjustment data from the issuer to calculate
risk scores or payment transfers. This data is necessary to properly
calculate risk adjustment payments and charges for the entire
applicable market for the State. If HHS cannot perform this calculation
for a particular issuer, risk adjustment payment transfers would be
affected for all other issuers in the State market because payments
transfers are determined within a market within a State such that they
will net to zero. Therefore, we believe that we must establish an
administrative capability to calculate payments and charges for all
plans, to avoid penalizing those plans that submit timely, complete
risk adjustment data.
Pursuant to section 1343(b) of the Affordable Care Act, we have the
authority to develop and apply criteria and methods for carrying out
risk adjustment activities, such as applying a default charge to
issuers in the individual or small group market that fail to provide
complete data. Under the HHS-operated risk adjustment methodology, we
require a balanced payment transfer approach in which issuers with a
higher risk enrollee population will receive a payment, while issuers
with a lower risk enrollee population will be assessed a charge in
order to stabilize premiums; these transfers will be calculated
simultaneously and will net to zero in each market in each State. Under
the balanced payment transfer approach, we believe we must calculate
risk adjustment transfers for issuers that fail to provide data in a
timely fashion into the risk adjustment payment transfer formula so
that compliant issuers are not penalized. If issuers that would
otherwise be subject to risk adjustment charges do not comply with
these standards, payments to compliant issuers would be smaller and
charges owed by compliant issuers would be larger.
Therefore, in Sec. 153.740(b), we propose that if an issuer of a
risk adjustment covered plan fails to establish a dedicated distributed
data environment or fails to provide HHS with access to risk adjustment
data in such environment by April 30th of the year following the
applicable benefit year in accordance with Sec. 153.610(a), Sec.
153.700, Sec. 153,710, or Sec. 153.730, such that HHS cannot apply
its Federally certified risk adjustment methodology to calculate the
[[Page 37043]]
plan's risk adjustment payment transfer amount in a timely fashion, HHS
would assess a default risk adjustment charge. We note that delaying
our calculation of risk adjustment payment transfers in a market in a
State until all risk adjustment covered plans submit complete risk
adjustment data would weaken the integrity of the April 30th data
submission deadline and would jeopardize related deadlines for the risk
corridors and MLR programs. We seek comment on our proposed default
charge approach. We intend to provide future guidance on any applicable
review processes available to those issuers for whom we propose to
assess a default charge.
We are considering two different methods for calculating the
default risk adjustment charge. One option would be to use the highest
per-member-per-month charge among risk adjustment covered plans in a
risk pool in the market in the plan's geographic rating area. A second
option would be to use a per-member-per-month default charge that is
two standard deviations above the mean charge in the market in the
plan's geographic rating area. With respect to this second option, we
believe that a two standard deviation calculation will adequately
encourage compliance with the applicable data requirements while
remaining tied to the market realities of the applicable geographic
rating area.
In order to calculate a plan's risk adjustment payment transfer
amount, we must consider the enrollment data of the plan. As such, if a
risk adjustment covered plan fails to provide HHS with enrollment data,
we propose that the default charge would be based on the average
enrollment in the State market. If enrollment data is provided, we
propose that the default charge would be based on average annual
enrollment for the plan in a risk pool in the State market. We seek
comment on these methods, other appropriate methods for calculating a
default risk adjustment charge, and other sources of data HHS could use
to determine enrollment data for non-compliant issuers, such as MLR or
NAIC filings, or information supplied by a State Department of
Insurance (DOI). We also seek comment on whether to allocate a non-
compliant issuer's default charge to issuers in the market as part of
payments and charges in the concurrent benefit year, during a
subsequent benefit year, or sometime between annual payments and
charges processes.
D. Part 155--Exchange Establishment Standards and Other Related
Standards Under the Affordable Care Act
1. Subpart A--General Provisions
a. Definitions (Sec. 155.20)
Section 1311(b) of the Affordable Care Act provides States with the
opportunity to establish and operate an Exchange that both facilitates
the purchase of QHPs and provides for the establishment of a SHOP.
Previously, we have interpreted this provision to mean that a State
must elect to carry out both these functions in order to establish an
``Exchange'' in accordance with the Affordable Care Act.\20\ However,
since we advanced that interpretation of the statute, some States in
which HHS would otherwise operate both the individual market Exchange
and the SHOP have expressed a desire to establish and operate only a
SHOP, and not to establish and operate an individual market Exchange.
In light of HHS's limited resources, and these States' willingness to
take on operation of the SHOP-specific functions required by the
Affordable Care Act, we now interpret sections 1311(b) and 1321 of the
Affordable Care Act to permit a State to elect to establish just a
SHOP.\21\ This interpretation is supported by the language in section
1311(b)(2) of the Affordable Care Act, which contemplates the separate
operation of the individual market Exchange and the SHOP under
different governance and administrative structures, because it permits
the individual market Exchange and SHOP to be merged only if the State
has adequate resources to assist both populations (individuals and
small employers) as a merged entity. It is also supported by section
1321(c) of the Affordable Care Act, which provides that if a State will
not have ``any required Exchange operational'' the Secretary shall
``establish and operate such Exchange'' (emphasis added). Thus, under
the interpretation we now propose, if the State will establish only a
SHOP, and will not operate the individual market Exchange, the
Secretary must establish and operate the individual market Exchange.
---------------------------------------------------------------------------
\20\ See Exchange Establishment Rule, 77 FR at 18395, see also
id. at 18314, 18316, and 18326.
\21\ We previously signaled our intent to propose this approach
through rulemaking. See https://www.cms.gov/CCIIO/Resources/Fact-Sheets-and-FAQs/Downloads/shop-marketplace-5-10-2013.pdf.
---------------------------------------------------------------------------
We propose to amend 45 CFR 155.20 to reflect this new flexibility
for States by modifying the definition for ``Exchange.''
Exchange
We propose that ``Exchange'' would mean a governmental agency or
non-profit entity that meets the applicable standards of Part 155 and
makes QHPs available to qualified individuals and/or qualified
employers. Unless otherwise identified, under the proposed definition
this term would include an Exchange serving the individual market for
qualified individuals and a SHOP serving the small group market for
qualified employers, regardless of whether the Exchange is established
and operated by a State (including a regional Exchange or subsidiary
Exchange) or by HHS.
We also clarify that we intend the phrase ``meets the applicable
standards of this part'' in the proposed amendment to the definition to
refer to any applicable standard of Part 155, including but not limited
to the proposed amendments to Sec. Sec. 155.100, 155.105, and 155.200
discussed below, and the special rules applicable to regional Exchanges
pursuant to Sec. 155.140 (together with the proposed amendments to
that section). Pursuant to the proposed amendment to the definition,
there could be several types of Exchanges operating in a State, all of
which would meet the regulatory definition, so long as the applicable
standards of Part 155 were met. We further clarify that there must be
an individual market Exchange and a SHOP in each State. We invite
general comments on this proposal, including on whether we should amend
provisions of Part 155 in addition to those we propose amending here to
provide States with the flexibility to establish and operate only a
SHOP.
We are also adding a new definition for ``issuer customer service
representative.''
Issuer Customer Service Representative
For the same reasons that we propose adding Sec. 155.415 below, we
propose to define an ``issuer customer service representative'' to mean
an employee, contractor, or agent of a QHP issuer that provides
assistance to applicants and enrollees, but is not licensed as an
agent, broker, or producer under State law.
We are also making a clarification regarding the definition of
``qualified health plan.''
Qualified Health Plan
With regard to the definition of ``qualified health plan'' in the
preamble to the Exchange Establishment Rule, we stated that health
plans that are ``substantially the same'' as a QHP are
[[Page 37044]]
treated as the same QHP for purposes of 45 CFR 156.255(b), which
requires a QHP issuer to charge the same premium rate for each QHP of
the issuer without regard to whether the plan is offered through an
Exchange or whether the plan is offered directly from the issuer or
through an agent. In the Premium Stabilization Rule, we offered similar
guidance with respect to which plans offered outside the Exchange would
be considered the same QHP for purposes of the risk corridors program
(77 FR 17237), and stated that HHS might clarify this standard in
future rulemaking or guidance.
We are now proposing to specify that, for a plan offered outside
the Exchange to be considered the same plan as one that is certified as
a QHP and offered through the Exchange, among other things, the
benefits package, provider network, service areas, and cost-sharing
structure of the two offerings must be identical. Under this proposal,
a plan that is certified as a QHP and that meets the requirements for
sale in the applicable market outside of the Exchange is a QHP for the
entire applicable market within a State. We note that nothing in this
proposal would relieve an issuer of a plan that has been certified as a
QHP by the Exchange from the requirement to charge the same premium for
the QHP sold to consumers outside of the Exchange (pursuant to sections
1301(a)(C)(iii) of the Affordable Care Act and 45 CFR 156.255(b) and 45
CFR 147.104).
We also propose to clarify that a plan sold to consumers outside of
the Exchange would only be subject to the risk corridors program if it
is the same as a QHP actually offered by that issuer on the Exchange.
We believe that sections 1301(a)(1)(A) and 1311(e) of the Affordable
Care Act, and the definition of a QHP at 45 CFR 155.20, contemplate
certification of a QHP for offer on the Exchange, so that (with the
exception of stand-alone dental plans) a plan sold to consumers
exclusively outside of the Exchange could not obtain QHP certification.
We note that the EHB final rule \22\ outlined an arrangement where
health insurance issuers could offer a health plan to an individual
without the pediatric dental EHB if the issuer is reasonably assured
that the individual has obtained the EHB through an Exchange-certified
stand-alone dental plan (78 FR 12853).
---------------------------------------------------------------------------
\22\ Patient Protection and Affordable Care Act; Standards
Related to Essential Health Benefits, Actuarial Value, and
Accreditation (78 FR 12834) (February 25, 2013).
---------------------------------------------------------------------------
We believe that the proposed policy set forth in this section is
consistent with the intent of the statute and existing regulations with
respect to the offering and certification of QHPs, and helps to
maintain the integrity of the risk corridors program, which we believe
is intended primarily to stabilize premiums of plans offered through
the Exchanges.
We request comment on all aspects of this approach, particularly on
issues that may be raised by this approach for State requirements for
product or policy form filings, including filings for coverage riders
(whether mandatory or optional), State-required benefits, and State-
required service areas (including tiered networks within service
areas). We seek comment on whether the criteria laid out above--
benefits, provider network, service areas, and cost-sharing structure--
are the proper criteria for determining whether offerings are the same
plan, and whether additional criteria such as allowances for de minimis
variations that do not change plan actuarial value should be included,
or whether no criteria are necessary because it is clear from State
oversight processes when a plan is the same plan or a different plan.
We also seek comment on how this proposed approach would affect what is
considered a new plan offering, and the potential impact of this
proposal on plan renewals. Finally, we seek comment on the operational
feasibility of the proposed requirements, particularly with regard to
issuers in the small group market.
2. Subpart B--General Standards Related to the Establishment of an
Exchange
a. Establishment of a State Exchange, Approval of a State Exchange,
(Sec. Sec. 155.100, 155.105, and 155.140)
Consistent with our proposed amendments to the definition of
``Exchange'' in Sec. 155.20, we propose to amend Sec. 155.100 to
permit a State to operate only a State-based SHOP while the individual
market Exchange is operated as an FFE. This proposed amendment would
permit a State to elect to establish and operate only the SHOP and to
focus on effective implementation of that program. A State that is
electing to establish only a SHOP must establish an Exchange entity--
consistent with section 1311(d)(1) of the Affordable Care Act and
Sec. Sec. 155.100(b) and 155.110--to perform only the SHOP functions.
We considered whether to propose allowing a State to establish and
operate only the individual market Exchange while HHS operates the
SHOP, but decided not to do so for the reasons described below.
Accordingly, under the proposed amendments, a State could not elect to
establish and operate just the individual market Exchange. We believe
that building and operating the SHOP is an excellent way for a State to
move towards operating both a SHOP and an individual market Exchange.
Further, while a State operating a SHOP has a variety of options
available to ensure a robust choice of QHPs and issuers, for example,
through its direct regulation of the individual and small group
insurance markets, these options may not be available to HHS because
they would require HHS to go beyond its traditional market role under
the PHS Act. The only tool HHS can rely upon for incentivizing issuer
participation in the SHOP is the QHP certification process, and this
tool is a limited one if the individual market Exchange is operated by
the State.\23\ Additionally, if the State has already built the
structure and systems needed to run an individual market Exchange, it
would be inefficient and burdensome for HHS to step in and build those
functions solely so that it can operate the SHOP, when the State would
be in a better position to operate both Exchanges. Therefore, we have
not proposed that a State be allowed to operate an individual market
Exchange while the Department is responsible for the operation of an
FF-SHOP in the State. As discussed above, we seek comment generally on
this proposal, and particularly on this aspect of it.
---------------------------------------------------------------------------
\23\ See, HHS Notice of Benefit and Payment Parameters for 2014
Proposed Rule, 77 FR 73185.
---------------------------------------------------------------------------
We propose in Sec. 155.100(a)(3) that a State that has timely
applied for certification of an Exchange for 2014, and that has
received conditional approval for its application, would be able to
modify its Blueprint pursuant to 45 CFR 155.105(e) to exclude the
operation of the individual market Exchange functions for 2014.\24\
Because such States have been preparing to establish and operate both
the individual market and SHOP Exchanges, they would be in a position
to establish and operate just the SHOP in 2014. In contrast, States
that have not received conditional approval to operate both Exchanges,
but which want to operate only a SHOP for 2014, would have to develop a
fully functioning SHOP by the time open enrollment begins on October 1,
2013; this is a
[[Page 37045]]
compressed time frame to accomplish establishment and full operation.
Therefore, under this proposed rule, States that have not received
conditional approval for 2014 may not exercise the option to operate
only a SHOP for the 2014 plan year. For the 2015 plan year and beyond,
we would consider new Blueprints from States proposing to operate only
the SHOP, pursuant to 45 CFR Sec. 155.106. We seek comment on this
proposed approach.
---------------------------------------------------------------------------
\24\ In guidance, we have previously signaled our intent to
propose this approach through rulemaking. See Small Business Health
Options Program (SHOP)-Only Marketplace FAQs (May 10, 2013).
available at: https://www.cms.gov/CCIIO/Resources/Fact-Sheets-and-FAQs/Downloads/shop-marketplace-5-10-2013.pdf.
---------------------------------------------------------------------------
We further propose to amend Sec. 155.105 so that the Exchange
approval criteria set forth therein would be consistent with the
Exchange operational models now proposed in Sec. Sec. 155.20, 155.100,
and 155.200, and to permit HHS to operate only a FFE that will make
QHPs available to qualified individuals when a State has elected to
operate only an Exchange providing for the establishment of a SHOP
pursuant to proposed Sec. 155.100(a)(2). In paragraphs (b)(1) and
(b)(2) we clarify that a State establishing and operating only a SHOP
would have to perform the minimum functions described in subpart H and
all applicable references to other subparts contained therein, and need
not comply with other provisions that by their express terms apply only
to an individual market Exchange.
We propose to amend paragraph (f) to clarify that where a State has
elected to establish and operate only a SHOP, the FFE must meet the
requirements set forth in Sec. Sec. 155.120(c), 155.130, and subparts
C, D, E, and K of this part; however, it need not implement the
standards for the establishment of a SHOP described in subpart H. We
seek comment on this proposal.
We are also proposing an amendment to Sec. 155.105(f) to clarify
that the regulatory provisions that will apply in an FFE include the
nondiscrimination requirements of Sec. 155.120(c). Section 155.120(c),
as written, applies to all Exchanges, and its previous omission from
the list of provisions referenced in Sec. 155.105(f) was inadvertent.
We propose to amend Sec. 155.140 to clarify how a subsidiary or
regional Exchange may operate in light of the proposed amendments to
permit a State to establish and operate an Exchange only providing for
the establishment of a SHOP. Under this proposal, a State establishing
and operating only a SHOP could still establish subsidiary SHOP
Exchanges. Multiple States that wish to establish and operate only
SHOPs could still form a regional Exchange only providing for the
establishment of a SHOP across the region covered by the participating
states.
Previously, we had created the standards for regional and
subsidiary Exchanges such that the geographic area served by such
Exchanges must be the same for the individual market Exchange and the
SHOP.\25\ We propose in paragraph (c)(2)(ii) to generally preserve this
standard, except in the case of an Exchange established pursuant to
proposed Sec. 155.100(a)(2).
---------------------------------------------------------------------------
\25\ See Exchange Establishment Rule, 77 FR 18322.
---------------------------------------------------------------------------
In paragraph (c)(2)(ii)(A), we propose that in the case of a
regional Exchange established pursuant to proposed Sec. 155.100(a)(2)
to provide only for the establishment and operation of a SHOP, the
regional SHOP would be required to encompass a geographic area that
matches the combined geographic areas of the individual market
Exchanges established by HHS to serve the States establishing the
regional SHOP.
In paragraph (c)(ii)(B), we propose that in the case of a
subsidiary Exchange established pursuant to Sec. 155.100(a)(2) to
provide only for the establishment and operation of a SHOP, the
combined geographic area of all subsidiary SHOPs established by the
State would be required to encompass the geographic area of the
individual market Exchange established by HHS to serve the State.
In addition, under 45 CFR 153.310(a), a State that elects to
operate an Exchange is eligible to establish a risk adjustment program
using a methodology that has obtained federal certification. We are
considering whether a State that elects to operate a SHOP but not an
individual market Exchange under the proposed approach described above
should be eligible to establish a risk adjustment program, and in
particular whether such a State should be eligible to establish a risk
adjustment program only for the small group market or should be
required to establish the program for both markets. We seek comment on
this issue.
3. Subpart C--General Functions of the Exchange
a. Functions of an Exchange (Sec. 155.200)
Consistent with the proposed amendments described above to
Sec. Sec. 155.20, 155.100, 155.105, and 155.140, which permit a State
to operate only an Exchange providing for the establishment of a SHOP,
in Sec. 155.200 we propose that a State operating only an Exchange
which provides for the establishment of a SHOP need perform only the
minimum functions described in subpart H and all applicable provisions
of other subparts referenced therein. Under such circumstances, the
Exchange operated by HHS need not perform the minimum functions related
to the establishment of a SHOP.
b. Ability of States To Permit Agents and Brokers to Assist Qualified
Individuals, Qualified Employers, or Qualified Employees Enrolling in
QHPs (Sec. 155.220)
Section 1312(e) of the Affordable Care Act authorizes the Secretary
to establish procedures that permit agents and brokers to enroll
qualified individuals and qualified employers in QHPs through an
Exchange, and to assist individuals in applying for advance payments of
the premium tax credit and cost-sharing reductions, to the extent
allowed by States.
In 45 CFR 155.220(c), 155.220(d), and 155.220(e), we established
general Exchange standards that agents and brokers must meet to assist
individuals in enrolling in QHPs and applying for advance payments of
the premium tax credit and cost-sharing reductions, including
registration, training, compliance with the privacy and security
standards adopted by the Exchange, compliance with applicable State
law, and execution of an agreement with the Exchange. Section
155.220(c)(3) established additional standards for agents and brokers
that use Internet Web sites to assist qualified individuals in
enrolling in a QHP.
In CMS's guidance titled ``Role of Agents, Brokers, and Web-brokers
in Health Insurance Marketplaces,'' \26\ we further clarified that in
States where an FFE is operating, agents or brokers assisting
individuals in selecting or enrolling in individual market QHPs through
an FFE may use one of two pathways. First, an agent or broker may use a
QHP issuer's Internet Web site to assist or enroll individuals, if the
agent or broker has a relationship with an issuer, and the issuer has
direct enrollment capabilities. Alternatively, an agent or broker may
use an FFE Internet Web site to assist individuals.
---------------------------------------------------------------------------
\26\ Role of Agents, Brokers, and Web-brokers in Health
Insurance Marketplaces, (May 1, 2013). Available at: https://www.cms.gov/CCIIO/Resources/Regulations-and-Guidance/Downloads/agent-broker-5-1-2013.pdf.
---------------------------------------------------------------------------
Regardless of what pathway they use, all agents and brokers must
register with CMS before they may assist qualified individuals in
enrolling in individual market coverage through an FFE. Once an agent
or broker has completed the registration process, which includes
undergoing basic CMS identity proofing, completing an FFE training
course, and signing an agreement with CMS, he or she will receive an
active FFE user identification number, which will be the agent's or
broker's unique identifier in an FFE. This would allow CMS to monitor
and oversee the activities of
[[Page 37046]]
agents and brokers in an FFE, which is discussed in more detail later
in this section, and would also facilitate payment for agent and broker
services from issuers.
Web-broker Policies and Procedures
Section 155.220(c)(3) establishes standards that apply if an agent
or broker uses its publicly-facing Internet Web site to assist
individuals in selecting or enrolling in a QHP through the Exchange.
Agents or brokers who do so are referred to as ``Web-brokers'' for the
purposes of this proposed rule. We propose amending Sec.
155.220(c)(3)(i), which currently requires that a Web-broker meet all
standards for disclosure and display of QHP information contained in
Sec. Sec. 155.205(b)(1) and 155.205(c). In particular, Sec.
155.205(b)(1) requires the display of standardized comparative
information on each available QHP, including its: (a) Premium and cost-
sharing information; (b) summary of benefits and coverage; (c) metal
level (bronze, silver, gold, or platinum); (d) enrollee satisfaction
survey results; (e) quality ratings; (f) medical loss ratio, (g)
transparency of coverage measures, and (h) provider directory.
After taking into consideration concerns from issuers, we propose
to limit the Web-broker's obligation to disclose and display the QHP
information to all the information provided to the Web-broker by the
Exchange or directly by the issuer. We recognize that an Exchange may
not be able to provide all Web-brokers with certain data elements
necessary to meet the Sec. 155.205(b)(1) requirements, such as premium
and rate information, depending upon confidentiality requirements, the
extent to which Web-brokers are appointed by individual QHP issuers,
and State laws regarding agent and broker appointments. We also
recognize that some of the required data, such as quality rating and
enrollee satisfaction survey results, may not be available in the first
year of Exchange operations, in which case Web-brokers would also not
need to display this information. We seek comment on whether this
provision should be limited to FFEs.
We note that we do not intend this amendment to alter Web-brokers'
obligations to meet all existing standards for disclosure and display
of QHP information contained in Sec. 155.205(c), regardless of the
availability of QHP issuer information from issuers or the Exchange.
Additionally, the Web-broker should display all information provided by
the Exchange or an issuer in a manner that is as consistent with the
requirements in Sec. 155.205(b)(1) as possible. We solicit comments on
how to monitor this provision to ensure that Web-brokers display QHP
information received by an Exchange or QHP issuers in a manner
consistent with the QHP information displayed on an Exchange Web site.
Even if a Web-broker is unable to display certain QHP information
identified in Sec. 155.205(b)(1) because it is not provided by the
Exchange or a QHP issuer, it must still display a list of all available
QHPs for the consumers to view, as required by Sec. 155.220(c)(3)(ii).
We also propose that, to address situations where the Web-broker is
unable to display certain QHP information identified in Sec.
155.205(b)(1), the Web-broker must display a link to the Exchange Web
site so the consumer may obtain the additional information.
Instead of modifying only Sec. 155.220(c)(3)(i), we considered
removing Sec. 155.220(c)(3)(ii), which requires Web-brokers to provide
consumers with the ability to view all QHPs offered through the
Exchange. We decided not to propose this approach so that the consumer
would be aware of all available QHP options, even if some of the
specific plan details may not be available on the Web-broker's Internet
Web site. We invite comment on this proposal.
We also propose to amend Sec. 155.220(c)(3) by adding a new
paragraph (c)(3)(vii), which would require Web-brokers' Internet Web
sites in an FFE to prominently display language notifying consumers
that: (a) the Web-broker's Internet Web site is not an FFE Web site;
(b) the Web-broker's Web site might not display all QHP data available
on the Exchange Web site; (c) the Web-broker has entered into an
agreement with HHS pursuant to Sec. 155.220(d); and (d) the Web-broker
agrees to comply with standards specified in Sec. 155.220(c) and (d).
We believe that this additional standard is in the best interest of the
consumers in an FFE, as it will help consumers distinguish between an
FFE Web site and the Internet Web sites of Web-brokers, and it will
inform consumers that agents and brokers must comply with FFE standards
and requirements before they can assist and enroll consumers. We
welcome comments on this proposal. HHS expects to make available an
application programming interface that would permit Web-brokers to use
their public-facing Internet Web sites to assist consumers in enrolling
through individual market QHPs offered through an FFE (``FFE API''). An
FFE API would allow a person seeking to enroll in a QHP to initiate his
or her shopping experience on a Web-broker's Internet Web site, connect
securely to an FFE Web site to complete the eligibility application and
determination process, and return securely to the Web-broker's Internet
Web site compare and select QHPs.
We understand that some Web-brokers may enter into arrangements
with other agents and brokers under which those agents and brokers
would be able to enroll qualified individuals in an FFE through the
Web-broker's Internet Web site. We are concerned about these
arrangements that would allow other agents and brokers to use the Web-
broker's connection to HHS, because they would not require the agent or
broker to be a party to the Web-broker's agreement with HHS, or to
become an employee or subcontractor of the Web-broker. We are
considering prohibiting such arrangements outright, in part because
such entities are not a party to the Web-broker's agreement with HHS.
However, we also want to make sure that agents and brokers have many
possible avenues to participate in the FFE. If we do not prohibit such
arrangements, we believe that a Web-broker should not be able to enter
into these arrangements unless the Web-broker ensures that the agent or
broker using its connection to HHS agrees to comply with the same FFE
standards and requirements applicable to Web-brokers under Sec.
155.220(c) and (d). We therefore propose to add a new Sec.
155.220(c)(4) that would require any Web-broker who makes an Internet
Web site available to other agents and brokers for this purpose to
require as a condition of agreement or contract that the agent or
broker accessing and using the Internet Web site complies with Sec.
155.220(c) and (d). We also propose that the Web-broker would be
required to provide to HHS a list of agents and brokers who are under
such arrangements, and that the Web-broker be required to ensure that
the agent or broker accessing or using the Internet Web site would be
required to comply with the policies that the Web-broker would be
required to develop under Sec. 155.220(d)(4), as proposed below.
Because we would require the agent or broker accessing or using the
Web-broker's connection to comply with Sec. 155.220(d), that agent or
broker would also have to enter into a Web-broker agreement with HHS.
If the agent or broker accessing or using the Internet Web site fails
to comply with either provision, both parties to the arrangement would
be found to be noncompliant with the regulatory
[[Page 37047]]
requirements, and HHS would have cause to terminate its agreements with
both parties. We seek comments on this circumstance and proposal, on
whether these arrangements should be prohibited outright, and on
whether there are other options to consider.
Agent and Broker Policies and Procedures on Privacy and Security in an
FFE
Section 155.220(d)(3) currently directs all agents or brokers
assisting qualified individuals with enrollment in QHPs to comply with
the Exchange privacy and security requirements. We propose to establish
a new standard in Sec. 155.220(d)(4) requiring agents and brokers
assisting or enrolling consumers in the individual market of an FFE to
establish policies and procedures implementing the privacy and security
standards pursuant to Sec. 155.220(d)(3); to train their employees,
representatives, contractors, and agents with regard to those policies
and procedures on a periodic basis; and to ensure that their employees,
representatives, contractors, and agents comply with those policies and
procedures. Because agents and brokers will have access to PII provided
by consumers we want to ensure that the agents and brokers have
appropriate procedures, training and monitoring safeguards in place to
protect PII. We invite comments on the appropriate frequency of
retraining requirements.
Standards for Agent and Broker Agreement Termination in an FFE
We propose adding a new Sec. 155.220(f), which would require
agents and brokers who wish to terminate their agreement with an FFE to
send to HHS a 30-day advance written notice of the intent to terminate.
This notice would also include the intended date of termination. If the
notice does not specify a date of termination, or the date is not
acceptable to HHS, HHS may set a date that will be no less than 30 days
from the date of the agent or broker's notice of termination. We
believe that this additional standard would be in the best interest of
FFE consumers, as the 30-day pre-termination period would allow agents
and brokers to complete any application or enrollment activity
initiated prior to the notice. As of the date of termination, an agent
or broker would not be able to conduct business in an FFE, although the
agent's or broker's related duty to protect and maintain the privacy
and security of PII it has created, collected, accessed, or acquired
during its period of relationship with an FFE would survive the
termination. We are considering whether to require such agents and
brokers to also directly notify their clients of the termination plan
during the pre-termination period. We welcome comment on this proposal.
We also propose to establish new standards for agents and brokers
in the FFEs, so that agents and brokers that register with an FFE have
a clear understanding of the rights and standards governing their
participation in an FFE. In new section Sec. 155.220(g), we propose
the standards under which HHS may terminate an agent's or broker's
agreement with an FFE for cause.
In Sec. 155.220(g)(1), we propose that HHS may pursue termination
with notice of an agent's or broker's agreement with an FFE executed
pursuant to Sec. 155.220(d) if, in HHS's determination, a specific
finding of noncompliance or pattern of noncompliance is sufficiently
severe. Under this proposal, termination of the agreement with notice
would mean that after a 30-day opportunity to cure, HHS would take
necessary steps to prohibit an agent or broker from assisting or
enrolling individuals in an individual market QHP offered through an
FFE, or a Web-broker's ability to securely exchange information with
HHS.
In Sec. 155.220(g)(2), we propose that an agent or broker would be
considered noncompliant if HHS finds that the agent or broker violated:
(a) Any standard specified under Sec. 155.220; (b) any term or
condition of its agreement with the FFE, including but not limited to
the FFE privacy and security standards; (c) any applicable State law;
or (d) any other applicable Federal law.
We propose that if HHS finds noncompliance or patterns of
noncompliance to be sufficiently severe, such a finding would form the
basis for a termination for cause. We believe that HHS must maintain
the ability to terminate an agent's or broker's agreement for cause to
protect the interest of consumers in cases of severe violations and
patterns of violations, particularly violations with respect to privacy
and security protections. Specific findings of noncompliance that HHS
might determine to be sufficiently severe to warrant termination for
cause would include, but not be limited to, violations of the Exchange
privacy and security standards. Patterns of noncompliance that HHS
might determine to be sufficiently severe to warrant termination for
cause would include, for example, repeated violations of any of the
standards set forth in Sec. 155.220 for which the agent or broker was
previously found to be noncompliant. We seek comment on this proposal
and on other circumstances that should result in an HHS termination for
cause.
Prior to pursuing the termination of an agent's or broker's
agreement for cause, we are considering implementing informal
procedures, which may be published in future sub-regulatory guidance.
The informal procedures would allow agents and brokers, at HHS
discretion, to resolve certain noncompliance issues within a time
period determined reasonable by HHS. Through this informal process, HHS
would notify an agent or broker of the reason for the potential
termination, the potential consequences of continued noncompliance, and
any applicable administrative procedures. However, HHS would retain the
right to bypass these informal procedures.
Upon identification of a sufficiently severe violation under the
proposed Sec. 155.220(g)(2), HHS would formally notify the agent or
broker of the specific finding of noncompliance or pattern of
noncompliance, as proposed in Sec. 155.220(g)(3). The agent or broker
would then have a period of 30 days from the date of the notice to
correct the noncompliance to HHS's satisfaction, through good-faith
efforts. If after 30 days, the noncompliance is not appropriately
addressed, HHS may terminate the agreement for cause. In Sec.
155.220(g)(4), we propose that termination for cause would result in
the loss of the ability to assist individuals enroll in QHPs and
transact data with HHS, including transactions through the FFE API. We
believe this approach would provide an opportunity for agents and
brokers to remedy any noncompliance issue in advance of a potential
termination for cause.
We request comment on the informal resolution approach we are
considering implementing through future sub-regulatory guidance,
specifically on whether we should consider any alternative proposals.
We also solicit comment on the appropriate time length for a cure
period, and on whether we should include a provision permitting HHS to
terminate an agent's or broker's agreement immediately and permanently
for cause if findings of noncompliance are sufficiently egregious. We
are also considering an option that would allow HHS to immediately but
temporarily suspend an agent or broker by prohibiting the agent or
broker from assisting individuals to enroll in a QHP offered through
the FFE and/or ability to securely exchange information with HHS,
including through the FFE API, without advance notice. We are
considering this option because there
[[Page 37048]]
may be instances where a specific violation could pose immediate harm
to consumers or to HHS's ability to properly administer the FFE. Under
this scenario, as soon as possible following the temporary suspension,
HHS would notify to the agent or broker of HHS's action and the
noncompliance issue. If the agent or broker satisfactorily addresses
the issue, HHS would notify the agent or broker that the temporary
suspension had been lifted. We request comments on this approach, and
the circumstances under which it would be needed.
We further propose a new section Sec. 155.220(h) to establish a
one-level process through which an agent or broker may request
reconsideration of HHS's decision to terminate the agreement for cause.
In Sec. 155.220(h)(2), we propose that an agent or broker must submit
a request for reconsideration to an appropriate HHS designee
(``reconsideration entity'') within 30 calendar days of the date of the
notice in order to obtain a reconsideration. In Sec. 155.220(h)(3), we
propose that the reconsideration entity would provide the agent or
broker with a written reconsideration decision within 30 calendar days
of the date it receives the request for reconsideration. This decision
would constitute HHS's final determination.
We believe this approach would afford agents and brokers an
opportunity to furnish any facts and information that might not have
been considered as part of HHS's decision to terminate the agreement
for cause, and to provide due process. We intend to provide future
guidance on the manner and form in which agents and brokers should
present requests for reconsideration, HHS's designation of an
appropriate reconsideration entity, and additional procedures related
to agent and broker revocation and reconsideration. We invite comments
on this reconsideration proposal.
We expect that States will continue to license and monitor agents
and brokers, and will continue to oversee and regulate all agents and
brokers, both inside and outside of the Exchange. We expect that all
State laws related to agents and brokers, including State laws related
to appointments, contractual relationships with issuers, and licensing
and marketing requirements, will continue to apply. Therefore, to avoid
duplication of oversight activities related to agents and brokers
enrolling or assisting consumers through an FFE, HHS will focus its
oversight activities primarily on ensuring that agents and brokers in
an FFE meet the standards outlined in Sec. 155.220. In particular, HHS
plans to focus its oversight efforts on protecting the privacy and
security of PII, to the extent this is not already covered under
existing State or Federal law.
Prior to releasing additional guidance on agent and broker
activities in the FFE, we intend to collaborate with State DOIs to
further develop standard operating procedures for an FFE that will be
critical to HHS oversight of agents and brokers working with an FFE. We
encourage comment on the information required to carry out these
activities, and on any existing definitions, timeframes, or procedures
described in our proposed amendments to Sec. 155.220.
c. Electronic Information Exchange With Covered Entities (Sec.
155.270)
Section 155.270 of 45 CFR directs Exchanges that perform electronic
transactions with a covered entity to use standards, implementation
specifications, operating rules, and code sets adopted by the Secretary
in 45 CFR parts 160 and 162. When 45 CFR 155.270 was finalized in its
current form, HHS believed that the HIPAA standard transactions, as
defined in 45 CFR Parts 160 and 162, were the most appropriate
standards for transmitting information electronically between Exchanges
and issuers. Since then, the Accredited Standards Committee X12, also
known as ``ASC X12,'' \27\ which governs the electronic transactions
addressed in 45 CFR parts 160 and 162, has determined that the current
transaction used to communicate payment-related information, the HIPAA
ASC X12 005010X218 (820), cannot provide the program-level payment
information necessary for the risk adjustment, reinsurance, and risk
corridors programs, and therefore does not meet the business
requirements of the Affordable Care Act programs. As a result, the ASC
X12 standards body developed and finalized the ASC X12 005010X306
(820), referred to as the ``HIX 820.'' The HIX 820 has the same
security and technical requirements as HIPAA standards, but it is a new
implementation of the transaction, so it has not yet been adopted by
the Secretary in 45 CFR parts 160 and 162. We believe that the HIX 820
is the most appropriate method for transmitting payment-related
information between the Exchange and a covered entity. For this reason,
and to provide for flexibility should similar situations arise in the
future, we propose to amend Sec. 155.270 to specify that to the extent
that an Exchange performs electronic transactions with a covered
entity, an Exchange must use standards, implementation specifications,
operating rules, and code sets that are adopted by the Secretary in 45
CFR parts 160 and 162 or that are otherwise approved by HHS. We further
propose to approve the HIX 820 transaction for transmitting payment-
related information between the Exchange and a covered entity. We seek
comment on this proposal.
---------------------------------------------------------------------------
\27\ ASC X12 is chartered by the American National Standards
Institute. See, https://www.x12.org/.
---------------------------------------------------------------------------
d. Oversight and Monitoring of Privacy and Security Requirements (Sec.
155.280)
In Sec. 155.280, consistent with section 1411(g) and (h) of the
Affordable Care Act, we propose that HHS will monitor any individual or
entity who would be subject to the privacy and security requirements as
established and implemented by an Exchange under Sec. 155.260.
We propose in Sec. 155.280(a) that HHS will oversee and monitor
the FFEs and non-Exchange entities associated with FFEs for compliance
with the privacy and security standards established and implemented by
the FFEs pursuant to Sec. 155.260 for compliance with those standards.
HHS will monitor State Exchanges for compliance with the privacy and
security standards established and implemented by the State Exchanges
pursuant to Sec. 155.260. In addition, we propose that State Exchanges
will oversee and monitor non-Exchange entities associated with the
State Exchange for compliance with the standards implemented by the
State Exchange pursuant to Sec. 155.260.
In Sec. 155.280(b), we propose the oversight activities that HHS
may conduct in order to ensure adherence to the privacy and security
requirements in Sec. 155.260. These may include, but are not limited
to, audits, investigations, inspections and any reasonable activities
necessary for appropriate oversight of compliance with the Exchange
privacy and security standards as permitted under sections 1313(a)(2)
and (a)(3) of the Affordable Care Act.
In Sec. 155.280(c)(1)(i) and (ii), we propose definitions for the
terms ``incident'' and ``breach'' as they apply to privacy and
security. We considered but declined to use the definitions for these
terms provided under the HIPAA regulations because the protected health
information (PHI) that triggers the HIPAA requirements is considered a
subset of PII,\28\ and we believe that the
[[Page 37049]]
HIPAA definitions would not provide broad enough protections to satisfy
the requirements under the Privacy Act of 1974 (5 U.S.C. 552a), the e-
Government Act of 2002 (Pub. L. 107-347), other laws to which HHS is
subject, or the expectations of the other Federal agencies that will be
providing PII to facilitate Exchange eligibility determinations. We
considered the definitions and explanations for ``incident'' in the
following publications: OMB Memorandum M-06-19, OMB Memorandum M-07-16,
and the National Institute of Standards and Technology Special
Publication 800-61, and propose that ``incident'' would mean, the act
of violating an explicit or implied security policy, which includes
attempts (either failed or successful) to gain unauthorized access to a
system or its data, unwanted disruption or denial of service, the
unauthorized use of a system for the processing or storage of data; and
changes to system hardware, firmware, or software characteristics
without the owner's knowledge, instruction, or consent. We propose that
the definition for ``breach'' be the same as the definition in OMB
Memorandum M-07-16, Safeguarding and Responding to the Breach of
Personally Identifiable Information, which defines ``breach'' as the
loss of control, compromise, unauthorized disclosure, unauthorized
acquisition, unauthorized access, or any similar term referring to
situations where persons other than authorized users and for an other
than authorized purpose have access or potential access to personally
identifiable information, whether physical or electronic. We welcome
comment on the use of these definitions for incident and breach as they
relate to PII.
---------------------------------------------------------------------------
\28\ Compare the definitions of individually identifiable health
information and protected health information at 45 CFR 160.103 and
the definition of PII in Office of Management and Budget (OMB)
Memorandum M-07-16 (see 77 FR 18340 for an explanation of how the
OMB definition of PII applies to Exchanges).
---------------------------------------------------------------------------
In Sec. 155.280(c)(2) we propose that in the event of an incident
or breach, the entity where the incident or breach occurs would be
responsible for reporting and managing it according to the entity's
documented incident handling or breach notification procedures. We
believe that incident handling and breach notification procedures
should be among the written policies and procedures required for
Exchanges under Sec. 155.260(d). Non-Exchange entities associated with
the Exchanges would be required to have policies and procedures in
place for reporting breaches and incidents as a condition of the
contracts or agreements that are required under Sec. 155.260(b). Under
Sec. 155.260(a)(3)(viii), Exchanges would also be required to
establish accountability standards that would include the development
and implementation of policies and procedures including incident
handling and breach notification procedures.
In Sec. 155.280(c)(3) we propose that FFEs, non-Exchange entities
associated with FFEs, and State Exchanges must report all privacy and
security incidents and breaches to HHS within one hour of discovering
the incident or breach. We also propose that a non-Exchange entity
associated with a State Exchange must report all privacy and security
incidents and breaches to the State Exchange with which they are
associated. We welcome comment on these proposals.
4. Subpart D--Exchange Functions in the Individual Market: Eligibility
Determinations for Exchange Participation and Insurance Affordability
Programs
a. Eligibility Process (Sec. 155.310)
In our consultations with states and in the operational development
of Exchanges, we have identified with States the need to establish a
standardized process for handling applications that are submitted
without information that is necessary for determining eligibility. It
is our understanding that States have an existing process for handling
incomplete applications for other programs, such as Medicaid, and may
want to establish a consistent process for handling incomplete
applications submitted to the Exchange. Accordingly, the language of
this proposed regulation is designed to provide flexibility to States
so they may align this process with Medicaid and CHIP. Further, we
intend to work with States to implement these procedures and in 2014 to
accommodate States with processes established for handling incomplete
applications that does not match the process described in these
regulations.
We are adding Sec. 155.310(k), to provide that if an application
filer does not provide sufficient information on an application for the
Exchange to conduct an eligibility determination for enrollment in a
QHP through the Exchange, or for insurance affordability programs (if
the application includes a request for an eligibility determination for
insurance affordability programs), the Exchange will provide notice
through the eligibility determination notice described in 45 CFR
155.310(g). The notice would indicate that information necessary to
complete an eligibility determination is missing, specifying the
missing information, and include instructions on how to provide the
missing information. We propose that the Exchange will provide the
applicant with a period of no less than 15 days and no more than 90
days from the date this notice is sent to the applicant to provide the
necessary information. Further, we propose that during this period, the
Exchange will not proceed with the applicant's eligibility
determination or provide advance payments of the premium tax credit or
cost-sharing reductions, unless an application filer has provided
sufficient information to determine his or her eligibility for
enrollment in a QHP through the Exchange, in which case the Exchange
must make such a determination for enrollment in a QHP. We propose that
the Exchange may make an eligibility determination for enrollment in a
QHP through the Exchange if an applicant has provided sufficient
information to make an eligibility determination for enrollment in a
QHP through the Exchange. For example, if there is sufficient
information to determine eligibility for enrollment in a QHP, but an
applicant who requested an eligibility determination for insurance
affordability programs has not provided information regarding employer-
sponsored coverage, which is needed to determine eligibility for
advance payments of the premium tax credit and cost-sharing reductions,
the Exchange will determine the applicant's eligibility for enrollment
in a QHP through the Exchange but may not provide advance payments of
the premium tax credit or cost-sharing reductions.
We believe this process is consistent with current Medicaid and
CHIP policies regarding the process for handling incomplete
applications. We propose a flexible timeframe of no less than 15 days
and no more than 90 days. While we believe it does not benefit an
applicant to have a long timeframe because no advance payments of the
premium tax credits and cost-sharing reductions will be provided during
the period, we understand that State Medicaid and CHIP agencies use
periods similar to this length, and we also believe that it is
important to allow flexibility for the Exchange to align with the time
period for inconsistencies, which is a period of 90 days as specified
in 45 CFR 155.315(f)(2)(ii). We note that the online and telephonic
applications are structured to minimize situations in which an
applicant can fail to provide necessary information. Accordingly, we
anticipate that this paragraph will be implicated most frequently with
respect to paper applications. We seek comment
[[Page 37050]]
on this proposal, including whether Exchange flexibility is
appropriate; whether 15 days and 90 days are the right lower and upper
limits; and whether additional language is needed to ensure
coordination between the Exchange, Medicaid, and CHIP.
b. Verification of Eligibility for Minimum Essential Coverage Other
Than Through an Eligible Employer-Sponsored Plan (Sec. 155.320)
As finalized in the Exchange Establishment Rule, Sec. 155.320(b)
specifies standards related to the verification of eligibility for
minimum essential coverage other than through an eligible employer-
sponsored plan. We propose to redesignate paragraph (b)(1) as (b)(1)(i)
and (b)(2) as (b)(1)(ii) to consolidate the standards for Exchange
responsibilities in connection with verification of eligibility for
minimum essential coverage other than through an eligible employer-
sponsored plan. In paragraph (b)(1)(i), we also propose to add the
phrase ``for verification purposes'' to the end of existing text. This
would clarify that HHS would provide a response to the Exchange to
verify the information transmitted from the Exchange to HHS about an
applicant's eligibility for or enrollment in minimum essential coverage
other than through an eligible employer sponsored plan, Medicaid, CHIP,
or the Basic Health Program. The Exchange would submit specific
identifying information to HHS and HHS would verify applicant
information with information from the Federal and State agencies or
programs that provide eligibility and enrollment information regarding
minimum essential coverage. Such agencies or programs may include but
are not limited to Veterans Health Administration, TRICARE, and
Medicare. HHS will work with the appropriate Federal and State agencies
to complete the appropriate computer matching agreements, data use
agreements, and information exchange agreements which will comply with
all appropriate Federal privacy and security laws and regulations. The
information obtained from Federal and State agencies will be used and
redisclosed by HHS as part of the eligibility determination and
information verification process set forth in subpart D of part 155.
In connection with the proposal to redesignate paragraph (b)(2) to
paragraph (b)(1)(ii), we are not proposing any change to the text of
the provision as previously finalized. Consistent with the
authorizations for the disclosure of certain information under 42 CFR
435.945(c) and 457.300(c), this regulation provides for an Exchange to
verify whether an applicant has already been determined eligible for
coverage through Medicaid, CHIP, or the Basic Health Program, using
information obtained from the agencies administering such programs.
Finally, we propose to add paragraph (b)(2) to provide that
consistent with 45 CFR 164.512(k)(6)(i) and 45 CFR 155.270, a health
plan that is a government program providing public benefits, is
expressly authorized to disclose PHI, as that term is defined at 45 CFR
160.103, that relates to eligibility for or enrollment in the health
plan to HHS for verification of applicant eligibility for minimum
essential coverage as part of the eligibility determination process for
advance payments of the premium tax credit or cost-sharing reductions.
We intend for this provision to enable any health plan that is a
government program within the scope of 45 CFR 164.512(k)(6)(i) to
disclose the protected health information necessary for HHS to be able
to verify of minimum essential coverage as required to conduct
eligibility determinations for insurance affordability programs. We
seek comment on this proposal.
c. Administration of Advance Payments of the Premium Tax Credit and
Cost-Sharing Reductions (Sec. 155.340)
We propose to amend Sec. 155.340 by adding paragraph (h), which
sets forth additional requirements applicable when a State Exchange is
facilitating the collection and payment of premiums to QHP issuers. We
propose that if the Exchange discovers that it did not reduce an
enrollee's premium by the amount of the advance payment of the premium
tax credit in accordance with 45 CFR 155.340(g), the Exchange would be
required to refund to the enrollee any excess premium paid by or for
the enrollee. The Exchange would also notify the enrollee of the
improper application of the advance payment of the premium tax credit
no later than 30 calendar days after the Exchange discovers it. We note
that an Exchange may provide the refund to the enrollee by reducing the
enrollee's portion of the premium in the following month, as long as
the reduction is provided no later than 30 calendar days after the
Exchange discovers the improper application of the advance payment of
the premium tax credit. If the Exchange elects to provide the refund by
reducing the enrollee's portion of the premium for following month and
the refund exceeds the enrollee's portion of the premium for the
following month, then the Exchange would need to refund to the enrollee
the excess, no later than 30 calendar days after the Exchange discovers
the improper application of the advance payment of the premium tax
credit. These provisions are similar to the policy we propose in Sec.
156.460, when a QHP issuer is collecting premiums directly from
enrollees and fails to apply the advance payment of the premium tax
credit to the enrollee's portion of the premiums. The parallel
requirements are designed to ensure that all enrollees, regardless of
whether a QHP issuer or the Exchange is collecting premiums, are
afforded the same level of protection.
We are considering requiring the Exchange to provide to HHS for
each quarter, in a manner and timeframe specified by HHS, a report
detailing the occurrence of any improper application of the advance
payment of the premium tax credit. We believe that it is important that
an Exchange timely address improper applications of the advance
payments of the premium tax credit in order to mitigate potential harm
to enrollees. However, we recognize that, given operational
constraints, it may be difficult at this point for Exchanges to develop
systems that can produce these types of quarterly reports for the 2014
benefit year. Therefore, we are considering requiring Exchanges to
provide such reports to HHS beginning in the 2015 benefit year. We seek
comment on whether HHS should establish a minimum error rate or
threshold before an Exchange is required to inform HHS of such improper
applications of the advance payment of the premium tax credit in a
quarterly report, as well as what an appropriate error rate or
threshold should be. For example, we are considering requiring issuers
to report the number of enrollees for whom the Exchange improperly
applied the advance payment of the premium tax credit compared to the
total number of enrollees in the Exchange receiving Federal premium
subsidies. We also seek comment on whether such reports should be
provided to HHS less frequently than quarterly.
5. Subpart E--Exchange Functions in the Individual Market: Enrollment
in Qualified Health Plans
a. Allowing Issuer Customer Service Representatives To Assist With
Eligibility Applications (Sec. 155.415)
Section 1413 of the Affordable Care Act directs the Secretary to
establish, subject to minimum requirements, a streamlined enrollment
process for enrollment in QHPs and all insurance affordability
programs. Many issuers
[[Page 37051]]
currently have customer service representatives who assist applicants
in the application and plan selection process and assist enrollees in
making changes to their coverage. Some of these representatives might
not be licensed by the State as agents, brokers, or producers.
Accordingly, we propose to add section Sec. 155.415 that would, at the
Exchange's option and to the extent permitted by State law, permit
issuer customer service representatives who do not meet the definition
of agent or broker in Sec. 155.20 to assist qualified individuals in
the individual market with: (a) Applying for an eligibility
determination or redetermination for coverage through the Exchange; (b)
applying for insurance affordability programs; and (c) facilitating the
selection of a QHP offered by the issuer represented by the customer
service representative, provided that such issuer customer service
representatives meet the proposed requirements set forth in Sec.
156.1230(a)(2).
b. Special Enrollment Periods (Sec. 155.420)
In accordance with section 1311(c)(6)(C) of the Affordable Care
Act, the Secretary must establish special enrollment periods for all
Exchanges, including special enrollment periods specified in section
9801 of the Internal Revenue Code of 1986 and under circumstances
similar to such periods under Part D of title XVIII of the Social
Security Act. Under this authority, we propose to amend Sec.
155.420(d) to clarify that a special enrollment period will be
available when a Exchange determines that a consumer has been
incorrectly or inappropriately enrolled in coverage due to misconduct
on the part of the non-Exchange entity. We propose to add a new
paragraph Sec. 155.420(d)(10) to create this new special enrollment
period for qualified individuals. We propose to limit this special
enrollment opportunity to the individual market Exchange and not extend
it to the SHOP.
We propose that the Exchange would extend a special enrollment
period to a qualified individual when, in the determination of the
Exchange, misconduct on the part of a non-Exchange entity has caused
the qualified individual to be enrolled incorrectly or inappropriately
in coverage such that they are not enrolled in QHP coverage as desired,
are not enrolled in their selected QHP, or have been determined
eligible for but are not receiving advance payments of the premium tax
credit or cost-sharing reductions.
Non-Exchange entities will be performing enrollment activities,
including providing assistance with enrollment activities, and in some
cases will be enrolling consumers directly in QHPs. Consumers would be
harmed if they fail to enroll in a health plan or are enrolled in a QHP
they did not select as a result of misconduct on the part of a non-
Exchange entity. Consumers would also be harmed if they are eligible
for, but not receiving advance payments of the premium tax credit or
cost-sharing reductions as a result of misconduct on the part of a non-
Exchange entity. The proposed provision would ensure that all qualified
individuals and enrollees have similar protections against these harms.
For purposes of this proposed provision, we would interpret a non-
Exchange entity providing enrollment assistance or conducting
enrollment activities to include, but not be limited to, those
individuals and entities that are authorized by the Exchange to assist
with enrollment in QHPs (such as a Navigator, as described in Sec.
155.210; non-Navigator consumer assistance personnel, as authorized by
Sec. 155.205(d) and (e); a certified application counselor, as
described in proposed Sec. 155.225; an agent or broker assisting
consumers in an Exchange under Sec. 155.220; issuer customer service
representatives assisting consumers in an Exchange under proposed Sec.
155.415; or a QHP conducting direct enrollment under proposed Sec.
156.1230).
We further propose in Sec. 155.420(d)(10) that misconduct on the
part of a non-Exchange entity providing enrollment assistance or
conducting enrollment activities could include, but would not be
limited to, the failure of a non-Exchange entity to comply with
applicable requirements set forth in Exchange regulations or other
applicable Federal or State laws.
For purposes of the proposed provision, the Exchange could base the
determination triggering the special enrollment period on findings of
HHS or a State; the Exchange's evaluation of consumer complaints,
including the complaint of the affected individual; audits; information
provided by the consumer, issuer, or non-Exchange entity; or other
mechanisms. All requests for special enrollment periods, including
those that may be initiated by the Exchange through its own audits or
other mechanisms, should be evaluated by the Exchange as part of the
eligibility determination process established pursuant to 45 CFR
155.310. We expect to develop further guidance and standard operating
procedures for making the determinations that would trigger this
special enrollment period. If a qualified individual is harmed due to
an error or inaction on the part of a non-Exchange entity, the
qualified individual may also seek to demonstrate the existence of
exceptional circumstances to the Exchange under existing regulations at
Sec. 155.420(d)(9). If the Exchange determines that the error or
inaction on the part of the non-Exchange entity caused the qualified
individual to be harmed (including, but not limited to failure to be
enrolled in a health plan, enrolled in the incorrect health plan or
failure to receive advance payments of the premium tax credit or cost-
sharing reduction), the Exchange may provide for a special enrollment
opportunity to correct the error.
We solicit comments on these proposals.
6. Subpart H--Exchange Functions: Small Business Health Options Program
(SHOP)
a. Standards for the Establishment of a SHOP (Sec. 155.700)
We propose to amend Sec. 155.700 by adding a definition for ``SHOP
application filer.''
We propose that ``SHOP application filer'' would mean an applicant,
an authorized representative, an agent or broker of the employer, or an
employer filing for its employees where not prohibited by other law. By
broadening who can file an employee application beyond just an
employee, we propose to permit the entities that have traditionally
assisted employees in filing applications to provide such assistance.
b. Functions of a SHOP (Sec. 155.705)
In Sec. 155.705, we propose adding paragraph (b)(6)(i) so that a
SHOP would require QHP issuers to make changes to rates at a uniform
time that is no more frequently than quarterly. This proposed paragraph
would conform to the proposed issuer standard at Sec. 156.80 regarding
the frequency of indexed rate updates. In paragraph (b)(6)(ii), we
propose providing issuers participating in the FF-SHOP with the maximum
amount of flexibility permitted under Sec. 156.80 as proposed in this
rule and new (b)(6)(i), standardizing the effective dates for rate
updates in the FF-SHOP, and providing that FF-SHOP issuers would have
to submit rates to HHS 60 days in advance of the effective date.
Consistent with technical guidance provided to issuers through the
Health Insurance Oversight System on April 8, 2013, issuers would be
able to submit updated quarterly rates for the FF-SHOP no sooner than
for the third
[[Page 37052]]
quarter of 2014, due to current system limitations.\29\
---------------------------------------------------------------------------
\29\ See Rate Changes for Small Group Market Plans and System
Processing of Rates (April 8, 2013).
---------------------------------------------------------------------------
We are also re-proposing a new pargraph (c). We previously proposed
this paragraph in a recent rulemaking \30\ to coordinate SHOP functions
with the functions of the individual market Exchange for determining
eligibility for insurance affordability programs. We propose that in
Exchanges where the State or Federal government operates both the
individual market and SHOP Exchanges, the SHOP would provide data
related to the eligibility and enrollment for a qualified employee
(that is, an employee who is enrolled in a QHP through the SHOP or is
eligible to enroll in coverage through a SHOP because of an offer of
coverage from a qualified employer) to the individual market Exchange
that corresponds to the service area in which the SHOP is operating. We
intend this proposal to ensure that the Exchange can use SHOP data for
purposes of verifying enrollment in an eligible employer-sponsored plan
and eligibility for qualifying coverage in an eligible employer-
sponsored plan. We now re-propose this standard with an exemption for a
State operating only a SHOP. Developing such data sharing would be a
challenge in such a State.
---------------------------------------------------------------------------
\30\ See 78 FR 4723.
---------------------------------------------------------------------------
In paragraph (d), we propose to provide additional flexibility to
States with respect to the operation of the SHOP Navigator program when
the State has elected to establish and operate only the SHOP. In most
cases, there need not be separate Navigator programs for the SHOP and
individual market Exchange. However, when the SHOP is operated by the
State, and the individual market Exchange is operated by the Federal
government, there would be two Navigator programs: a Federal Navigator
program for the individual market Exchange, and a State Navigator
program for the SHOP. We propose to clarify that when a State
establishes and operates a SHOP independently of a Federally-
facilitated individual market Exchange, as proposed in this rulemaking,
the SHOP would have the flexibility to focus its Navigator program on
outreach and education to small employers. If the State takes this
option, SHOP Navigators would be able to fulfill their statutory and
regulatory obligations under section 1311(i) of the Affordable Care Act
and 45 CFR 155.210 to facilitate enrollment in QHPs, and to refer
consumers with complaints, questions, and grievances to applicable
offices of health insurance consumer assistance or ombudsmen, by
referring small businesses to agents and brokers for these types of
assistance, so long as State law permits agents and brokers to carry
out these functions. The option of carrying out these two Navigator
functions via referrals to agents and brokers would not be available in
any other circumstances. Additionally, this provision would not prevent
a State operating a separate SHOP from requiring SHOP Navigators to
perform the full range of Navigator services with equal focus and
without making referrals to agents and brokers, if it so desires.
c. Application Standards for SHOP (Sec. 155.730)
In Sec. 155.730, we propose amending the application filing
standard to relieve SHOPs of having to of accept paper applications and
accept applications by telephone. Such relief may reduce the cost of
operating a SHOP while permitting SHOPs to provide applications in the
manner that will best serve their enrollees. Nothing in this proposed
standard would prohibit SHOPs from accepting paper applications or
applications by telephone. Additionally, in this section we clarify
that an employer or an employee application may be filed by a ``SHOP
application filer,'' that is, an applicant, an authorized
representative of the applicant, an agent or broker, and, if not
prohibited by other law, an employer filing on behalf of employees. By
broadening who can file an employee application beyond just an
employee, we propose to permit the entities that have traditionally
assisted employees in filing applications to provide such assistance.
d. Termination of Coverage (Sec. 155.735)
In Sec. 155.735, we propose that each SHOP would be required to
develop uniform standards for the termination of coverage in a QHP.
Standardizing the timing, form, and manner of a group's termination in
the SHOP would ensure that an employer offering coverage through
multiple health insurance issuers (that is, in a SHOP offering employee
choice) will be subject to uniform, predictable termination policies.
Some SHOPs have considered developing termination standards using their
authority to establish a uniform enrollment timeline and process
pursuant to Sec. 155.720(b). We propose this section to clarify the
authority for SHOPs to establish termination standards and to set such
standards for the FF-SHOP. Because SHOPs will not be required to offer
employee choice and premium aggregation until plan years beginning on
or after January 1, 2015, we created a transition policy such that
these standards would be required starting in 2015. However, we are
proposing these standards now, for two reasons. First, State Exchanges
may desire to implement employee choice and premium aggregation in 2014
and, if so, would be required to apply these standards. Second, we are
proposing these standards in response to comments received from issuers
on the Exchange Final Rule and 2014 Payment Notice requesting detailed
guidance well in advance of implementation to so that they are better
able to build conforming systems.
Proposed paragraph (b) addresses employer requests for termination
of employer group coverage. In paragraph (b)(1), we propose that each
SHOP would be required to set policies regarding advance notice of such
terminations and when coverage will end following the SHOP's receipt of
notice that an employer wishes to terminate coverage.
In paragraph (b)(2), we propose that employer-requested
terminations of employer group coverage through an FF-SHOP would be
effective only on the last day of a month. We also propose that notice
of termination would have to be received from the employer on or before
the 15th of a given month for it to be effective on the last day of
that month. If notification of termination is provided after the 15th
of the month, we propose the group's coverage be terminated on the last
day of the following month.
Proposed paragraph (c) addresses terminations of employer group
coverage for non-payment of premiums. In paragraph (c)(1), we propose
that each SHOP would be required to establish standards for termination
due to non-payment, including defining grace periods, due dates for
premium payments made to a SHOP pursuant to Sec. 155.705(b)(4),
employer and employee notices, and reinstatement policies. Standardized
grace periods, due dates for payment and reinstatement policies, and
notices would ensure that an employer offering coverage through
multiple health insurance issuers is subject to clear and consistent
rules.
In paragraph (c)(2), we propose the policies for terminations for
non-payment of premiums in the FF-SHOP. As proposed, payment for a
group's coverage for a given month would be due to the FF-SHOP by the
first day of the coverage month. Additionally, we propose that the
employer would have a 31-day grace period from the first day of the
coverage month for making this payment. Having reviewed the State-
[[Page 37053]]
provided small group market payment grace periods rules that currently
exist, we believe a grace period of this length would never be shorter
than the protections currently offered by any State and therefore does
not prevent the application of existing State law.
In paragraph (c)(2)(iii), we propose that an employer would have 30
days from the date of its termination from coverage under the FF-SHOP
to request the reinstatement of its group in the previous coverage.
Additionally, we propose that the employer would pay in full all
outstanding premiums and the premium for the next month's coverage
before reinstatement could occur.
Proposed paragraph (d) addresses terminations of employee or
dependent coverage. In paragraph (d)(1), we propose that each SHOP
would be required to establish consistent policies across QHP issuers
regarding the process and effective dates for termination of employee
and dependent coverage in the SHOP. Furthermore, this provision would
clarify the specific circumstances under which the SHOP would be
permitted to terminate an employee's coverage.
In paragraph (d)(2), we propose that in the FF-SHOP, terminations
for the reasons enumerated in paragraph (d)(1) would be effective on
the last day of the month in which the FF-SHOP receives notice of the
event. We further propose that the FF-SHOP must have received notice
prior to the proposed date of the termination. Notwithstanding the
standards promulgated in 45 CFR 147.120, under this proposed standard a
person who loses coverage as a dependent when she turns 26 years old
would have to be covered on the parent's plan through the end of the
month.
In paragraph (e), we direct that all SHOPs comply with the general
administrative requirements of Sec. 155.430(c). This compliance would
ensure that the SHOP keeps sufficient records of terminations and that
reasonable accommodations would be made for enrollees with
disabilities.
In paragraph (f), we propose that the standards set in this section
would apply to all SHOPs for coverage beginning on or after January 1,
2015. Additionally, because these provisions propose to harmonize
issuer termination policies where employee choice exists, we propose
that SHOPs offering employee choice and premium aggregation prior to
January 1, 2015 would need to comply with these standards by the time
they are operational. We do not expect this provision to place
additional burden on such States, as we expect them to have already
developed such policies consistent with this proposal pursuant to Sec.
155.720(b).
7. Subpart M--Oversight and Financial Integrity Standards for State
Exchanges
Sections 1311, 1313, and 1321 of the Affordable Care Act provide
the Secretary with oversight of financial integrity and program
integrity in the State Exchanges. More specifically, the statutory
authority for HHS oversight of the programmatic integrity of an
Exchange is found in section 1313(a)(1) of the Affordable Care Act,
which requires an Exchange to keep an accurate accounting of all
activities as stated above, and section 1313(a)(2) of the Affordable
Care Act which gives the Secretary the authority to investigate the
affairs of an Exchange and examine the properties and records of an
Exchange in relation to activities undertaken by an Exchange. In
addition, section 1313(a)(5) of the Affordable Care Act directs the
Secretary to provide for the efficient and non-discriminatory
administration of Exchange activities and to implement any measure or
procedure that the Secretary determines is appropriate to reduce fraud
and abuse. The key principles underlying the Secretary's State Exchange
oversight program design include: effectiveness, efficiency, integrity,
coordination, transparency and accountability in State Exchange
operations. The State Exchange oversight program builds on existing
State oversight efforts, where possible, by coordinating with State
authorities to address compliance issues and concerns. State Exchange
compliance with the Affordable Care Act and the regulatory requirements
being proposed in this proposed rule (if finalized) would include
submitting financial and operational reports and maintaining records in
a standardized fashion.
These proposed standards will enable HHS to carry out its
responsibility of ensuring that Federal funds are used appropriately in
the administration of State Exchange activities. Therefore, we are
proposing that the State Exchange must submit to HHS financial reports
and must oversee its activities to ensure that it is complying with
Federal requirements, such as those governing eligibility
determinations for advance payments of the premium tax credit and cost-
sharing reductions.
These sections, Sec. 155.1200 and Sec. 155.1210, would ensure
that the State Exchange has financial and operational safeguards in
place to avoid making inaccurate eligibility determinations, including
those related to advance payment of the premium tax credit, cost-
sharing reductions, and enrollments. These sections are not intended to
be a part of any prospective measurement program that may be required
under the Improper Payments Elimination and Recovery Act at 31 U.S.C.
3321.
We are not proposing that these standards should be applicable to
the FFE, because CMS, which will operate the FFE, is already subject to
similar standards in its role as a government agency. For example, OMB
Circular A-123 dated December 21, 2004, provides instruction on
internal controls (financial and operational) for Federal agencies.
a. General Financial Integrity and Oversight Requirements (Sec.
155.1200)
Section 1313(a)(1) of the Affordable Care Act requires an Exchange
to keep an accurate accounting of all activities, receipts, and
expenditures, and annually submit to the Secretary a report concerning
such accounting. In Sec. 155.1200(a), we propose that the State
Exchange maintain an accounting of all its receipts and expenditures,
in accordance with GAAP. In addition, we propose that the State
Exchange develop and implement a process for monitoring all Exchange-
related activities for effectiveness, efficiency, integrity,
transparency and accountability. We believe that these activities would
help to ensure State Exchange compliance with Federal requirements as
set forth in Part 155 and ensure the appropriate administration of
Federal funds, including advance payment of the premium tax credit and
cost-sharing reductions. In Sec. 155.1200(b), we propose that the
State Exchange submit several types of reports to HHS. The State
Exchange would submit at least annually a report to allow for
transparency of State Exchanges activities. The report must include a
financial statement presented in accordance with GAAP. This report is
due to HHS by April 1st of each year. Additionally, the State Exchange
must submit reports in a form and manner to be specified by HHS
regarding eligibility and enrollment. These reports will focus on
eligibility determination errors, non-discrimination safeguards,
accessibility of information, and fraud and abuse incidences. The State
Exchange must also submit performance monitoring data that includes
financial sustainability, operational efficiency, and, consumer
satisfaction. We solicit comments on our approach, including comments
on the content, format, and timing of such reports.
Section 1313(a)(3) of the Affordable Care Act requires that an
Exchange be
[[Page 37054]]
subject to an annual audit by the Secretary. In Sec. 155.1200(c), we
propose that the State Exchange engage an independent qualified
auditing entity, whether governmental or private, which meets accepted
professional and business standards and follows generally accepted
governmental auditing standards (GAGAS), to perform an independent
external financial and programmatic audit of the State Exchange. This
entity should be selected to avoid any real or potential perception of
conflict of interest, including being free from personal, external and
organizational impairments to independence or the appearance of such
impairments of independence. External audits are a standard practice
used to maintain accountability and internal controls. An external
audit will help ensure the consistency and accuracy of State Exchange
financial reporting and program activities. We propose that this
requirement may be satisfied through an audit by an independent State-
government entity. The State Exchange will submit to HHS, concurrent
with the annual report, the results of the audit along with proposals
on how it will remedy any material weakness or significant deficiency
(the terms ``material weakness'' and ``significant deficiency'' are
defined in OMB Circular A-133, Audits of States, Local Governments and
Non-Profit Organizations).
In Sec. 155.1200(d), we propose that independent audits address
specific processes and activities of State Exchanges including
financial and programmatic activities and those related to the
verification and determination of applicants' eligibility for
enrollment in the State Exchanges and the subsequent enrollments. We
propose that the external audit address whether the Exchange is
complying with Sec. 155.1200(a)(1) by keeping an accurate accounting
of Exchange receipts and expenditures in accordance with generally
accepted accounting principles (GAAP). We note that accurate
eligibility determinations by the State Exchanges are important to the
implementation of the Affordable Care Act. Failure to apply Federal
standards appropriately could result in improper Federal payments in
the form of advance payments of the premium tax credit and cost sharing
reductions. Therefore, we also propose that the external audits and
annual reports required under paragraphs (b) and (c) of this section
address State Exchange processes and procedures to comply with the
standards for Exchanges under 45 CFR Part 155 related to advance
payments of the premium tax credit and cost-sharing reductions. These
standards include the requirements under subpart D regarding
eligibility determinations, including the requirements regarding the
confidentiality, disclosure, maintenance, and use of information as set
forth in 45 CFR 155.302(d)(3); subpart E regarding individual market
enrollment in QHPs; and subpart K regarding QHP certification. We
propose that such audits and annual reports assess whether a State
Exchange has processes and procedures in place to prevent improper
eligibility determinations and enrollment transactions. Assessing
whether State Exchanges are complying with Federal requirements in
these areas will assist in ensuring that eligible individuals are
appropriately enrolled and receiving appropriate advance payments of
the premium tax credit and cost-sharing reductions. Determining whether
there are appropriate internal controls and standard operating
procedures in place to identify and correct weaknesses in these
particular areas will mitigate the creation of improper payments,
thereby safeguarding Federal funds.
We seek comment on the proposed annual audits, and other activities
that State Exchanges should specifically be required to audit annually
or on an interim basis.
b. Maintenance of Records (Sec. 155.1210)
Under section 1313(a)(2) of the Affordable Care Act, the Secretary,
in coordination with the Inspector General of HHS, may investigate,
examine properties and records, and require periodic reports from the
State Exchange. Under section 1313(a)(3) of the Affordable Care Act,
the State Exchange is subject to annual audits by the Secretary. We
anticipate conducting a limited number of targeted audits each year,
informed by information from the external audit, annual report,
prospective measurement programs of improper payments, consumer
complaints, or other data sources. To prepare for such audits, the
State Exchange would be required to maintain records pursuant to this
section. Preparation for such audits would also require the State
Exchange to ensure its contractors, subcontractors, and agents maintain
these records.
In Sec. 155.1210, we propose the requirements for records
maintenance for the State Exchange. We propose that the State Exchange
and its contractors, subcontractors, and agents maintain records for 10
years, including documents and records (whether paper, electronic or
other media) and other evidence of accounting procedures and practices
of the State Exchange. These records must be sufficient and appropriate
to respond to any periodic auditing, inspection or investigation of the
State Exchange's financial records or to enable HHS or its designee to
appropriately evaluate the State Exchange's compliance with Federal
requirements. In addition, we propose that the State Exchange must make
all records of this section available to HHS, the OIG, the Comptroller
General, or their designees, upon request. We have proposed this 10-
year retention period to be consistent with the statute of limitations
for the False Claims Act at 31 U.S.C. 3731. We request comment on
auditing procedures and the length of document retention requirements.
E. Part 156--Health Insurance Issuer Standards Under the Affordable
Care Act, Including Standards Related To Exchanges
1. Subpart A--General Provisions
a. Definitions (Sec. 156.20)
We propose to amend 45 CFR 156.20 by adding the definitions for
``Delegated entity,'' ``Downstream entity,'' ``Enrollee satisfaction
survey vendor,'' and ``Registered user of the enrollee satisfaction
survey data warehouse,'' in alphabetical order to read as follows:
Delegated Entity
We propose to define a delegated entity as any party, including an
agent or a broker that enters into an agreement with a QHP issuer to
provide administrative services or health care services to qualified
individuals, qualified employers, or qualified employees and their
dependents.
Downstream Entity
We propose to define a downstream entity as any party, including an
agent or a broker, that enters into an agreement with a delegated
entity or with another downstream entity for purposes of providing
administrative or health care services related to the agreement between
the delegated entity and the QHP issuer. The term ``downstream entity''
is intended to reach the entity that directly provides administrative
services or health care services to qualified individuals, qualified
employers, or qualified employees and their dependents.
Enrollee Satisfaction Survey Vendors
We propose to define an ``enrollee satisfaction survey vendor'' as
an organization that has relevant survey administration experience (for
example, Consumer Assessment of Healthcare
[[Page 37055]]
Providers and Systems (CAHPS[supreg]) surveys), organizational survey
capacity, and quality control procedures for survey administration.
Exchange
An ``Exchange'' has the meaning given to the term in Sec. 155.20
of this subchapter. Registered user of the enrollee satisfaction survey
data warehouse
We propose to define a ``registered user of the enrollee
satisfaction survey data warehouse'' as enrollee satisfaction survey
vendors, QHP issuers, and Exchanges authorized to access CMS's secure
data warehouse to submit survey data and to preview survey results
prior to public reporting.
b. Single Risk Pool (Sec. 156.80)
We are proposing to add a new paragraph (d)(3) in Sec. 156.80 to
clarify when issuers may modify rates under the single risk pool
provision. These proposed market-wide rate modification limitations
would align with the limitations on rate setting schedules in the
Exchange and SHOP, which is necessary to reduce the risk of adverse
selection between plans offered outside the Exchange and QHPs offered
through the Exchange. Furthermore, the frequency of rate modifications
affects the rate review process because each time an issuer adjusts its
index rate, the new rates of all of its plans must be subjected to rate
review.
Accordingly, in paragraph (d)(3)(i), we propose that issuers in
individual markets or markets in which the individual and small group
risk pools were merged by the State would be permitted to make changes
to their market-wide adjusted index rate and plan-specific pricing on
an annual basis, as discussed in the preamble to the Market Reform Rule
(78 FR 13422). In a State in which the individual and small group risk
pools were merged by the State, an issuer would be able to adjust its
index rate and plan-specific pricing no more frequently than annually,
since the stricter standard of the individual market must be applied to
the entire merged market for consistency throughout the single risk
pool.
In paragraph (d)(3)(ii), we propose that issuers in the small group
market generally would be permitted to make such changes on a quarterly
basis, beginning with rates effective for the third quarter of 2014.
This proposal is consistent with technical guidance provided to issuers
through the Health Insurance Oversight System on April 8, 2013.\31\
These quarterly rates would apply to both new and renewing business for
the entire plan year, depending on the plan year of the employer. For
example, if an employer's plan year begins February 1 and the issuer
had adjusted its index rate on January 1, the issuer's January 1 rate
would apply to the employer's plan only on February 1. Additionally,
although the issuer would be able to adjust its index rate on a
quarterly basis in the small group market, any new rates set by the
issuer after February 1 would apply only upon the plan's renewal the
following year. As discussed in section II.D.6.b of this preamble and
the April 8, 2013 technical guidance to issuers, due to current system
limitations, the submission of rates updated on a quarterly basis (or
any basis other than an annual basis) cannot currently be processed for
QHPs in the FF-SHOPs. Accordingly, in order to align with the timing of
the adjustments permitted in the SHOP based on these operational
considerations, issuers would be required under the amendment to this
section to set rates for non-grandfathered plans in the small group
market on an annual basis market-wide until the FF-SHOPs' capability to
process quarterly rate updates is established. We anticipate that the
FF-SHOPs will be capable of processing quarterly updated rates
effective for the third quarter of 2014.
---------------------------------------------------------------------------
\31\ Rate Changes for Small Group Market Plans and System
Processing of Rates (April 8, 2013).
---------------------------------------------------------------------------
2. Subpart C--Qualified Health Plan Minimum Certification Standards
a. Additional Standards Specific to SHOP (Sec. 156.285)
We propose to amend Sec. 156.285 to ensure that all QHP issuers
offering coverage in a SHOP comply with the termination of coverage
requirements proposed at Sec. 155.735 as a condition of certification
for plan years beginning on or after January 1, 2015, when Sec.
155.735 will apply to all SHOPs. Some SHOPs may decide to implement
employee choice and premium aggregation before January 1, 2015, and
Sec. 155.735 would apply in such SHOPs as an operational requirement.
3. Subpart D--Federally-Facilitated Exchange Qualified Health Plan
Issuer Standards
a. Changes of Ownership of Issuers of Qualified Health Plans in the
Federally-Facilitated Exchange (Sec. 156.330)
Proposed Sec. 156.330 describes the notice required to be
submitted by QHP issuers offering QHPs through FFEs, including the FF-
SHOPs, when such issuers undergo a change of ownership, as recognized
by the State in which the issuer offers the QHP, during the term of its
QHP agreement. We propose that the issuer be required to notify HHS, in
a manner to be specified by HHS, and provide the legal name, the
Taxpayer Identification Number (TIN) of the new owner, and the
effective date of the change at least 30 days prior to the date of
change. We also propose that the new owner must agree to adhere to all
applicable statutes and regulations. These provisions would provide HHS
with adequate notice so that it could monitor or audit the new owner to
ensure that the new owner meets all QHP certification standards and
clarify that the new owner would agree to adhere to all applicable
statutes and regulations. We considered proposing a standard similar to
that in the Medicare Parts C and D programs, in which HHS, the current
issuer, and the prospective new issuer would enter into a novation
agreement prior to the change of ownership. We further considered
requiring the prospective new issuer to submit financial and solvency
information to HHS in advance of the change of ownership. However,
based on research of existing State law, we believe that such standards
could largely duplicate existing State requirements. We welcome
comments about the 30-day notice requirement, about the information
being requested when a change of ownership occurs, and about whether to
specifically require a novation.
b. Standards for Downstream and Delegated Entities (Sec. 156.340)
Section 1321(a)(1)(B) of the Affordable Care Act establishes that
the Secretary must issue regulations setting forth standards for the
offering of QHPs through the Exchanges. Based on this general
authority, we propose in Sec. 156.340 standards for delegated and
downstream entities, similar to existing standards for such entities
that contract with Medicare Advantage organizations, described at 42
CFR 422.504(i)(3)-(4). In Sec. 156.340(a), we propose the general
requirement that, notwithstanding any relationship(s) that a QHP issuer
may have with delegated or downstream entities, the QHP issuer
maintains responsibility for its compliance and the compliance of any
of its delegated or downstream entities, with all applicable standards,
including those we propose at Sec. 156.340(a)(1) through (4). In
paragraphs (a)(1) through (a)(4), we propose that the QHP issuer be
required to comply with Federal standards,
[[Page 37056]]
specifically the obligations as set forth under: subpart C of part 156,
which governs QHP minimum certification standards; subpart K of part
155, which governs Exchange functions pertaining to QHP certification;
subpart H of part 155, which governs the Exchange functions of the
SHOP; standards in Sec. 155.220 with respect to assisting with
enrollment in QHPs; and standards in Sec. 156.705 and Sec. 156.715
for maintenance of records and compliance reviews for QHP issuers
operating in an FFE and an FF-SHOP.
Because a QHP issuer generally cannot enforce an agreement to which
it is not a party, we believe that the most legally effective way to
ensure that a QHP issuer retains the necessary control and oversight
over its delegated or downstream entities would be to require that all
agreements governing the relationships among a QHP issuer and its
delegated and downstream entities (that is, those between the QHP
issuer and its delegated entity; those between the delegated entity and
any downstream entity; and those between downstream entities) contain
provisions specifically describing each of the delegated and downstream
entity's obligations to fulfill the QHP issuer's responsibilities
proposed in paragraph (a) of this section. Such a requirement would be
similar to the existing requirement for agreements governing the
relationship among entities that contract with Medicare Advantage
organizations, described at 42 CFR 422.504(i)(3)-(4). Therefore, in
Sec. 156.340(b)(1)-(2), we propose that all agreements among the QHP
issuer's delegated and downstream entities be required to specify
delegated activities and reporting responsibilities, and either provide
for revocation of the delegated activities and reporting standards, or
specify other remedies in instances where HHS or the QHP issuer
determines that such parties have not performed satisfactorily.
Furthermore, we propose in Sec. 156.340(b)(3) that all agreements
among the QHP issuer's delegated and downstream entities be required to
specify that the delegated or downstream entity must comply with all
applicable laws and regulations relating to the standards specified
under paragraph (a) of this section. In Sec. 156.340(b)(4) of this
proposed rule, we propose that the QHP issuer's agreement with any
delegated or downstream entity must specify that the delegated and
downstream entity must permit access by the Secretary and the OIG or
their designees in connection with their right to evaluate through
audit, inspection, or other means, to the delegated or downstream
entity's books, contracts, computers, or other electronic systems,
including medical records and documentation, relating to the QHP
issuer's obligations in accordance with Federal standards under
paragraph (a) of this section until 10 years from the final date of the
agreement period. Such a requirement would be similar to the existing
requirement for agreements governing the relationship among entities
that contract with Medicare Advantage organizations, described at 42
CFR 422.504(i)(2)-(4).
Finally, we propose in Sec. 156.340(b)(5) that all existing
agreements contain specifications described in paragraph (b) of this
section by no later than January 1, 2015. We believe the effective date
recognizes the time that QHP issuers may need to amend existing
agreements with delegated and downstream entities to comply with the
requirements under paragraph (b). For agreements that are newly entered
into as of October 1, 2013, we propose an effective date for the
specifications described in paragraph (b) of this section to be no
later than the effective date of the agreement.
4. Subpart E--Health Insurance Issuer Responsibilities With Respect to
Advance Payments of the Premium Tax Credit and Cost-Sharing Reductions
In this subpart, pursuant to section 1321(a)(1)(B) of the
Affordable Care Act, we propose standards for oversight of QHP issuers
with respect to cost-sharing reductions and advance payments of the
premium tax credit. We believe that it is important to establish robust
oversight relating to cost-sharing reductions and advance payments of
the premium tax credit in order to ensure that Federal funds are used
efficiently and in full compliance with the provisions of the
Affordable Care Act, and that consumers receive the financial
assistance afforded them under the statute. The standards proposed in
this subpart are consistent with the information we provided in the
``Frequently Asked Questions on Health Insurance Marketplaces'' dated
May 14, 2013.\32\
---------------------------------------------------------------------------
\32\ Available at: https://www.cms.gov/CCIIO/Resources/Fact-Sheets-and-FAQs/Downloads/marketplace-faq-5-14-2013.pdf.
---------------------------------------------------------------------------
In particular, we propose requirements and timeframes for refunds
to eligible enrollees and providers when a QHP issuer incorrectly
applies the cost-sharing reductions or advance payments of the premium
tax credit, or incorrectly assigns an individual to a plan variation
(or standard plan without cost-sharing reductions), resulting in the
enrollee or the provider paying a portion of the cost sharing or
premium amount that should otherwise have been reduced. The proposed
provisions are intended to ensure that enrollees and providers are
promptly refunded any excess cost sharing they should not have paid.
a. Definitions (Sec. 156.400)
Section 156.400 of this subpart defines a ``most generous,'' and a
``more generous,'' plan variation. We propose to supplement those
definitions by clarifying that the definitions of a ``least generous,''
and a ``less generous,'' plan variation have the opposite meanings of
the existing definitions of a ``most generous,'' or a ``more generous''
plan variation. Specifically, we propose that, as between two plan
variations (or a plan variation and a standard plan without cost-
sharing reductions), the plan variation or standard plan without cost-
sharing reductions designed for the category of individuals first
listed in 45 CFR 155.305(g)(3) would be deemed the less generous one.
The term less generous is used in this proposed rule to address
circumstances in which a QHP issuer would reassign an enrollee from a
more generous plan variation to a less generous plan variation (or
standard plan without cost-sharing reductions), as discussed in greater
detail below. We also propose a technical modification to change ``QHP
or plan variation'' to ``standard plan or plan variation'' to clarify
that a plan variation is not distinct from a QHP.
b. Improper Plan Assignment and Application of Cost-Sharing Reductions
(Sec. 156.410(c)-(d))
To address misapplication of cost-sharing reductions due to an
enrollee, in Sec. 156.410, we propose to add new paragraphs (c) and
(d) to specify the actions a QHP issuer would take if it does not
provide the appropriate cost-sharing reductions to an individual, or if
it does not assign an individual to the appropriate plan variation (or
standard plan without cost-sharing reductions) in accordance with Sec.
156.410(a)-(b) or Sec. 156.425(a)-(b) of this subpart. The QHP issuer
is responsible under these provisions for ensuring that individuals are
assigned to the appropriate plan variation (or standard plan without
cost-sharing reductions) and ensuring that the cost-sharing reduction
is applied when the cost sharing is collected. We believe that
enrollees and providers should be held harmless if the QHP issuer
misapplies the cost-sharing reduction, such that the QHP issuer should
not recoup excess funds paid for the individual or to the provider.
[[Page 37057]]
However, because we believe an enrollee should be afforded at a minimum
the financial assistance specified in the statute and regulations, we
believe that the QHP issuer should be responsible for refunding any
excess cost sharing paid by the enrollee or provider, as applicable.
Accordingly, in paragraph (c)(1), we propose that if a QHP issuer
fails to ensure that an individual assigned to a QHP plan variation
receives the cost-sharing reductions required under the applicable plan
variation, taking into account the requirement regarding cost sharing
previously paid under other plan variations of the same QHP under Sec.
156.425(b), the QHP would notify the enrollee of the improper
application of the cost-sharing reductions and refund any excess cost
sharing paid by or for the enrollee during such period no later than 30
calendar days after discovery of the improper application of the cost-
sharing reductions. This refund would be paid to the person or entity
that paid the excess cost sharing, whether the enrollee or the
provider.
In paragraph (c)(2), we propose that if a QHP issuer provides an
enrollee assigned to a plan variation more cost-sharing reductions than
required under the applicable plan variation, taking into account Sec.
156.425(b) concerning continuity of deductibles and out-of-pocket
amounts, if applicable, then the QHP issuer will not be eligible for
reimbursement of any excess cost-sharing reductions provided to the
enrollee, and may not seek reimbursement from the enrollee or the
provider for any of the excess cost-sharing reductions. As noted above,
because the QHP issuer is responsible for ensuring the cost-sharing
reduction is provided appropriately, we do not believe that the QHP
issuer should be able to recoup overpayments of cost-sharing reductions
that resulted from the QHP issuer's own errors.
In paragraph (d), we propose that if a QHP issuer does not comply
with Sec. 156.410(b) by improperly assigning an enrollee to a plan
variation (or standard plan without cost-sharing reductions), or the
QHP issuer does not change the enrollee's assignment due to a change in
eligibility in accordance with Sec. 156.425(a), in each case, based on
the eligibility and enrollment information or notification provided by
the Exchange, then the QHP issuer would, no later than 30 calendar days
after discovery of the improper assignment, reassign the enrollee to
the applicable plan variation (or standard plan without cost-sharing
reductions) and notify the enrollee of the improper assignment.
If a QHP issuer reassigns an enrollee from a more generous to a
less generous plan variation of a QHP (or a standard plan without cost-
sharing reductions), for example from a silver plan variation with an
87 percent AV to a silver plan variation with an 73 percent AV, to
correct an improper assignment on the part of the issuer pursuant to
proposed paragraph (d)(1), the QHP issuer will not be eligible for, and
may not seek from the enrollee or provider, reimbursement for any of
the excess cost-sharing reductions provided to or for the enrollee
following the effective date of eligibility required by the Exchange.
Because the QHP issuer is responsible for assigning and reassigning the
enrollee to a plan variation of a QHP (or standard plan without cost-
sharing reductions) and because of the reliance interests of the
enrollee, we believe that the QHP issuer should not be able to recover
excess cost-sharing reductions if it erroneously assigns an individual
to a more generous plan variation. This aligns the policy proposed in
this section with respect to the misapplication of the cost-sharing
reductions.
Conversely, proposed paragraph (d)(2) provides that, if a QHP
issuer reassigns an enrollee from a less generous plan variation (or a
standard plan without cost-sharing reductions) to a more generous plan
variation of a QHP (for example from a silver plan variation with an 87
percent AV to a silver plan variation with an 94 percent AV) to correct
an improper assignment on the part of the issuer, the QHP issuer would
recalculate the individual's liability for cost sharing paid between
the effective date of eligibility required by the Exchange and the date
on which the issuer effectuated the change. The QHP issuer would refund
any excess cost sharing paid by or for the enrollee during such period,
no later than 30 calendar days after discovery of the incorrect
assignment. This refund would be paid to the person or entity that paid
the excess cost sharing, whether the enrollee or the provider. For
example, if a QHP issuer improperly assigned an individual to a silver
plan variation with an 87 percent AV for the plan year starting January
1, 2014, but on March 1, 2014, discovers that the individual should
have been assigned to a silver plan variation with a 94 percent AV,
then the QHP issuer would be required to reassign the individual to the
silver plan variation with a 94 percent AV by March 31, 2014. The
issuer would also refund any excess cost sharing paid by or for the
enrollee between January 1, 2014 and the date the reassignment is
effectuated, that is, March 31, 2014.
We seek comment on the proposed approach, including the 30 calendar
day timeframe for QHP issuers to reassign an individual to the correct
plan variation and refund any excess cost sharing paid by or for the
enrollee. We also seek comment on whether the timeframe should depend
on the point in the month the issuer discovers the improper assignment,
considering the amount of time issuers may require to effectuate the
reassignment, as well as the impact on enrollees due to a delay in
reassignment. We note that the date of the reassignment will not affect
the initial effective date of eligibility, and that the enrollee would
still be refunded any excess cost sharing paid by or for the enrollee
between the effective date of eligibility and the date of the
reassignment.
We are also considering requiring that, for each quarter, a QHP
issuer provide to HHS and the Exchange, in a manner and timeframe
specified by HHS, a report detailing the occurrence of any improper
applications of cost-sharing reductions in violation of the standards
finalized and proposed in Sec. 156.410(a) and (c) and Sec.
156.425(b), as well as instances when it did not refund any excess cost
sharing paid by or for an enrollee in accordance with proposed Sec.
156.410(c)(1) and Sec. 156.410(d)(2), or was reimbursed for excess
cost sharing provided in violation of proposed Sec. 156.410(d)(1).
This quarterly report would alert HHS and the Exchange to patterns of
such errors or omissions, and could identify areas where issuer
performance can be improved. However, we recognize that, given
operational constraints, it may be difficult at this point for QHP
issuers to develop systems that can produce these types of quarterly
reports for the 2014 benefit year. Therefore, we are considering
requiring issuers to produce these reports beginning in the 2015
benefit year. We seek comment on the proposed approach, including
whether such reports should be provided less frequently. We also seek
comment on whether HHS should establish a minimum error rate or
threshold before a QHP issuer is required to inform HHS of such
improper applications of cost-sharing reductions in the quarterly
report, as well as what an appropriate error rate or threshold should
be.
c. Failure To Reduce an Enrollee's Premium To Account for Advance
Payments of the Premium Tax Credit (Sec. 156.460(c))
We also propose to add new paragraph (c) to Sec. 156.460, related
to the
[[Page 37058]]
failure to reduce an enrollee's share of premium to account for advance
payments of the premium tax credit. In paragraph (c), we propose that
if a QHP issuer discovers that it did not reduce the portion of the
premium charged to or for the enrollee for the applicable month(s) by
the amount of the advance payment of the premium tax credit as required
in Sec. 156.460(a)(1), the QHP issuer would be required to refund to
the enrollee any excess premium paid by or for the enrollee and notify
the enrollee of the improper assignment no later than 30 calendar days
after the QHP issuer discovers the improper assignment. We note that a
QHP issuer may provide the refund to the enrollee by reducing the
enrollee's portion of the premium in the following month, as long as
the reduction is provided no later than 30 calendar days after the QHP
issuer discovers the improper assignment. If the QHP issuer elects to
provide the refund by reducing the enrollee's portion of the premium
for the following month, and the refund exceeds the enrollee's portion
of the premium for the following month, then the QHP issuer would need
to refund to the enrollee the excess no later than 30 calendar days
after the QHP issuer discovers the improper assignment.
Additionally, we are also considering that for each quarter
beginning in 2015, a QHP issuer would be required to provide a report
to HHS and the Exchange, in a manner and timeframe specified by HHS,
detailing the occurrence of instances of improper applications of the
requirements of Sec. 156.460. This would be similar to the quarterly
reporting requirements with respect to the misapplication of cost-
sharing reduction discussed in the previous section of this subpart,
and we note that we would anticipate utilizing a single process for
issuers to submit such quarterly reports. We seek comment on the
proposed approach, including the timeframe for issuers to refund any
excess premiums to enrollees, the timeframes for providing the
quarterly report to HHS and the Exchange, whether HHS should also
establish a minimum rate or threshold before a QHP issuer is required
to notify HHS of any such instances, and what an appropriate rate or
threshold would be.
d. Oversight of the Administration of Cost-Sharing Reductions and
Advance Payments of the Premium Tax Credit Programs (Sec. 156.480)
In Sec. 156.480, we propose general provisions related to the
oversight of QHP issuers in relation to cost-sharing reductions and
advance payments of the premium tax credit. Cost-sharing reduction
reimbursements and advance payments of the premium tax credit are
Federal funds, which will pass from HHS directly to QHP issuers.
Therefore, we believe that it is necessary for HHS to oversee QHP
issuer compliance in these areas, regardless of whether the QHP is
offered through a State Exchange or an FFE. We seek comment on this
approach, including with respect to how HHS may coordinate with State
Exchanges and State authorities to address non-compliance with Federal
requirements regarding cost-sharing reductions or advance payments of
the premium tax credit. We note that in States where there is a State
Exchange, the State has enforcement authority over QHP issuers that are
not in compliance with the standards set forth in subpart E of this
Part. If the State does not enforce such standards against the QHP
issuers in the individual market participating on the State Exchange,
HHS will enforce QHP issuer compliance with these requirements,
including the imposition of CMPs as provided for under Section 1321(c)
of the Affordable Care Act. In instances where HHS enforces QHP issuer
compliance with respect to cost-sharing reductions and advanced
payments of the premium tax credit, we envision CMPs would be imposed
using the same standards and processes as proposed for QHP issuers in
an FFE in subpart I of this Part.
To effectively oversee the provision of cost-sharing reductions and
advance payments of the premium tax credit by issuers of QHPs on State
Exchanges, we propose to apply certain standards proposed in part 156,
subpart H for QHP issuers participating in FFEs to QHP issuers
participating in the individual market on a State Exchanges. In
paragraph (a), we propose to extend the standards set forth in proposed
Sec. 156.705 concerning maintenance of records to a QHP issuer in the
individual market on a State Exchange in relation to cost-sharing
reductions and advance payments of the premium tax credit. We also
propose that QHP issuers ensure that any delegated entities and
downstream entities adhere to these requirements, in parallel with the
standards for QHP issuers on an FFE proposed in Sec. 156.340. We
believe applying these provisions to QHP issuers participating in State
Exchanges is necessary to allow HHS, pursuant to its oversight
authority, to access records and investigate compliance with the
requirements of this subpart. We note that a QHP issuer and its
delegated entities and downstream entities may satisfy this standard by
maintaining the relevant records for a period of 10 years and ensuring
that they are accessible if needed in the event of an investigation or
audit.
We also propose that QHP issuers participating in State Exchanges
and FFEs be subject to reporting and oversight requirements that are
intended to assist in monitoring a QHP issuer's compliance with Federal
standards with regard to cost-sharing reductions and advance payments
of the premium tax credit, in order to safeguard Federal funds
distributed through these programs, and to correct improper payments to
the QHPs.
In paragraph (b), we propose that an issuer that offers a QHP in
the individual market through a State Exchange or an FFE report to HHS
annually, in a timeframe and manner required by HHS, summary statistics
with respect to administration of cost-sharing reductions and advance
payments of the premium tax credit. This proposed provision would
permit HHS to obtain summary information regarding cost-sharing
reductions and advance payments of the premium tax credit across a
broad range of issuers to identify systemic issues and errors, without
requiring annual audits. We contemplate that this information will
include (1) The total amount of cost-sharing paid under each plan
variation, including the amount paid by the individual and amount
reduced by the cost-sharing reductions program, (2) an annual error
rate reflecting the misapplication of the cost-sharing reductions and
advance payments of the premium tax credit by plan variation, and (3)
the total number of enrollees who received a refund as well as the
total and average refunds made to enrollees and providers by plan
variation resulting from underpayments. Additionally, in paragraph (c),
as is required under other Federal programs such as Medicare Advantage,
we propose that HHS or its designee may audit an issuer that offers a
QHP in the individual market through a State Exchange or an FFE to
assess compliance with the requirements of this subpart. An audit may
be triggered by sources such as the annual reports proposed in Sec.
156.480(b) of this Part, consumer complaints, and information received
from State regulatory agencies. We note that we intend to coordinate
any audits of QHP issuers in an FFE with the compliance reviews
proposed in Sec. 156.715 of subpart H. We seek comment on these
proposed reporting requirements, including the operational readiness of
issuers to report these data, our proposed approach to audits, and how
such oversight activities may be
[[Page 37059]]
coordinated with State Exchange oversight activities to avoid
duplication of effort.
5. Subpart H--Oversight & Financial Integrity Requirements for Issuers
of Qualified Health Plans in Federally-Facilitated Exchanges
a. Maintenance of Records for the Federally-facilitated Exchanges
(Sec. 156.705)
Section 1313(a)(2) of the Affordable Care Act authorizes HHS to
examine records and solicit reports regarding activities undertaken by
the Exchanges. So that HHS can prepare for and successfully complete
compliance reviews and audits to account for expenditures and protect
against fraud and abuse, we propose that QHP issuers must retain
certain records. The record retention standards we propose in this
section are similar to those already established for the Medicare
Advantage Program, and described at 42 CFR 422.504(d).
We propose in Sec. 156.705(a) that issuers offering QHPs in an FFE
maintain all documents and records (whether paper, electronic, or other
media) and other evidence of accounting procedures and practices, which
are critical for HHS to conduct activities necessary to safeguard the
financial and programmatic integrity of the FFEs. We propose that such
activities include: (1) periodic auditing of the QHP issuer's financial
records related to the QHP issuer's participation in an FFE, and to
evaluate the ability of the QHP issuer to bear the risk of potential
financial losses; and (2) compliance reviews and other monitoring of a
QHP issuer's compliance with all Exchange standards applicable to
issuers offering QHPs in the FFE listed in part 156. We considered
requiring maintenance of other types of records, but we propose
limiting our scope to Exchange-specific records as applicable to the
FFEs. We seek comment on the type and scope of records we propose must
be maintained by QHP issuers participating in the FFEs.
In Sec. 156.705(b), we propose to clarify that the records
described in proposed paragraph (a) of this section include the sources
listed in proposed Sec. 155.1210(b)(2), (b)(3), and (b)(5). Our intent
is to align record maintenance standards of the FFEs and State
Exchanges to the extent possible.
In Sec. 156.705(c), we propose that issuers offering QHPs in an
FFE must maintain the records described in this section, as well as
records required by Sec. 155.710 (to determine SHOP eligibility), for
10 years. This proposed standard parallels standards in part 155 as
well as existing part 153 standards (45 CFR 153.240(c), 153.520(e) and
153.620(b) and proposed Sec. Sec. 153.310(c)(4), 153.405(h), and
153.410(c)). It is also consistent with the statute of limitations for
the False Claims Act (31 U.S.C. 3731(b)). Our proposed 10-year record
retention requirement supports the Federal government's right under the
False Claims Act to investigate and pursue claims based on violations
involving Federal funds that have occurred within the last 10 years.
Proposed Sec. 156.705(d) explains that the records referenced in
paragraph (a) must be made available to HHS, the OIG, the Comptroller
General, or their designees, upon request.
These proposed standards pertain only to Exchange-specific areas of
concern (for example, matters pertaining to advance payments of premium
tax credits or cost-sharing reductions) within the FFEs, as HHS would
expect the State DOI to oversee the maintenance of records pertaining
to other aspects of QHP issuer operations as required under State law.
We welcome comments on these proposed standards.
b. Compliance Reviews of QHP Issuers in Federally-facilitated
Exchanges (Sec. 156.715)
Section 1313(a)(5) of the Affordable Care Act requires the
Secretary to establish any measure or procedure that the Secretary has
authority to implement in Title I of the Affordable Care Act or any
other act to protect against fraud and abuse. Additionally, in
accordance with section 1321 of the Affordable Care Act, the Secretary
has the authority to issue regulations on the establishment and
operation of an Exchange, the offering of QHPs through the Exchange,
the establishment of reinsurance and risk adjustment programs, and
other requirements as the Secretary determines appropriate.
Based on this authority, we propose in Sec. 156.715(a) that
issuers offering QHPs in an FFE be subject to compliance reviews by HHS
to ensure ongoing compliance with Exchange standards applicable to
issuers offering QHPs in the FFE. We envision our oversight of QHP
issuers in FFEs to be primarily focused on Exchange standards
applicable only to issuers offering QHPs in the FFE because oversight
of market-wide standards will generally be performed by States as part
of their regulatory oversight. We intend to rely on data related to
these standards to inform our selection of the QHP issuers for
compliance reviews. We anticipate that the majority of QHP issuers
selected for compliance review will be identified using a risk-based
approach and include an analysis of the data collected by an FFE during
certification and the plan year. Given the primary role States play in
regulating health insurance, these compliance reviews will be less
rigorous than in Medicare Advantage. In paragraph (b), we describe the
proposed scope of documents that HHS may inspect as part of the
compliance review. We propose that HHS may review the records of the
QHP issuer pertaining to its activities within an FFE, which include
but are not limited to the QHP issuer's books and contracts, policy
manuals and other QHP plan benefit information provided to the QHP
issuer's enrollees, and the QHP issuer's policies and procedures
related to the QHP issuer's activities in an FFE. We further propose
that the scope of information subject to the compliance review include
any other information reasonably necessary, as determined by HHS, for
HHS to: (a) evaluate the QHP's issuer's compliance with Exchange
standards applicable to issuers offering QHPs in the FFE and their
performance in the FFE; (b) verify that the QHP issuer has performed
the duties attested to as part of the QHP certification process; and
(c) assess the likelihood of fraud and abuse. An example of an area
that may be reviewed, evaluated, or inspected is compliance with proper
application and documentation of advance payments of the premium tax
credit and cost-sharing reductions. We invite comment regarding other
areas that should be included or considered for inclusion in the
compliance reviews.
We note that under section 1311(e)(1)(B) of the Affordable Care
Act, which is codified in 45 CFR 155.1000(c), the Exchange may make the
health plan available on the Exchange if doing so is in the interest of
the qualified individuals and qualified employers. Accordingly, under
Sec. 156.715(c), we propose that HHS's findings from compliance
reviews may be used in conjunction with other findings related to the
QHP issuer's compliance with certification standards to confirm that
permitting the issuer's QHPs to be available in an FFE is in the
interest of qualified individuals and qualified employers as provided
under Sec. 155.1000(c)(2).
In Sec. 156.715(d), similar to requirements for Medicare Part C
audits, we propose that QHP issuers in an FFE make available to HHS the
issuer's premises, physical facilities, and equipment for compliance
reviews. We believe that on-site reviews are standard within the health
insurance industry
[[Page 37060]]
across a broad range of products and that QHP issuers would therefore
be used to such a standard, even if they have not participated in the
Medicare Part C program. We expect to focus our compliance review
efforts around FFE-related standards and activities, which we believe
will reduce the burden on QHP issuers that have been selected for
compliance reviews. We considered the two ways of conducting compliance
reviews: an onsite review for which reviewers would be physically
present on the QHP issuer's premises, and a desk review, during which
the reviews would be conducted off-site. Recognizing the need to be
flexible depending on the specific circumstances giving rise to the
need for a compliance review, we propose that HHS will have the
discretion to conduct either an onsite or desk review. We further
propose in this paragraph that Sec. 156.715, as proposed, is not
intended to supplant the application of any other Federal laws and
regulations related to information privacy and security.
In Sec. 156.715(e), we propose a time period for which HHS may
conduct compliance reviews. We propose that HHS may conduct compliance
reviews of a QHP issuer's operations during any plan benefit year for
up to 10 years from the last day of that plan benefit year, except when
a QHP is no longer available through an FFE, HHS would be able to
conduct a compliance review of the last plan benefit year of that QHP
only up to 10 years from the last day that the QHP's certification was
effective. For example, if a QHP's current benefit plan year ended on
December 31, 2014, then HHS may conduct a compliance review of that
benefit plan year until December 31, 2024. If QHP was decertified on
May 1, 2014, then HHS may conduct a compliance review of the QHP's last
benefit plan year until May 1, 2024. In the event that the 10 year
review period ends during an ongoing compliance review, the ongoing
compliance review would be permitted to continue beyond the 10 year
review period. We invite comments on this proposal.
6. Subpart I--Enforcement Remedies in Federally-Facilitated Exchanges
In subpart I, we propose the enforcement remedies that may be used
in an FFE with respect to QHP issuers participating in an FFE.
a. Available Remedies; Scope (Sec. 156.800)
Section 1321(c)(2) of the Affordable Care Act authorizes the
Secretary to enforce Exchange standards applicable to issuers offering
QHPs in the FFE using CMPs as detailed in section 2723(b) of the PHS
Act ``without regard to any limitation on the application of those
provisions to group health plans.'' Section 2723(b) of the PHS Act
authorizes the Secretary to impose CMPs as a means of enforcing the
individual and group market reforms contained in Title XXVII, Part A of
the PHS Act when a State fails to substantially enforce these
provisions.
Section 1311(d)(4) of the Affordable Care Act requires an Exchange
to implement procedures for the certification, recertification, and
decertification of health plans as QHPs. Accordingly, we propose that
HHS may determine that a QHP offered through an FFE will be decertified
and no longer offered through an FFE under specified circumstances,
including where the QHP no longer meets the conditions of the general
certification criteria under 45 CFR 155.1000(c). We intend to focus our
enforcement efforts on Exchange standards applicable to issuers
offering QHPs in the FFE given that enforcement of market-wide
standards will generally be performed by States as part of their
traditional regulatory roles. In the interest of avoiding duplication
of efforts, we intend to generally rely on determinations by States
that have the authority to enforce Federal standards related to
participation in a Federally-facilitated Exchange and are in fact,
substantially enforcing these standards. In Sec. 156.800, paragraphs
(a) and (b), we propose CMPs and QHP decertification, respectively, as
the two formal enforcement actions that HHS may take against issuers of
QHPs offered in an FFE. These are the two tools that the Affordable
Care Act authorizes the Secretary to use for addressing areas of non-
compliance of QHP issuers in FFEs. As with our proposed approach to
monitoring QHP issuers participating in an FFE, we intend to coordinate
our enforcement actions with State efforts in order to streamline the
oversight of QHP issuers by HHS and States and to avoid inappropriately
duplicative enforcement actions. We solicit comment on the use of these
proposed compliance tools. We also invite comments on how HHS can
collaborate with States on enforcement actions.
b. Bases and Process for Imposing Civil Money Penalties in
Federally-facilitated Exchanges (Sec. 156.805)
In Sec. 156.805(a), we propose the bases on which HHS can impose
CMPs on QHP issuers in FFEs. We propose imposing CMPs where there
misconduct in the FFE or substantial non-compliance with Exchange
standards applicable to issuers offering QHPs in the FFE. Examples
include falsifying information furnished to an individual or entity
upon which HHS relies to make evaluations of the QHP issuer's ongoing
compliance with Exchange standards applicable to issuers offering QHPs
in the FFE, or which have the effect of hindering the operations of an
FFE. We intend to apply these penalties in a manner such that the level
of the enforcement action would vary based on our assessment of the
scope or level of the violation, taking into account the issuer's
previous record of compliance, the frequency of the violation, and any
aggravating or mitigating factors. Because QHPs are one of several
commercial market insurance products operating in State markets, HHS
will seek not to unnecessarily duplicate or interfere with the
traditional regulatory roles played by State DOIs. HHS generally
intends to focus its QHP oversight to Exchange standards applicable to
issuers offering QHPs (for example, correctly administering advance
payments of the premium tax credits and cost-sharing reductions and
offering benefits consistent with those set forth in the QHP
applications approved by HHS) because oversight of market-wide
standards will generally be performed by States in their traditional
regulatory roles. We will also seek to work collaboratively with State
Departments of Insurance on topics of mutual concern, in the interest
of efficiently deploying oversight resources and avoiding unnecessarily
duplicative regulatory roles. We seek comment on this proposal.
In Sec. 156.805(b), we propose factors that HHS may take into
consideration in determining the amount of CMPs to assess. HHS
recognizes that 2014 will be a transitional year for issuers offering
QHPs. As a general principle, while HHS proposes to establish authority
to impose penalties consistent with this proposed rule, we note that we
intend to work collaboratively with issuers to address problems that
may arise, particularly in 2014. We propose that an issuer's previous
and ongoing record of compliance; the level of the violation, including
the frequency of the violation and the impact of the violation on
affected individuals; as well as any aggravating or mitigating
circumstances be taken into consideration. Section 2723(b)(2)(C) of the
PHS Act limits the CMP amount to $100 for each day for each individual
adversely affected. Therefore in Sec. 156.805(c), we propose that the
maximum amount of penalty imposed for each violation to be $100 per day
for each QHP issuer, for each individual adversely affected by the non-
compliance. For violations where the number of individuals adversely
[[Page 37061]]
affected by the non-compliance cannot be determined, we propose giving
HHS the authority to estimate the number of individuals likely to be
adversely affected by the non-compliance. We solicit comment on these
proposals in addition to comments on whether an appropriately fixed
maximum penalty amount per occurrence, per submission, or per some
other relevant marker, or alternatively on a formula for estimating the
number of individuals adversely affected by the violation would be more
appropriate.
We expect this amount to be necessary and adequate for encouraging
issuers to correct identified occurrences of non-compliance as quickly
as possible. Our intent is to encourage QHP issuers to address issues
of non-compliance rather than to impose a punitive monetary assessment,
especially in situations where the issuer demonstrates good faith in
monitoring compliance with applicable standards, identifying any
occurrences of non-compliance, and resolving of issues of non-
compliance. We believe that taking into consideration the various
factors proposed in paragraph (b) provides HHS flexibility to consider
the totality of the circumstances in determining a reasonable amount of
CMP to assess. In paragraph (d), we propose standards for notifying QHP
issuers of the intent to assess a civil money penalty, which notice
must include an explanation of the QHP issuer's right to a hearing
under subpart J of this part, which appeals process we propose to model
after the process that applies to appeals of HIPAA violations. Section
156.805(e) contains our proposed provisions on the consequences of
failing to timely request a hearing, which we have modeled after 45 CFR
150.347.
We seek comment on the content and scope of these provisions.
c. Bases and Process for Decertification of a QHP Offered by an Issuer
through the Federally-facilitated Exchanges (Sec. 156.810)
Section 1311(d)(4) of the Affordable Care Act directs that each
Exchange must implement procedures for the certification,
recertification, and decertification of health plans as QHPs,
consistent with guidelines developed by the Secretary. We have
considered the possibility of decertification at (1) the issuer level,
(2) the QHP level, and (3) both at the issuer level and at the QHP
level. We considered all three options because some of the bases for
de-certification include failure to comply with applicable standards at
the issuer level, while others uniquely involve compliance at the QHP
level. However, since certification is granted at the plan (QHP) level,
we propose that decertification should also occur at the QHP level.
In Sec. 156.810(a), we propose the bases for decertification. We
considered events that are likely to undermine the integrity or
operations of an FFE, harm the health of enrollees by limiting access
to healthcare, and or substantially interfere with HHS' ability to
ensure that QHPs offered in an FFE are in the interests of qualified
individuals and qualified employers. Recognizing that QHP issuers are
voluntarily electing to participate in an FFE, and that participation
is not required by any statutory mandate, we expect the majority of QHP
issuers to cooperate with HHS in resolving any issues of non-
compliance. As such and absent any extraordinary circumstances, we
expect few decertifications, especially in the first plan year. With
these considerations in mind, we propose in paragraph (a)(1), that a
QHP may be decertified if the issuer substantially fails to comply with
Federal laws and regulations applicable to QHP issuers participating in
an FFE. In paragraphs (a)(2), (3), and (4), we propose that a QHP may
be decertified if the issuer substantially fails to comply with other
specific Federal standards applicable to its participation in an FFE,
as related to the risk adjustment program, transparency in coverage,
QHP marketing and benefit design, privacy and security standards, and
advance payment of the premium tax credit and cost-sharing reductions.
In paragraph (a)(5), we propose that a QHP may be decertified if the
issuer operates in a manner that hinders the efficient and effective
administration of an FFE. In paragraph (a)(6), we propose that failure
of a QHP to meet the requirements of the applicable certification
criteria would be a basis for decertification. In paragraph (a)(7), we
propose that a QHP may be decertified when there is credible evidence
that the issuer has committed or participated in fraudulent or abusive
activities affecting the Exchange, including submission of false or
fraudulent data. In paragraphs (a)(8) and (9), we propose as bases for
decertification, when the QHP issuer substantially fails to meet
Federal standards related to enrollees' ability to access necessary
medical items and services which failure could have the effect of
seriously harming enrollees. In paragraph (a)(10), we propose as a
basis for decertification, when the State recommends to HHS that the
QHP should no longer be available in an FFE. We note that in the first
year, we expect decertification under these bases to be used only in
extreme cases, and only after the issuer has a sufficient opportunity
to come into compliance, unless the deficiency is egregious and the
harm to enrollees or to the integrity or operations of the FFE is
immediate and severe.
In Sec. 156.810(b)(1), we propose that HHS may consider a previous
or ongoing regulatory or enforcement actions taken by a State against a
QHP issuer as a factor in determining whether to decertify a QHP
offered by that issuer. We believe this is important to ensure that
mitigating factors identified by the State are thoroughly considered in
the decision to decertify a QHP. We believe that, by collaborating with
the State in which a QHP is being considered for decertification, we
can make a more informed decision about whether decertification is an
appropriate course of action by HHS. In paragraph (b)(2), we propose
that HHS may decertify a QHP offered by an issuer in an FFE based on a
determination or action of a State as they relate to the issuer
offering QHPs in an FFE, including, but not limited to, when a State
places an issuer or its parent organization into receivership or when
the State has recommended to HHS that a QHP should no longer be made
available in an FFE. We invite comments on whether these bases are
appropriate.
In Sec. 156.810(c) and (d), we propose two processes for
decertification actions, in consideration of the different bases which
may result in decertification. Where the basis for decertification does
not put the QHP enrollees' ability to access necessary medical items
and services at risk or substantially compromise the integrity of FFEs,
we propose a standard decertification process under Sec. 156.810(c).
Under the standard process, we propose that written notice of the
decertification would be sent to the QHP issuer, enrollees in the QHP
being decertified, and the State DOI in the State in which the QHP is
being decertified. The written notice would specify the effective date
of the decertification, which would not be earlier than 30 days after
the date of issuance of the notice. Additionally, we propose that the
written notice would state the reason for the decertification,
including the legal basis; inform the issuer of the effect of
decertification and the procedure for appeal; and inform the QHP
enrollees of the effect of decertification and the availability of a
special enrollment period under Sec. 155.420.
[[Page 37062]]
Where the basis for a decertification is one in which the QHP
enrollees' ability to access necessary medical items or services is at
risk or the integrity of an FFE is substantially compromised, we
propose that the QHP issuer would be subject to an expedited
decertification process under Sec. 156.810(d). This would include
cases in which there is credible evidence of fraud, the issuer
substantially fails to provide enrollees of its QHPs access to
necessary medical items or services, or other specified circumstances.
We propose that the expedited decertification process would be similar
to the standard process, except that the effective date of the
decertification could be immediate. We recognize that, under the
expedited decertification process, a QHP issuer may lose enrollees
during the appeal process. However, given that the bases for expedited
decertification are limited to when the enrollees' ability to access
needed health items or services is at risk or the integrity of an FFE
is substantially compromised, and that enrollees should be offered an
opportunity to transition to another QHP in these circumstances, we
believe that this expedited decertification process is appropriate.
Furthermore, the QHP issuer's interests are adequately protected by the
opportunity for a hearing after decertification, and the potential for
QHP reinstatement depending on the outcome of the appeal process.
Both the standard and expedited decertification processes would
afford the issuer of the decertified QHP the right to appeal the
decertification through an administrative hearing process under Sec.
156.810(e), only the timing of that appeal would differ. We propose
that, under the standard decertification process, the appeal would be
available prior to the decertification; under the expedited
decertification process, the appeal generally would be available post-
decertification. Under Sec. 156.810(e), we propose that an issuer may
appeal the decertification of a QHP offered by that issuer by filing a
request for hearing under part 156, subpart J. If the issuer makes a
request for hearing and the decertification is proceeding under the
standard process, we propose that the decertification would not take
effect until after the final administrative decision in the appeal,
notwithstanding the effective date specified in the notice of
decertification. If the decertification is proceeding under the
expedited process, we propose that the decertification would still take
effect on the effective date specified in the notice of
decertification; however, we propose that the certification of the QHP
could be reinstated immediately upon issuance of a final administrative
decision that the QHP should not be decertified.
We welcome comment on all of the proposed decertification
procedures, specifically, we invite comment on the two processes for
decertification (standard and expedited) and the bases for each
process.
7. Subpart J--Administrative Review of QHP Issuer Sanctions in a
Federally-Facilitated Exchange
a. Administrative Review in a Federally-Facilitated Exchange
(Sec. Sec. 156.901-156.963)
Section 1321(c)(2) of the Affordable Care Act authorizes the
Secretary to use CMPs as a means to enforce the Exchange standards,
including in an FFE. Section 1311(d)(4)(A) of the Affordable Care Act
authorizes Exchanges, including an FFE, to take action to decertify
QHPs offered through the Exchange. Enforcement actions taken by a
Federal agency are generally subject to the Administrative Procedure
Act, 5 U.S.C. 554 and 556. Consequently, we believe that QHP issuers in
an FFE that are subject to an enforcement action authorized by the
Affordable Care Act and proposed subpart I of 45 CFR part 156 are
entitled to the protections provided by the Administrative Procedure
Act, including a hearing.
(1) Civil Money Penalty
45 CFR 150.401 through 150.463 sets forth an administrative hearing
process for individuals and entities against whom a CMP has been
imposed in the individual and group health markets. This process is
intended to provide the individual or entity an opportunity to submit
evidence to be considered by the administrative law judge (ALJ). 45 CFR
150.401 through 150.463 establish the evidentiary and procedural rules
governing the administrative hearing. Under these provisions, the ALJ
decides whether there is a basis for assessing a CMP against the
individual or entity and whether the amount assessed is reasonable. In
order to appeal the CMP, an individual or entity must request a hearing
within 30 days after the date of the issuance of a notice of
assessment. If no hearing is requested, the assessment constitutes a
final and un-appealable order.
We believe that the process set forth in 45 CFR 150.401 through
150.463 is similar to the processes most States have in place for
issuers to appeal State enforcement actions. These regulations also
established the administrative review process for enforcement actions
against individuals and entities for HIPAA violations, which have been
expanded to apply to appeals of market-wide reform enforcement actions.
Because the process established in 45 CFR Part 150 is similar to
existing State appeals processes, and we expect that issuers should be
familiar with HIPAA enforcement processes given the long history of
that statute, we believe there is significant benefit in modeling the
administrative hearing process for appeals of sanctions against QHP
issuers in an FFE after the process established in Part 150.
Furthermore, we believe that the process as described in the relevant
sections of Part 150 sufficiently protects the procedural rights of QHP
issuers. Therefore, we propose in 45 CFR 156.901 through 156.963 an
administrative appeals process modeled after that set forth in 45 CFR
150.401 through 150.463. We seek comment on whether this process, as
proposed, should include additional protections and whether certain
provisions could be eliminated to expedite the administrative review
process and reduce administrative burden. We also invite comments on
whether other models, such as the appeals process for CMPs under
section 1128A of the Social Security Act, would be more appropriate
models to use. We propose numbering these sections in a manner similar
to the numbering in Part 150 for simplicity.
(2) Decertification of QHPs
Section 1311(d) of the Affordable Care Act requires an FFE to
implement procedures for decertification of QHPs offered through an
FFE. 45 CFR 155.1080 codifies this requirement and, in paragraph (d)
requires an FFE to establish a process for appealing the
decertification of a QHP. We considered two approaches to the
decertification appeals process. The first approach would be to expand
the proposed process for CMP appeals to include appeals of
decertifications of QHPs offered in an FFE. Under this approach, the
issuer of a QHP that is being decertified would have the opportunity to
request a hearing before an ALJ. The appeals process would be governed
by explicit procedural and evidentiary rules that would afford issuers
due process protections. As explained above, this approach is modeled
after the HIPAA administrative hearing process for CMPs assessed
against issuers in the group and individual markets, and is similar to
appeals processes that currently exist at the
[[Page 37063]]
State level. We note that the HIPAA administrative process has been
expanded to apply to appeals of enforcement actions of market-wide
reform standards. We believe this approach would be familiar to QHP
issuers and would therefore cause minimal confusion and uncertainty.
The second approach that we considered is the hearing process used for
terminations of contracts with Medicare Part C organizations under 42
CFR 422.510(a), which appeals process is described at 42 CFR part 422,
subpart N. Under this approach, the hearing would take place before a
hearing officer rather than an ALJ. Although the Medicare Part C
approach might take less time to result in a final administrative
decision on decertification, we considered the possibility that QHP
issuers that are unfamiliar with the Medicare program could be confused
by this hearing process. Therefore, after careful consideration of the
benefits and risks of the two approaches, we propose modeling the
hearing process for QHP decertification after the HIPAA process.
Similar to our proposal for the CMP appeals hearing process, for
decertification hearings, we propose generally to adopt the regulatory
process set forth 45 CFR part 150, subpart D. Although we propose to
preserve the large majority of the regulatory text from part 150, there
are two principal exceptions. In Sec. 156.903(a), we propose modifying
the part 150 approach to expand the scope of the ALJ's authority to
issue a decision concerning the decertification of a QHP in an FFE. In
Sec. 156.917(a), we propose modifying the part 150 approach by
including a paragraph (a)(3) to provide that the ALJ has the authority
to hear and decide whether a basis exists for an FFE's determination to
decertify a QHP. In other places, where necessary, we make conforming
amendments to refer to appeals of decertifications as well as of CMP
assessments; otherwise, our intent is to not alter the regulatory
process set forth in 45 CFR part 150, subpart D. We seek comment on
whether this appeals process should include additional protections or
whether certain aspects of the part 150 approach could be eliminated to
expedite the administrative review process and reduce administrative
burden. We also invite comments on whether other models, such as the
appeals process for CMPs under section 1128A of the Social Security
Act, would be more appropriate models to use.
8. Subpart K--Cases Forwarded to Qualified Health Plans and Qualified
Health Plan Issuers in Federally-Facilitated Exchanges by HHS
a. Standards (Sec. 156.1010)
We propose in Sec. 156.1010 to set requirements for resolving
cases forwarded to the QHP issuer operating in an FFE by HHS. A case is
communication brought by a complainant that expresses dissatisfaction
with a specific person or entity subject to State or Federal laws
regulating insurance, concerning the person or entity's activities
related to the offering of insurance, other than a communication with
respect to an adverse benefit determination as defined in 45 CFR
147.136(a)(2)(i). Cases could include concerns about the operations of
a QHP issuer operating in an FFE such as: waiting times when contacting
an issuer's call center, the demeanor of customer service personnel, or
the failure to receive materials related to coverage under the QHP,
such as the Summary of Benefits and Coverage. While we expect that most
cases will be brought by or on behalf of QHP applicants and enrollees,
some cases may be brought by providers or other interested parties. HHS
recognizes that States currently play an important role in handling
various types of cases related to health plans and issuers, and HHS
envisions the States will continue to play an important role in
assisting applicants, enrollees, providers and others. We anticipate
that many cases will be presented in the first instance to the State
DOI and will be addressed by the State in accordance with its own laws,
regulations, and processes. For a case forwarded to a QHP issuer
operating in an FFE by a State, the QHP issuer is expected to comply
with applicable standards established by State laws and regulations.
Additionally, some cases not related to FFE-specific topics will be
brought to HHS rather than to the State. HHS intends to work with each
State to ensure that such cases are addressed by the State in
accordance with its own laws, regulations, and processes. We intend
that cases received by a QHP issuer operating in an FFE directly from a
complainant or the complainant's authorized representative will be
handled by the issuer through its internal customer service process.
For cases related to FFE-specific topics brought to HHS, we propose
that such cases will be addressed and resolved by HHS and the issuer,
as appropriate, pursuant to the proposed standards in Sec. 156.1010.
In Sec. 156.1010(a), we propose the definition of a case. In Sec.
156.1010(b), we propose that QHP issuers operating in an FFE must
investigate and resolve, as appropriate, cases brought by a complainant
or the complainant's authorized representative and forwarded to the
issuer by HHS. QHP issuers operating in an FFE are reminded that issues
and inquiries related to an adverse benefit determination as defined in
45 CFR 147.136(a)(2)(i) are not covered by this proposed section, and
are subject to the regulations governing internal claims appeals and
external review in 45 CFR 147.136.
Section 156.1010(c) proposes that cases may be forwarded to a QHP
issuer operating in an FFE through a casework tracking system developed
by HHS, or through other means as determined by HHS. Cases may be input
into a tracking system developed by HHS by a variety of individuals,
including HHS staff, Navigators and other assistors, and Consumer
Assistance Programs.
Section 156.1010(d) proposes that cases forwarded by HHS to a QHP
issuer operating in an FFE must be resolved within 15 calendar days of
receipt of the case. We propose that such cases involving the need for
urgent medical care must be resolved no more than 72 hours after
receipt of the case. QHP issuers operating in an FFE must make every
effort to quickly resolve cases when an enrollee has an urgent need to
access needed medical items and services, pursuant to proposed
paragraph (e) of this section. We further propose that, for cases
forwarded by HHS to a QHP issuer operating in an FFE, where applicable
State laws and regulations establish timeframes for case resolutions
that are stricter than the standards under this paragraph, QHP issuers
are required to comply with the stricter State laws and regulations.
In 156.1010(e) we propose that an urgent case is one in which there
is an immediate need for health services because a non-urgent standard
could seriously jeopardize the enrollee's or potential enrollee's life,
or health or ability to attain, maintain, or regain maximum function.
In Sec. 156.1010(f), for cases forwarded by HHS we propose that
QHP issuers operating in an FFE are required to provide notice to
complainants regarding the disposition of a case as soon as possible
upon resolution of the case, but in no event later than seven (7)
business days after the case is resolved. Notification may be by verbal
or written means as determined most expeditious by the QHP issuer.
[[Page 37064]]
In Sec. 156.1010(g), we propose that the QHP issuer operating in
an FFE must document in a casework tracking system developed by HHS, or
by other means determined by HHS, that the case has been resolved, no
later than seven (7) business days after resolution of the case. The
resolution record must include a clear and concise narrative explaining
how the case was resolved including information about how and when the
complainant was notified of the resolution.
In Sec. 156.1010(h) we propose that cases received by a QHP issuer
operating in an FFE from the State in which the issuer offers QHPs must
be investigated and resolved according to applicable State laws and
regulations. In addition, QHP issuers operating in an FFE must
cooperate fully with a State, HHS, or any other appropriate regulatory
authority that is handling a case.
HHS will use casework data within the HHS developed casework
tracking system, including data entered by HHS and other users such as
QHP issuers operating in FFEs, Consumer Assistance Programs, and
Navigators, to identify trends, areas of concern, and compliance
issues.
9. Subpart L--Quality Standards
a. Establishment of Standards for HHS-approved Enrollee Satisfaction
Survey Vendors for Use by QHP Issuers in Exchanges (Sec. 156.1105)
Section 1311(c)(4) of the Affordable Care Act directs the Secretary
to develop an enrollee satisfaction survey that evaluates the level of
enrollee satisfaction with each QHP that is offered through an
Exchange, for QHPs that had more than 500 enrollees in the previous
year. The results of the evaluation are to be publicly reported on the
Exchange's Internet portal, in a manner that allows for easy comparison
of enrollee satisfaction levels among comparable plans. HHS intends to
begin public reporting of these survey results in 2016. 45 CFR
155.200(d) directs Exchanges to oversee the implementation of enrollee
satisfaction surveys and the assessment and ratings of health care
quality and outcomes, in accordance with sections 1311(c)(1),
1311(c)(3) and 1311(c)(4) of the Affordable Care Act. Further, as part
of minimum certification standards, 45 CFR 156.200(b)(5) directs QHP
issuers to disclose and report information on health care quality and
outcomes and implement appropriate enrollee satisfaction surveys.
In order to carry out these functions, we propose processes under
which HHS would approve and oversee enrollee satisfaction survey
vendors that will administer enrollee satisfaction surveys on behalf of
QHP issuers. In future rulemaking, we intend to direct QHP issuers to
contract with HHS-approved enrollee satisfaction survey vendors to
fulfill the requirements established in 45 CFR 156.200(b)(5). The
enrollee satisfaction survey vendors would need to be approved by mid-
2014 to allow time for QHP issuers to contract with these vendors by
late 2014, well before any relevant quality reporting standards must be
implemented. We have previously stated that quality reporting standards
(including the enrollee satisfaction survey) would be implemented in
2016, and available for consumers to use during 2017 open
enrollment.\33\ This implementation timeline is reflective of the
earliest possible time that issuers would be able to report performance
data on their QHP populations. HHS intends to also utilize the enrollee
satisfaction survey information to engage in oversight activities of
QHP issuers and in QHP recertification decisions.
---------------------------------------------------------------------------
\33\ General Guidance on Federally-facilitated Exchanges, May
16, 2012. Available at https://cciio.cms.gov/resources/files/ffe-guidance-05-16-2012.pdf.
---------------------------------------------------------------------------
We also intend to establish, in future rulemaking, that the
enrollee satisfaction survey be modeled on the CAHPS[supreg] Health
Plan survey which typically assesses patients' satisfaction with their
health care, personal doctors, and health plans. To administer the
CAHPS[supreg] survey to Medicare Parts C and D enrollees, Medicare
Parts C and D utilize a similar process to the one we are proposing in
Sec. 156.1105 to approve enrollee satisfaction survey vendors. We
anticipate that enrollee satisfaction survey vendors would also be
responsible for submitting survey results directly to HHS and other
entities specified by HHS, such as Exchanges. We also plan to
promulgate additional quality reporting standards for QHP issuers and
Exchanges. We seek comment on this proposed approach to approving and
monitoring enrollee satisfaction survey vendors.
In Sec. 156.1105(a), we propose an application and approval
process for enrollee satisfaction survey vendors. We propose that only
HHS-approved enrollee satisfaction survey vendors could administer the
survey on behalf of QHP issuers. We believe that this proposed process
will help to ensure that survey results are valid, reliable, and
unbiased. This process would also allow QHP issuers to easily find
approved vendors since we plan to publish a list of approved vendors.
We propose that enrollee satisfaction survey vendors will be approved
for one-year terms, which could mean that, to maintain their HHS
approval, each vendor would submit annual applications to HHS
demonstrating that the vendor meets all of the application and approval
requirements. Survey vendor application forms will be developed and
released at a later date. Survey vendors that are not approved by HHS
are invited to re-apply. HHS will work with those vendors so that they
could meet the standards specified in Sec. 156.1105(b) for re-
application. We are also considering developing a process for revoking
HHS approval of vendors and a related appeals process in future
rulemaking. We seek comment on these processes.
In paragraph (b), we propose the standards that an enrollee
satisfaction survey vendor must meet to be approved by HHS.
We have not proposed specific minimum business criteria in
paragraph (b)(11) for enrollee satisfaction survey vendors. However, we
intend to align these criteria with existing criteria set for Medicare
Advantage CAHPS[supreg] Survey vendors, including but not limited to
relevant survey experience and organizational survey capacity.
Specifically, we are considering the following criteria: (a) Having at
least two years of experience conducting similar types of survey
administration; (b) possessing appropriate staff credentials and
expertise to conduct survey administration; and (c) minimum facility
requirements, such as ability to store secure data. We seek comment on
these minimum business criteria and any additional criteria that we
should consider.
Finally, we propose in paragraph (c) that once HHS has approved
enrollee satisfaction survey vendors, HHS would publish a list of
approved entities on an HHS Web site.
10. Subpart M--Qualified Health Plan Issuer Responsibilities
a. Confirmation of HHS Payment and Collections Reports (Sec. 156.1210)
We anticipate sending each applicable issuer a monthly payment and
collections reports that will show, with respect to certain provisions
under Title I of the Affordable Care Act, payments HHS owes to the
issuer, as well as those the issuer owes HHS. For the 2014 calendar
year, we anticipate this report will include advance payments of the
premium tax credit and advance payments of cost-sharing reductions that
HHS is paying to the issuer for each policy listed on the payment
report, any
[[Page 37065]]
amounts owed by the issuer for FFE user fees, as well as any
adjustments from previous payments under those programs. Any applicable
issuer will need to review this payment and collections report against
the payments it expects for each policy based on the eligibility and
enrollment information transmitted by the Exchange, and, any amounts it
expects HHS to collect for FFE user fees. In order to ensure accurate
payments and make adjustments, in Sec. 156.1210, we propose that,
within 15 calendar days of the date of a payment and collections
report, the issuer would either confirm to HHS that the payment and
collections report accurately lists payments owed by HHS and the issuer
for the timeframe specified in the payment and collections report, or
describe to HHS any inaccuracy it identifies in these amounts
(including incorrect payment amounts, or extra or missing policies in
the report). These notifications would be provided in a format
specified by HHS. HHS will work with issuers to resolve any
discrepancies between the amounts listed in the payment and collections
report and the amounts the issuer believes it should receive for the
time period specified on the report.
This proposed provision will help align enrollment and eligibility
data transmitted by the Exchange, payments provided by and collected by
HHS, and the issuer's own records of payments due. In addition to the
provisions proposed in Sec. 156.410 and Sec. 156.460 of this Part,
this proposed provision will also help ensure that the correct amounts
of advance payments of the premium tax credit and advance cost-sharing
reductions are paid to issuers on behalf of eligible individuals. We
note the need to protect enrollees from unanticipated tax liability
that could result if the advance payments of the premium tax credit
they receive are greater than the amounts of premium tax credit
available to them. We seek comment on this provision, and in particular
on the length of time issuers should have to respond to the payment and
collections report.
b. Direct Enrollment With the QHP Issuer in a Manner Considered To Be
Through the Exchange (Sec. 156.1230)
Section 1413 of the Affordable Care Act directs the Secretary to
establish, subject to minimum requirements, a streamlined enrollment
process for enrollment in QHPs and all insurance affordability
programs. We anticipate that many individuals will approach issuers
directly for purposes of QHP enrollment. Many issuers currently use
their Web sites to enroll individuals into health coverage.
Accordingly, consistent with HHS's guidance titled ``Affordable
Exchanges Guidance: Letter to Issuers on Federally-facilitated and
State Partnership Exchanges,'' \34\ we propose to add paragraph Sec.
156.1230(a)(1)(i) that would allow, at the Exchange's option, a QHP
issuer to enroll an applicant who initiates enrollment directly with
the QHP issuer in a manner that is considered enrollment through the
Exchange if the QHP issuer follows the enrollment process for qualified
individuals set forth in Sec. 156.265.
---------------------------------------------------------------------------
\34\ Affordable Exchanges Guidance: Letter to Issuers on
Federally-facilitated and State Partnership Exchanges, (April 5,
2013). Available at: https://www.cms.gov/CCIIO/Resources/Regulations-and-Guidance/Downloads/2014_letter_to_issuers_04052013.pdf
---------------------------------------------------------------------------
We are also proposing paragraphs (a)(1)(ii)-(a)(1)(v) whereby QHP
issuers that seek to directly enroll a qualified individual in a manner
considered to be through the Exchange would be required to meet certain
minimum consumer protections. The proposed protections would ensure
that consumers know how to access available coverage options and are
able to make informed plan selections. We propose in a new paragraph
Sec. 156.1230(a)(1)(ii) that QHP issuers that seek to directly enroll
qualified individuals in a manner considered to be through the Exchange
must provide applicants the ability to view the QHPs offered by the
issuer with data elements set forth at 45 CFR 155.205(b)(1). Under this
proposal, QHP issuers would need to ensure their Web sites provide
standardized comparative information on each available QHP offered by
the QHP issuer, including premium and cost-sharing information; the
summary of benefits and coverage established under section 2715 of the
PHS Act; identification of whether the QHP is a bronze, silver, gold or
platinum metal level or a catastrophic plan; the results of the
enrollee satisfaction survey, as described in section 1311(c)(4) of the
Affordable Care Act; quality ratings assigned in accordance with
section 1311(c)(3) of the Affordable Care Act; MLR information as
reported to HHS in accordance with 45 CFR part 158; transparency of
coverage measures reported to the Exchange during certification; and
the provider directory in accordance with Sec. 156.230. We note that
for 2014, the information referenced in 45 CFR 155.205(b)(1)(iv), (v),
and (vii) will not be required because the information will not be
available.
We also propose in Sec. 156.1230(a)(1)(iii) that QHP issuers that
seek to directly enroll qualified individuals in a manner considered to
be through the Exchange using the issuer's Web site must clearly
distinguish between QHPs for which the consumer is eligible and non-
QHPs that the issuer may offer. We propose that this distinction must
also clearly articulate that APTC and CSRs apply only to QHPs offered
through the Exchange.
In addition, in Sec. 156.1230(a)(1)(iv) we propose that QHP
issuers that seek to directly enroll qualified individuals in a manner
considered to be through the Exchange be required to notify applicants
of the availability of other QHP products offered through the Exchange
to consumers, regardless of whether they apply through a Web site, in-
person or by phone. The QHP issuer would also be required to display
the Web link to or describe how to access the Exchange Web site. We
seek comment if HHS should require a universal disclaimer to be
displayed by the issuer that informs applicants that other coverage
options exist in the Marketplace and that not all coverage options are
displayed.
In Sec. 156.1230(a)(1)(v) we propose that a QHP issuer be required
to ensure that, when an applicant initiates enrollment directly with
the QHP issuer and the QHP issuer seeks to directly enroll the
applicant in a manner considered to be through the Exchange, the
applicant is allowed to select an APTC amount, if applicable, in
accordance with Sec. 155.310(d)(2), provided that the applicant makes
the attestations required by Sec. 155.310(d)(2)(ii).
In Sec. 156.1230(a)(2) we propose that, if permitted by the
Exchange pursuant to Sec. 155.415 of this part, a QHP issuer seeking
to directly enroll applicants in a manner considered to be through the
Exchange enter into an agreement with the Exchange prior to allowing
any of its customer service representatives to assist qualified
individuals in the individual market with: (a) Applying for an
eligibility determination or redetermination for coverage through the
Exchange; (b) applying for insurance affordability programs; or (c)
facilitating the selection of a QHP offered by the issuer represented
by the customer service representative whereby the QHP issuer would
agree to require each of its customer service representatives to at a
minimum: (i) receive training on QHP options and insurance
affordability programs, eligibility, and benefits rules and
regulations; (ii) comply with the Exchange's privacy and security
standards adopted consistent with Sec. 155.260; and (iii) comply with
applicable State law related to the sale, solicitation, and negotiation
of health insurance products, including
[[Page 37066]]
applicable State law related to agent, broker, and producer licensure;
confidentiality; and conflicts of interest. We solicit comments on
these proposals.
We also propose to add paragraph (a)(3) to ensure that the premium
that a QHP issuer charges to a qualified individual or enrollee is the
same as was accepted by the Exchange in its certification of the QHP
issuer after accounting for any APTC. We propose that if the QHP issuer
identifies an error in the amount it has charged the qualified
individual, the QHP issuer must retroactively correct the error no
later than 30 calendar days after its discovery. We also propose that
for issuers of QHPs in the FFE, HHS may review the premiums charged to
qualified individuals through the compliance reviews proposed in Sec.
156.715(a).
Finally, in paragraph (b), we state that the individual market FFE
will permit the conduct set forth in this section, to the extent
permitted by applicable State law.
c. Enrollment Process for Qualified Individuals (Sec. 156.1240)
We realize that a segment of the population that will seek health
insurance coverage through an Exchange will not have bank accounts or
credit cards, and we have received numerous questions and comments on
this topic. These people should be able to access coverage through an
Exchange on the same basis as those with a bank account or credit card
and should not be unable to access coverage merely due to the inability
to pay their share of the premium. Therefore, we propose to require QHP
issuers at a minimum accept a variety of payment formats, including,
but not limited to, paper checks, cashier's checks, money orders, and
replenishable pre-paid debit cards, so that individuals without a bank
account will have readily available options for making monthly premium
payments. Issuers may also offer electronic funds transfer from a bank
account and automatic deduction from a credit or debit card as payment
options. We seek comment on this proposal and whether other payment
methods should be included.
III. Collection of Information Requirements
Under the Paperwork Reduction Act of 1995 (PRA), we are required to
provide 60-day notice in the Federal Register and solicit public
comment before a collection of information requirement is submitted to
the Office and Management and Budget (OMB) for review and approval. To
fairly evaluate whether an information collection should be approved by
OMB, section 3506(c)(2)(A) of the Paperwork Reduction Act of 1995 (PRA)
requires that we solicit comment on the following issues:
The need for the information collection and its usefulness
in carrying out the proper functions of our agency.
The accuracy of our estimate of the information collection
burden.
The quality, utility, and clarity of the information to be
collected.
Recommendations to minimize the information collection
burden on the affected public, including automated collection
techniques.
The following sections of this document contain estimates of burden
imposed by the associated information collection requirements (ICRs);
however, not all of these estimates are subject to the ICRs under the
PRA for the reasons noted. Salaries for the positions cited were mainly
taken from the Bureau of Labor Statistics (BLS) Web site (https://www.bls.gov/oco/ooh_index.htm).
The salaries for the health policy analyst and the senior manager
were taken from the Office of Personnel Management Web site. Fringe
Benefits estimates were taken from the BLS March 2013 Employer Costs
for Employee Compensation Report.\35\
---------------------------------------------------------------------------
\35\ BLS March 2013 Employer Costs for Employee Compensation
Report (March 12, 2013). Available at https://www.bls.gov/news.release/ecec.toc.htm
---------------------------------------------------------------------------
A. ICRs Regarding Program Integrity Provisions Related to State
Operation of the Reinsurance Program (Sec. 153.260)
In Sec. 153.260 of this proposed rule, we direct a State-operated
reinsurance program to: (1) Keep an accurate accounting of reinsurance
contributions, payments, and administrative expenses; (2) submit to HHS
and make public a summary report on program operations; and (3) engage
an independent qualified auditing entity to perform a financial and
programmatic audit for each benefit year. Fewer than 10 States have
informed HHS that they will operate reinsurance for the 2014 benefit
year. While these reinsurance records requirements are subject to the
PRA, we believe the associated burden is exempt under 5 CFR
1320.3(c)(4) and 44 U.S.C. 3502(3)(A)(i), since fewer than 10 entities
would be affected. Therefore, we are not seeking approval from OMB for
these information collection requirements.
B. ICRs Regarding Program Integrity Provisions Related to State
Operation of the Risk Adjustment Program (Sec. 153.310(c)(4) and Sec.
153.310(d)(3)-(4), and Sec. 153.365)
In Sec. 153.310(c)(4), Sec. 153.310(d)(3)-(4), and Sec. 153.365
of this proposed rule, we require a State operating risk adjustment to:
(1) Retain records for a 10-year period; (2) submit an interim report
in its first year of operation; (3) submit to HHS and make public a
summary report on program operations for each benefit year; and (4)
keep an accurate accounting for each benefit year of all receipts and
expenditures related to risk adjustment payments, charges, and
administrative expenses. Fewer than 10 States have informed HHS that
they will operate risk adjustment for the 2014 benefit year. Since the
burden associated with collections from fewer than 10 entities is
exempt from the PRA under 5 CFR 1320.3(c)(4) and 44 U.S.C.
3502(3)(A)(i), we are not seeking approval from OMB for the risk
adjustment information collection requirements. However, if more than
nine States elect to operate risk adjustment in the future, we will
seek approval from OMB for these information collections.
C. ICRs Regarding Maintenance of Records for Contributing Entities and
Reinsurance-Eligible Plans (Sec. 153.405(h) and Sec. 153.410(c))
In Sec. 153.405(h) and Sec. 153.410(c), we propose record
retention standards for contributing entities and reinsurance-eligible
plans. In proposed Sec. 153.405(h), we require contributing entities
to maintain documents and records, whether paper, electronic, or in
other media, sufficient to substantiate the enrollment count submitted
pursuant to this section for a period of at least 10 years, and must
make that evidence available upon request to HHS, the OIG, the
Comptroller General, or their designees, to any such entity, for
purposes of verification of reinsurance contribution amounts. This
requirement may be satisfied if the contributing entity archives the
documents and records and ensures that they are accessible if needed in
the event of an investigation or audit.
We estimate that 26,200 contributing entities will be subject to
this requirement, based on the Department of Labor's (DOL) estimated
count of self-insured plans and the number of fully insured issuers
that we estimate will make reinsurance contributions.\36\ We
[[Page 37067]]
believe that most of these contributing entities will already have the
systems in place for record maintenance, and that the additional burden
associated with this requirement is the time, effort, and additional
labor cost required to maintain the records. On average, we estimate
that it will take each contributing entity approximately 5 hours
annually to maintain records. We estimate that it will take an
insurance operations analyst 5 hours (at $38.49 an hour) to meet these
requirements. On average, the cost for each contributing entity would
be approximately $192.45 annually. Therefore, for 26,200 contributing
entities, we estimate an aggregate burden of $5,042,190 and 131,000
hours as a result of this requirement.
---------------------------------------------------------------------------
\36\ We use an estimate of self-insured entities published by
the DOL in the March 2013 ``Report to Congress: Annual Report of
Self-insured Group Health Plans,'' which reflects only those self-
insured health plans (including 19,800 self-insured plans and 4,000
plans that mixed self-insurance and insurance) that are required to
file a Form 5500 with the DOL.
---------------------------------------------------------------------------
In proposed Sec. 153.410(c), we require issuers of reinsurance-
eligible plans to maintain documents and records, whether paper,
electronic, or in other media, sufficient to substantiate the requests
for reinsurance payments made pursuant to this section for a period of
at least 10 years, and must make that evidence available upon request
to HHS, the OIG, the Comptroller General, or their designees, (or, in
the case of a State operating reinsurance, the State or its designees),
to any such entity, for purposes of verification of reinsurance payment
requests. We estimate that 1,900 issuers of reinsurance-eligible plans
will be subject to this requirement, based on HHS's most recent
estimate of the number of fully insured issuers that will submit
requests for reinsurance payments. On average, we estimate that it will
take each issuer of a reinsurance-eligible plan approximately 10 hours
annually to maintain records. We estimate that it will take an
insurance operations analyst 10 hours (at $38.49 an hour) to meet these
requirements. On average, the cost estimate for each issuer is
approximately $384.90 annually. Therefore, for 1,900 issuers, we
estimate an aggregate burden of $731,310 and 19,000 hours as a result
of this requirement.
The burden estimates for these two recordkeeping requirements are
broad estimates that include not only the maintenance of data, but all
records and documents that may be necessary to substantiate the
enrollment count and requests for reinsurance payments made pursuant to
45 CFR 153.405 and 153.410, respectively. Because the scope of these
requirements is substantially less than the scope of the recordkeeping
requirement applicable to a State operating reinsurance, these
estimates are lower than those that were set forth for State-operated
reinsurance programs record maintenance requirement (45 CFR 153.240(c))
in the Premium Stabilization Rule published March 23, 2012 (77 FR
17220), and the associated information collection request approved
under OMB Control Number 0938-1155. We note that we will account for
the additional burden associated with submitting this information to
HHS in a future information collection request that will go through the
requisite notice and comment period and subsequent OMB review and
approval process.
D. ICRs Related to Ability of States To Permit Agents and Brokers To
Assist Qualified Individuals, Qualified Employers, or Qualified
Employees Enrolling in Qualified Health Plans in the Federally-
Facilitated Exchange (Sec. 155.220)
Section 155.220 authorizes HHS to terminate an agent's or broker's
agreement with an FFE if HHS determines that the agent or broker is out
of compliance with the standards outlined in 45 CFR 155.220. Section
155.220(g) sets forth the process whereby an agent or broker can
request reconsideration of HHS's termination. Specifically, the agent
or broker must submit the request for reconsideration within 30
calendar days of receipt of the date of the notice of termination.
The burden estimates for the reporting requirements in Sec.
155.220 reflect our assumption that there will be 254,095 agents and
brokers registered in an FFE. The NAIC indicates that there are between
600,000 and 700,000 total licensed brokers selling health insurance at
any point in time in the United States. We selected the midpoint,
650,000, as our estimate of the number of licensed brokers. We estimate
that 37 percent of these brokers are in States with State Exchanges.
This means an estimated 63 percent, or 409,500, are in FFE States. We
estimate that 85 percent, or 348,000, will be registered in an FFE.
States have traditionally overseen agents and brokers in the health
insurance market and we expect that States will continue in that
regulatory role and be the primary regulator of agents and brokers in
their respective States. Given that our oversight of agents and brokers
will be narrowly tailored to FFE-specific standards, we expect
terminations to be infrequent, especially in the first plan year. For
purposes of this burden estimate, we assume that two agents or brokers
will have their access suspended or revoked and that both agents or
brokers will appeal these actions. We solicit comments on these
assumptions.
As stated in Sec. 155.220(g)(2), an agent or broker may submit a
request for reconsideration of any termination decision by HHS within
30 calendar days of notification of the decision. We assume the need to
terminate an agent's or broker's agreement with an FFE will occur only
rarely. For purposes of this initial burden estimate we estimate that
revocation notices will be sent to 2 agents or brokers each year. The
hour burden associated with this action is the time and effort needed
by the agent or broker to create the written request and submit it
electronically to HHS. The associated costs are labor costs for
gathering the necessary background information and then preparing and
submitting the request.
We assume that all agents and brokers who receive a notice of
termination will submit a request for reconsideration. We expect the
request to address the issues presented in the original notice of
termination from HHS. The hours involved in preparing and submitting
this request may vary. For the purpose of this burden estimate we
estimate that it will take 18 hours for an agent or broker to prepare
and submit this request: 10 hours (at $28.81 an hour) for the brokerage
clerk to gather and assemble necessary background materials and 8 hours
(at $41.15 an hour) for the agent or broker to prepare the written
request and submit it electronically. This is a total of 18 hours
annually at a cost of $617.30 per agent or broker. Therefore, we
estimate an aggregate burden of 36 hours at a cost of $1,234.60 for the
two agents or brokers. We solicit comments on these estimates.
E. ICRs Related to the Eligibility Process (Sec. 155.310)
Section Sec. 155.310(k) provides that if an Exchange does not have
enough information to conduct an eligibility determination for advance
payments of the premium tax credit or cost-sharing reductions, the
Exchange must provide notice to the applicant regarding the incomplete
application. We anticipate that this notice requirement is not a
separate notice to an individual but text within the eligibility
determination notice described in Sec. 155.310(g) and discussed in a
separate information collection request that is associated with the
notice of proposed rulemaking that published on January 22. 2013 (78 FR
4594). We therefore do not include a separate burden estimate to
develop this notice but the time and cost associated
[[Page 37068]]
with this notice is included within the estimate in Sec. 155.310(g).
Section 155.310(k)(2) provides that the Exchange must provide the
applicant with a period of no less than 15 days and no more than 90
days from the date on which the notice is sent to the applicant to
provide the information needed to complete the application to the
Exchange.
Given the fact that the Exchange eligibility process is entirely
new and involves the use of new electronic data sources in combination
with a new application, it is not possible to provide estimates for the
number of applicants for whom we expect to have an incomplete
application. However, we anticipate that this number will decrease as
applicants become more familiar with the eligibility process, as more
data become available electronically, and as customer service resources
evolve based on experience.
Therefore, we estimate the time and effort for one individual to
comply with this provision. We expect that this will take an individual
one hour to gather the relevant documentation and enter the missing
information online or contact the call center to provide the necessary
information. Our estimate that it will take an individual one hour to
gather the relevant documentation depends on whether or not the
individual already has the necessary documentation on hand, or whether
the documents are presently unavailable and the individual needs to
spend additional time to gather the documentation. As such, it could
take significantly less time if an individual already had the documents
on hand, or potentially more time if certain documents were unavailable
at the time an individual needed to complete the application.
F. ICRs Related to Oversight and Financial Integrity Standards for
State Exchanges (Sec. 155.1200 to Sec. 155.1210)
In subpart M of part 155, we describe the information collection
and third-party disclosure standards related to the oversight and
financial integrity of State Exchanges.
Section 155.1200(a)(1)-(3) requires the State Exchange to follow
GAAP and to monitor and report to HHS all Exchange-related activities.
This includes keeping an accurate accounting of all Exchange receipts
and expenditures. The burden associated with this reporting requirement
is the time and effort needed to develop and submit Exchange-related
activities to HHS. The State Exchanges will electronically maintain the
information as a result of normal business practices; therefore, the
burden does not include the time and effort needed to maintain the
Exchange-related activity information. State Exchanges most likely will
already have accounting systems in place to store accounting
information. The burden associated with this requirement includes a
computer programmer taking 8 hours (at $48.61 an hour) to modify the
system to maintain and monitor the information required under Sec.
155.1200(a)(1) through (3), an analyst taking 8 hours (at $58.05 an
hour) to pull the necessary data under Sec. 155.1200(a)(1) through (3)
in the State Exchange accounting system, and a senior manager taking 2
hours (at $77.00 an hour) to oversee the development and transmission
of the reported data. We estimate that it will take 18 total hours at a
cost of $1,007.28 for each State Exchange. We estimate the total burden
to be 324 hours for a total cost of $18,131.04 for all State Exchanges.
Section 155.1200(b)(1) requires the State Exchange to submit a
financial statement, in accordance with GAAP to HHS. The information
under Sec. 155.1200(b) must be submitted at least annually by April 1
to HHS and must also be publicly displayed. The burden associated with
this reporting requirement is the time and effort needed to develop and
submit the financial statement to HHS. The State Exchanges will
electronically submit the information. Therefore, the burden is the
time and effort needed to develop and publically display the financial
statement. The State Exchanges will electronically maintain the
information as a result of normal business practices, therefore the
burden does not include the time and effort needed to develop and
maintain the financial information. The burden associated with this
requirement includes a computer programmer taking 40 hours (at $48.61
an hour) to design the financial statement report, an analyst taking 8
hours (at $58.05 an hour) pulling the necessary data and inputting it
into the financial statement report, and a senior manager taking 2
hours (at $77.00 an hour) overseeing the development and transmission
of the reported data. We estimate a burden of 50 total hours for each
State Exchange at a cost of $2,562.80, for a total cost of $45,410.40
for all Exchanges.
Section 155.1200(b)(2) requires the State Exchange to submit
eligibility and enrollment reports to HHS. The State Exchanges will
electronically maintain the information as a result of normal business
practices, therefore the burden does not include the time and effort
required to develop and maintain the source information. The burden
associated with this reporting requirement includes the time and effort
necessary for a computer programmer taking 40 hours (at $48.61 an hour)
to design the report template, an analyst taking 8 hours (at $58.05 an
hour) to compile the statistics for the report for submission to HHS, a
privacy officer taking 8 hours (at $64.98 an hour) and senior manager
taking 2 hours (at $77.00 an hour) overseeing the development and
submission of the reported data. The burden also includes the time and
effort necessary to post the data on the State Exchange Web site. We
estimate an initial year burden of 58 hours at a cost of $3,082.64 to
each State Exchange and a total burden of 1,044 hours at a cost of $55,
487.52 for all State Exchanges.
As discussed in Sec. 155.1200(b)(3), the State Exchange will
report performance monitoring data to HHS. The performance monitoring
data includes information on financial sustainability, operational
efficiency, and consumer satisfaction which will be reported on an
annual basis. The State Exchanges will electronically maintain the
information as a result of normal business practices developed under
Establishment Grants from HHS for this purpose. Therefore the burden
does not include the time and effort needed to develop and maintain the
performance data. The burden associated with meeting the reporting
requirement includes the time and effort necessary for a computer
programmer taking 40 hours (at $48.61 an hour) to design the report,
for an analyst taking 12 hours (at $58.05 an hour) to pull data into
the report and prepare for submission to HHS and for a senior manager
taking 2 hours (at $77.00 an hour) to oversee the development and
transmission of the reported data. Section 155.1200(b) requires the
State Exchange to submit to HHS and to display publicly financial,
eligibility and enrollment reports and performance data at least
annually. For those measures reported annually, we estimate that in the
initial year a burden of 54 hours for the State Exchanges at a cost of
$2,795.00 each and a total burden of $50,031.00.
Section 155.1200(c)(1) through (3) direct the State Exchange to
engage an independent audit/review organization to perform an external
financial and programmatic audit of the State Exchange. The State
Exchange must provide the results of the audit and identify any
material weakness or significant deficiency and any intended corrective
action. The burden associated with meeting this third party disclosure
requirement includes the burden for an
[[Page 37069]]
analyst level employee taking 3 hours (at $48.61 an hour) to pull data
into a report, the time and effort necessary for a health policy
analyst taking 2 hours (at $58.05 an hour) to prepare the report of the
audit results, and the time for senior management taking 1 hour (at
$77.00 an hour) to review and submit to HHS. We estimate a burden of 6
hours for each State Exchange at a cost of $338.93 and a total burden
of $6,100.74.
As stated in Sec. 155.1210(a), the State Exchange and its
contractors and subcontractors must maintain for 10 years, books,
records, documents, and other evidence of accounting procedures and
practices. Section 155.1210(b) specifics the records contain
information concerning management and operation of the State Exchange's
financial and other record keeping systems. The records must include
financial statements, including cash flow statements, and accounts
receivable and matters pertaining to the costs of operation.
Additionally, the records must contain any financial report filed with
other Federal programs or State authorities. Finally, the records must
contain data and records relating to the State Exchange's eligibility
verifications and determinations, enrollment transactions, appeals,
plan variation certifications, QHP contracting data, consumer outreach,
and Navigator grant oversight information. State Exchanges most likely
already have systems in place to store records. The burden associated
with this record keeping requirement includes the time and effort
necessary for a network administrator taking 16 hours (at $46.86 an
hour) to modify the State systems to maintain the information required
under Sec. 155.1210(b), for a health policy analyst taking 8 hours (at
$58.05 an hour) to enter the data under Sec. 155.1210(b) into the
State Exchange record retention system, and for senior management
taking 2 hours (at $73.41 an hour) to oversee record collection and
retention. We estimate that it will take 26 hours for the State
Exchange to comply with this requirement for a total of 468 hours. We
estimate one year burden for the State Exchanges at a cost of $1360.98
each and a total burden of $24,497.64.
G. ICRs Related to Change of Ownership (Sec. 156.330)
The QHP issuer must notify HHS of the change in a manner to be
specified by HHS and provide the legal name and tax identification
number of the new owner of the QHP and the effective date of the change
of ownership. The information must be submitted at least 30 days prior
to the effective date of the change of ownership. The burden associated
with the QHP issuer notifying HHS of a change of ownership includes a
health policy analyst taking 1 hour to draft a notice of change of
ownership and 1 one hour for a senior manager to review the notice and
transmit it electronically to HHS. We estimate that it will cost a QHP
issuer $128.43 to comply with this reporting requirement. At this time,
we cannot estimate the number of QHP issuers that will be reporting
changes of ownership. When it becomes clearer as to the potential
number that may report a change of ownership, we will update our
estimates to reflect the potential number.
H. ICRs Related to Oversight of Cost-Sharing Reductions and Advance
Payments of the Premium Tax Credit (Sec. 156.480)
In proposed Sec. 156.480(a), we propose to extend the standards
set forth in proposed Sec. 156.705 concerning maintenance of records
to a QHP issuer in the individual market on State Exchange with respect
to cost-sharing reductions and advance payments of the premium tax
credit. We believe that the burden of maintaining records related to
cost-sharing reductions and advance payments of the premium tax credit
for QHP issuers in an FFE is already accounted for in the burden for
proposed Sec. 156.705, described elsewhere in the Collection of
Information section of this proposed rule. On average, we estimate each
QHP issuer in a State Exchange will incur a cost of approximately
$2,232.54 to comply with this record maintenance requirement. This
reflects 46 hours of work by an insurance operations analyst (at $38.49
an hour) and 6 hours by a senior manager (at $77 an hour), for a total
of 52 burden hours. Based on our most recent estimates, we assume that
there will be approximately 791 QHP issuers in the individual market on
State Exchanges in 2014. Therefore, we estimate an aggregate burden of
41,132 hours and a total cost of approximately $1,765,939.10 as a
result of this requirement.
In Sec. 156.480(b), we propose that, for each benefit year, an
issuer that offers a QHP in the individual market through a State
Exchange or an FFE report to HHS annually, in a timeframe and manner
required by HHS, summary statistics with respect to cost-sharing
reductions and advance payments of the premium tax credit. This
proposed provision will permit HHS to obtain critical information
regarding cost-sharing reductions and advance payments of the premium
tax credit across a broad range of issuers to identify systemic
problems and errors, without requiring intrusive annual investigations.
We believe that QHP issuers will already have the information and data
systems in place necessary to generate a summary report, and that there
will only be a small additional burden as a result of this submission
requirement. We estimate that it will take an insurance operations
analyst 16 hours (at $38.49 an hour) annually and one senior manager 2
hours (at $77 an hour) to gather summary information and prepare a
report for submission to HHS. Therefore, we estimate an additional
burden of 21,600 hours and total costs of approximately $923,808 for
1,200 QHP issuers ($769.84, on average, for each QHP issuer) as a
result of this requirement.
I. ICRs Related to Oversight and Financial Integrity Standards for
Issuers of Qualified Health Plans in the Federally-Facilitated Exchange
(Sec. 156.705 to Sec. 156.715)
The burden estimates for the collections of information in Part
156, Subpart H, of the regulation reflect the assumption that an FFE
will include 409 QHP issuers. The labor categories and salary estimates
used to calculate the cost burden of these collections on issuers are
derived from the Bureau of Labor Statistics' (BLS) May 2012
Occupational Employment Statistics data for selected occupations. These
burden estimates generally reflect burden for the first year. We
anticipate that the burden in subsequent years will be significantly
lower because issuers will have met many of the requirements in the
regulation, including developing automated processes that will reduce
the total time, effort, and financial resources they need to expend in
order to respond to the collections in this subpart. For this reason,
these estimates should be considered an upper bound of burden for
issuers.
Section 156.705 provides that issuers offering QHPs in an FFE must
maintain all documents and records (whether paper, electronic or other
media), and other evidence of accounting procedures and practices
necessary for HHS to conduct activities necessary to safeguard the
financial and programmatic integrity of the FFEs. Such activities
include: (1) Periodic auditing of the QHP issuer's financial records,
including data related to the QHP issuer's ability to bear the risk of
potential financial losses; and (2) compliance reviews and other
monitoring of a QHP issuer's compliance with all Exchange standards
applicable to issuers offering QHPs in
[[Page 37070]]
the FFEs listed in part 156. These standards are limited to Exchange-
specific records as applicable to the FFEs, and are not enforced by
States as primary regulators. This standard mirrors the maintenance of
records standard applicable to State Exchanges and set forth in Sec.
155.1210. The burden includes utilizing existing technology and systems
to process and maintain this information. We estimate that it will take
100 hours at a cost of $4,420.60 for a QHP issuer to maintain these
records for a total of 30,000 hours and $1,326,180.00.
Section 156.705(d) provides that QHP issuers must make all records
described in paragraph (a) of this section available to HHS, the OIG,
the Comptroller General, or their designees, upon request. In
estimating the annual hour and cost burden on QHP issuers of making
these records available to such authorities upon request, we assumed
that such requests would normally be made in connection with a formal
audit or compliance review or a similar process. Our burden estimates
for this section address the hour and cost burden of making records
available to HHS, the OIG, the Comptroller General, or their designees,
for audit. Our estimates reflect our assumptions that about 47 QHP
issuers would be subject to a formal audit in a given year and that the
burden on issuers of making the records available would include the
time, effort, and associated cost of compiling the information,
reviewing it for completeness, submitting it to the auditor(s), and
participating in telephone or in-person interviews. We anticipate using
a risk-based approach to selection of the majority of QHP issuers for
compliance review so that burdens to the issuer community would
generally be linked to the QHP issuers' risk. We estimate it will take
90 hours at a cost of $4,221.20 for an issuer to make their records
available for an audit for a total of 9,000 hours and $422,120.00
across all QHP issuers subject to this requirement, which we estimate
at an upper end as 100 issuers.
Section 156.715 establishes the general standard that QHP issuers
are subject to compliance reviews. Our burden estimates for Sec.
156.715 address the estimated annual hour and cost burden on QHP
issuers of complying with the records disclosure requirements
associated with compliance reviews conducted by an FFE.
Section 156.715 provides standards for compliance reviews in the
FFEs, stating that QHP issuers offering QHPs in the FFEs may be subject
to compliance reviews. This section also describes the categories of
records and information issuers must make available to an FFE in
conducting such reviews.
Compliance reviews evaluate a QHP issuer's compliance with the
Affordable Care Act and applicable regulations. Compliance reviews will
target high-risk QHP issuers and not every issuer will be reviewed each
year. The results of compliance reviews will also provide insight into
trends across the compliance statuses of QHP issuers, enabling HHS to
prioritize areas of oversight and technical assistance.
We assume that HHS will conduct desk reviews of 31 QHP issuers each
year. For each QHP issuer desk review we estimate an average of 40
hours for administrative work to assemble the requested information,
19.5 hours to review the information for completeness, and 30 minutes
to submit the information to HHS. There will also be an additional 10
hours to spend on phone interviews conducted by the reviewer and 2
hours to spend speaking through processes with the reviewer. We
estimate it will take 72 hours at a cost of $2,877.40 for an issuer to
make information available to HHS for a desk review for a total of
2,232 hours and $89,199.40 across all issuers that may be subject to
this information collection requirement.
We assume that HHS will conduct onsite reviews of 16 QHP issuers
each year. For each onsite review we estimate it will take an average
of 40 hours for administrative work to assemble the requested
information, 19.5 hours to review the information for completeness and
30 minutes to submit the information to HHS in preparation for an
onsite review. An onsite review requires an additional 2 hours to
schedule the onsite activities with the compliance reviewer, 4 hours
for introductory meeting, 8 hours to tour reviewers onsite, 10 hours of
interview time, 2 hours to walk through processes with the reviewer,
and 4 hours for concluding meetings. This is a total of approximately
60 hours of preparation time and an additional 30 hours for onsite time
for each QHP. We estimate it will take 90 hours at a cost of $3,566.84
for an issuer to make information available to HHS for an onsite
review. We estimate that the burden for all respondents that may be
subject to this information collection will be 1,440 hours at a cost of
$57,069.44.
In cases in which HHS could potentially require clarification
around submitted information, HHS may need to contact QHP issuers
within 30 days of information submission. This would be the case for
approximately 20 issuers. We estimate it will take an issuer 2 hours at
a cost of $53.75 to respond to questions for a total of 40 hours and
$1,075.00.
J. ICRs Regarding Enforcement Remedies in Federally-Facilitated
Exchanges (Sec. 156.800 to Sec. 156.810)
Subpart I of Part 156 discusses the enforcement remedies in the
FFEs. Section 156.800 authorizes HHS to impose sanctions on QHP issuers
in an FFE that are not in compliance with Federal standards. These
sanctions may be in the form of a CMP, as set forth in Sec. 156.805;
or decertification of QHPs, as set forth in Sec. 156.810. The burden
estimates for the collections of information in this Part reflect our
assumption that there will be 409 QHP issuers and 12,000-18,000 QHPs in
all FFEs.
Section 156.805(a) sets forth the general process and bases for
imposing a CMP on issuers offering QHPs in an FFE. As explained in the
preamble to Subpart I, HHS intends to work collaboratively with QHP
issuers, where possible, especially during the first plan year, when
problems arising concerning compliance with applicable standards. CMPs
will be imposed only for serious issues of non-compliance. We expect to
provide technical assistance to issuers, as appropriate, to assist them
in maintaining compliance with the applicable standards. We also plan
to coordinate with States in our oversight and enforcement activities
to avoid inappropriately duplicative enforcement efforts. Consequently,
we anticipate that CMPs will be rare, especially in the first benefit
year. For purposes of calculating the estimated burden, we assume that
one issuer each year will be subject to a CMP and that the issuer will
request an appeal of the enforcement action. We seek comment on these
assumptions.
Section 156.810 sets forth the bases for the decertification of a
QHP in an FFE and the general process for decertification. As with
CMPs, HHS expects that decertification will be relatively infrequent,
and reserved for only serious instances of non-compliance with
applicable standards. Therefore, for purposes of this estimated burden,
we assume that only one QHP in an FFE will be decertified each year. We
assume that the issuer offering the decertified QHP will appeal the
decertification action. We solicit comments on these assumptions.
Because we anticipate that fewer than 10 issuers would be subject
to a decertification or CMP in a given year, we have not calculated a
burden estimate. If the number of issuers approaches 10, we will submit
a burden
[[Page 37071]]
estimate at that time. We solicit comments on this section and these
assumptions.
K. ICRs Regarding Administrative Review of QHP Issuer Sanctions in a
Federally-Facilitated Exchange (Sec. 156.901 to Sec. 156.963)
Subpart J of Part 156 sets forth the administrative process for
issuers subject to a CMP or decertification of a QHP offered by the
issuer to appeal the enforcement action. In this process, an ALJ
decides whether there is a basis for HHS to assess a CMP against the
issuer and whether the amount of an assessed penalty is reasonable, or
whether there is a basis for decertifying a QHP offered by the issuer,
as applicable. Section 156.905 (intended to parallel 45 CFR 150.405)
provides that a party has a right to a hearing before an ALJ if it
files a valid request for a hearing within 30 days after the date of
issuance of HHS's notice of proposed assessment decertification. An
issuer's request for a hearing must include the information listed in
Sec. 156.907.
The burden associated with this request includes the time and
effort needed by the issuer to create the written request and submit it
electronically to the appropriate entity. The associated costs are
labor costs for gathering the necessary background information and then
preparing and submitting the written statement. The burden estimates
for the collections of information in Part 156, Subpart J, of the
regulation reflect the assumption that there will be a total of 409 QHP
issuers in all FFEs.
We base our burden estimate on the assumptions that one issuer will
be subject to CMPs and that one issuer will have a QHP that it offers
in an FFE decertified. We assume that both issuers will choose to
exercise their right to a hearing and will submit a valid request for
hearing. The hours involved in preparing this request may vary; for the
purpose of this burden estimate we estimate an average of 24 hours will
be needed: 10 hours for the compliance officer to gather and assemble
necessary background materials and prepare the written request, 12
hours for an attorney to review the background materials and written
request and provide recommendations to the senior manager, and 2 hours
for the senior manager to discuss the attorney's recommendations and
submit the written request electronically. We estimate that it will
take 24 hours at a cost of $1,649.02 for an issuer to prepare and
submit a request for a hearing for a total of 48 hours and $3,298.04for
both issuers. This estimate includes any statement of good cause under
Sec. 156.805(e)(3), if applicable. We solicit comments on these
assumptions.
As stated in Sec. 156.905, an issuer has the right to a hearing
before an ALJ if the issuer files a request for a hearing that complies
with Sec. 156.907(a) within 30 days of the issuance of a notice of
proposed assessment or decertification from HHS under Sec. 156.805 or
Sec. 156.810. The request for a hearing must identify any factual or
legal bases for the assessment or decertification with which the issuer
disagrees. It must also describe with reasonable specificity the basis
for the disagreement, including any affirmative facts or legal
arguments on which the respondent is relying. The request must also
identify the relevant notice of assessment or decertification by date
and attach a copy of the notice.
An issuer's request for a hearing must include the information
listed in Sec. 156.907. The burden associated with this request
includes the time and effort needed by the issuer to create the written
request and submit it electronically to the appropriate entity. The
only associated costs are labor costs for gathering the necessary
background information and then preparing and submitting the written
request.
Because we only estimate that one issuer per year would appeal a
CMP and one issuer will have its QHP offered in an FFE decertified, we
do not include this burden estimate in our overall calculation of
burden for this proposed rule. We seek comment on this assumption.
L. ICRs Regarding Consumer Cases Related to Qualified Health Plans and
Qualified Health Plan Issuers (Sec. 156.1010)
In subpart K of part 156, we describe the information collection
requirements that pertain to the resolution of consumer cases related
to QHPs and QHP issuers. Section 156.1010(e) states that QHP issuers
must record a clear and concise narrative documenting the resolution of
a consumer case in the HHS-developed casework tracking system. The
burden associated with this requirement is the time and effort
necessary for a QHP issuer to gather the necessary information related
to the consumer complaint, draft the narrative, and enter the narrative
into the electronic HHS-developed case tracking system. For the purpose
of estimating burden, we estimate 1,200 issuers. We estimate that it
will take approximately 60 hours annually at a cost of $8,580.87 for
the time and effort to develop and submit the narrative to HHS for a
total of 72,000 hours and a cost of $10,297,044.00 for all respondents.
M. ICRs Related to Quality Standards (Sec. 156.1105)
In subpart L of part 156, we describe the information collection
and disclosure requirements that pertain to the approval of enrollee
satisfaction survey vendors. The burden estimate associated with these
disclosure requirements includes the time and effort required for
survey vendors to develop, compile, and submit the application
information and any documentation necessary to support oversight in the
form and manner required by HHS. HHS is developing a model enrollee
satisfaction survey vendor application that will include data elements
necessary for HHS review and approval. In the near future, HHS will
publish the model application and will solicit public comment. At that
time, and per the requirements outlined in the PRA, we will estimate
the burden on survey vendors for complying with this provision of the
regulation. We solicit comment on the burden for the application and
review process for these entities.
N. ICRs Related to Confirmation of Payment and Collection Reports
(Sec. 156.1210)
In Sec. 156.1210, we propose that, within 15 calendar days of the
date of a payment and collections report from HHS, the issuer must, in
a format specified by HHS, either confirm to HHS that the payment and
collections report accurately lists for the timeframe specified in the
report applicable payments owed by the issuer to HHS and the payments
owed to the issuer by HHS; or describe to HHS any inaccuracy it
identifies in the payment and collections report. We believe that
issuers will generally be able to perform this confirmation
automatically, and that there will only be a small additional burden as
a result of this requirement. We estimate that it will take an
insurance operations analyst 1 hour (at $38.49 an hour) monthly to make
the comparison and note any discrepancies to HHS (approximately $461.88
for each issuer annually). Based on our most recent estimates, we
believe that 2,400 issuers will be affected by this requirement,
resulting in aggregate burden of approximately $1,108,512.
O. ICRs Related to Enrollment Process for Qualified Individuals (Sec.
156.1230)
Proposed Sec. 156.1230(a)(1)(ii) would require issuers who pursue
the option to use their Web site to enroll qualified individuals into
QHPs directly, to provide information on available QHPs. The QHP
information required to be
[[Page 37072]]
posted on the Web site would include premium and cost-sharing
information, the summary of benefits and coverage, levels of coverage
(``metal levels'') for each QHP, results of the enrollee satisfaction
survey, quality ratings, medical loss ratio information, transparency
of coverage measures, and a provider directory. Under proposed Sec.
156.1230(a)(1)(i), an issuer would also be required to direct an
individual to complete an application with the Exchange and receive
eligibility determinations from the Exchange to allow for an accurate
plan selection process. Additionally, Sec. 156.1230(a)(1)(iv) would
require the issuer Web site to inform applicants about the availability
of other QHP products available through an Exchange and to display a
Web link to the appropriate Exchange Web site. Finally, an issuer would
submit enrollment information back to the Exchange.
The burden for this requirement would be for the issuer to develop
its own template and code and integrate it with the Exchange. After
this initial step, the burden on the issuer would be to maintain the
Internet Web site by populating the Web site with information collected
per information collection requirements in this rule and future
rulemaking by HHS. We do not have an estimate on the number of issuers
who will choose to utilize the direct to enrollment approach subject to
these third-party disclosure requirements. We estimate that it will
take 610 hours at a cost of $32,104.25 for an issuer to meet these
third-party disclosure requirements.
Proposed Sec. 156.1230(a)(2) would allow qualified individuals to
apply for an eligibility determination or redetermination for coverage
through the Exchange and insurance affordability programs, and select
QHPs with the assistance of an issuer customer service representative
if the issuer customer service representative complies with the terms
of an agreement between the issuer and the Exchange. The agreement
would ensure that an issuer customer service representative receives
training and provide additional standards governing the conduct of
issuer customer service representatives.
The burden for this requirement would include the time and effort
necessary to develop training materials for the customer service
representative and the time and effort necessary to amend the agreement
between the issuer and the Exchange if the Exchange implements this
provision.
The Exchange would be required to develop training materials for
issuer staff. We assume that the 18 State Exchanges will implement this
standard. However, we expect Exchanges would use training materials
that will either be developed by HHS for other types of assister
training, including agent/broker training or use their own training
materials that they have already developed for other assisters.
Therefore, we anticipate that the time and costs associated with
developing a training program for issuers will be minimal. We estimate
it will take a training specialist 10 hours at $26.64 an hour and a
training and development manager 5 hours at $64.43 an hour to develop
training materials for the customer service representative, for a total
time burden of 15 hours. The estimated cost burden for developing
training materials for issuer customer service representatives for each
Exchange is therefore $588.55 with a total cost of $10,593.90 across
all respondents if 18 State Exchanges undertake these activities.
As specified in Sec. 156.1230(a)(2), each Exchange would amend its
agreement with every issuer wanting its staff to assist consumers. We
assume that the 18 State Exchanges will implement this standard. We
estimate it will take a health policy analyst 20 hours at $49.35 an
hour and a senior manager 10 hours at $79.08 an hour to amend an
agreement with the issuer, for a total time burden of 30 hours. The
estimated burden for amending the agreements for each Exchange is
therefore 30 hours at a cost of $1,777.87 and a total cost of
$32,001.66.
If you comment on these information collection and recordkeeping
requirements, please do either of the following:
1. Submit your comments electronically as specified in the
ADDRESSES section of this proposed rule; or
2. Submit your comments to the Office of Information and Regulatory
Affairs, Office of Management and Budget, Attention: CMS Desk Officer,
[CMS-9957-P], Fax: (202) 395-6974; or Email: OIRA_submission@omb.eop.gov.
IV. Response to Comments
Because of the large number of public comments we normally receive
on Federal Register documents, we are not able to acknowledge or
respond to them individually. We will consider all comments we receive
by the date and time specified in the DATES section of this preamble,
and, when we proceed with a subsequent document, we will respond to the
comments in the preamble to that document.
V. Regulatory Impact Analysis
In accordance with the provisions of Executive Order 12866, this
rule was reviewed by the OMB.
A. Summary
As stated earlier in this preamble, this proposed rule sets
financial integrity and oversight standards with respect to Exchanges;
QHP issuers in an FFE; and States in regards to the operation of risk
adjustment and reinsurance. It also proposes additional standards for
special enrollment periods; survey vendors that may conduct enrollee
satisfaction surveys on behalf of QHP issuers in Exchanges; issuer
participation in an FFE; and States' operation of the SHOP. Finally, it
proposes additional standards for SHOPs, agents and brokers and
customer service representatives; privacy and security; geographic
rating areas; and guaranteed availability and renewability.
HHS has crafted this proposed rule to implement the protections
intended by Congress in an economically efficient manner. We have
examined the effects of this proposed rule as required by Executive
Order 12866 (58 FR 51735, September 1993, Regulatory Planning and
Review), the Regulatory Flexibility Act (RFA) (September 19, 1980, Pub.
L. 96-354), section 1102(b) of the Social Security Act, the Unfunded
Mandates Reform Act of 1995 (Pub. L. 104-4), Executive Order 13132 on
Federalism, and the Congressional Review Act (5 U.S.C. 804(2)). In
accordance with OMB Circular A-4, HHS has quantified the benefits and
costs where possible, and has also provided a qualitative discussion of
some of the benefits and costs that may stem from this proposed rule.
B. Executive Orders 13563 and 12866
Executive Order 12866 (58 FR 51735) directs agencies to assess all
costs and benefits of available regulatory alternatives and, if
regulation is necessary, to select regulatory approaches that maximize
net benefits (including potential economic, environmental, public
health and safety effects; distributive impacts; and equity). Executive
Order 13563 (76 FR 3821, January 21, 2011) is supplemental to and
reaffirms the principles, structures, and definitions governing
regulatory review as established in Executive Order 12866.
Section 3(f) of Executive Order 12866 defines a ``significant
regulatory action'' as an action that is likely to result in a proposed
rule--(1) Having an annual effect on the economy of $100 million
[[Page 37073]]
or more in any one year, or adversely and materially affecting a sector
of the economy, productivity, competition, jobs, the environment,
public health or safety, or State, local or tribal governments or
communities (also referred to as ``economically significant''); (2)
creating a serious inconsistency or otherwise interfering with an
action taken or planned by another agency; (3) materially altering the
budgetary impacts of entitlement grants, user fees, or loan programs or
the rights and obligations of recipients thereof; or (4) raising novel
legal or policy issues arising out of legal mandates, the President's
priorities, or the principles set forth in the Executive Order.
A regulatory impact analysis (RIA) must be prepared for major rules
with economically significant effects ($100 million or more in any 1
year), and a ``significant'' regulatory action is subject to review by
the OMB. OMB has designated this proposed rule as a ``significant
regulatory action.'' Even though it is not certain whether it would
have economic impacts of $100 million or more in any one year, HHS has
provided an assessment of the potential costs and benefits associated
with this proposed regulation.
1. Need for Regulatory Action
Starting in 2014, qualified individuals and qualified employers
will be able to use coverage provided by QHPs--private health insurance
that has been certified as meeting certain standards--through
Exchanges. A transitional reinsurance program and a permanent risk
adjustment program would be in place to ensure premium stability for
health insurance issuers as enrollment increases and issuers enroll
high-risk individuals. This proposed rule would establish general
oversight requirements for State-operated reinsurance and risk
adjustment programs; establish oversight of issuers inside and outside
of the Exchange when HHS operates risk adjustment or reinsurance on
behalf of a State; and establish oversight and monitoring of State
Exchanges, FFEs, SHOPs (both State Exchanges and FFEs) and issuers of
QHPs, specifically with respect to financial integrity, maintenance of
records, and privacy and security of PII. This proposed rule would also
restrict the use of funds for administrative expenses generated for
State Exchanges and State-operated reinsurance programs; propose
procedures for oversight of advance payments of the premium tax credit
and cost-sharing reductions; propose procedures to ensure the accuracy
of data collection, calculations, and submissions; allow a State to
establish and operate only the SHOP and establish standards for SHOPs;
establish requirements for customer service representatives and agents
and brokers who assist consumers; establish requirements for enrollee
satisfaction survey vendors; and propose additional standards for
special enrollment periods.
2. Summary of Impacts
In accordance with OMB Circular A-4, Table V.1 below depicts an
accounting statement summarizing HHS's assessment of the benefits and
costs associated with this regulatory action. The period covered by the
RIA is 2014-2017.
HHS anticipates that the provisions of this proposed rule will
ensure smooth operation of Exchanges, integrity of the reinsurance and
risk adjustment programs, safeguard the use of Federal funds, prevent
fraud and abuse, increase access to healthcare coverage and provide
consumer protections. Affected entities such as States, QHP issuers,
agents, and brokers would incur costs to maintain records, submit
reports to HHS and Exchanges, comply with privacy and security
standards for PII, provide records for compliance reviews, and to
comply with enforcement actions. In accordance with Executive Order
12866, HHS believes that the benefits of this regulatory action justify
the costs.
Table V.1--Accounting Table
----------------------------------------------------------------------------------------------------------------
----------------------------------------------------------------------------------------------------------------
Benefits:
----------------------------------------------------------------------------------------------------------------
Qualitative:
* Ensure integrity of reinsurance and risk adjustment programs, smooth functioning of State Exchanges and FFEs.
* Prevent fraud and abuse.
* Safeguard the use of Federal funds provided as cost-sharing reductions and advance payments of the premium tax
credit and provide value for taxpayers' dollars.
* Enable a State to focus on effective implementation of the SHOP by allowing it to operate a State-based SHOP
while the Exchange is operated as an FFE.
* Increased access to fair and unbiased customer assistance and information about coverage options for
consumers, enabling consumers to make informed decisions.
* Ensure privacy and security protections.
* Ensure prompt refund of any excess premium paid or any excess cost sharing.
----------------------------------------------------------------------------------------------------------------
Estimate..................... Year dollar Discount Period
rate covered
percent
----------------------------------------------------------------------------------------------------------------
Costs:
----------------------------------------------------------------------------------------------------------------
Annualized Monetized ($/year)............. $23.3 million \1\............ 2013 7 2014-2017
$23.2 million \2\............ 2013 3 2014-2017
----------------------------------------------------------------------------------------------------------------
Annual costs related to financial oversight, maintenance of records and reporting requirements for State
Exchanges and State-operated reinsurance and risk-adjustment programs; record retention requirements for
contributors and recipients for reinsurance programs; audit costs for State programs--Exchanges, risk
adjustment and reinsurance; costs for QHP issuers related to reporting requirements, record maintenance,
audits, Web site standards, training for customer service representatives, and documentation of resolution of
consumer cases; costs to agents and brokers and QHPs related to enforcement actions..
----------------------------------------------------------------------------------------------------------------
[[Page 37074]]
Qualitative:
* Costs to Exchanges and non-Exchange entities associated with FFEs and agents and brokers assisting consumers,
to comply with privacy and security standards.
* Costs incurred by enrollee satisfaction survey vendors related to annual application and meeting HHS
standards.
* Possible reduction in costs for SHOPs due to elimination of the requirement to accept paper applications and
applications by telephone.
* Cost incurred by SHOPs to develop uniform standards for the termination of a group's coverage in a QHP and to
keep sufficient records of terminations and reasonable accommodations.
----------------------------------------------------------------------------------------------------------------
Note: 1. Approximately $20.6 million of these costs are estimated in section III and $2.7 million are estimated
below in the RIA, including the audit costs in Table V.2. 2. Approximately $20.5 million of these costs are
estimated in section III and $2.7 million are estimated below in the RIA, including the audit costs in Table
V.2.
3. Anticipated Benefits and Costs
Starting in 2014, individuals and small businesses will be able to
use health insurance coverage purchased through Exchanges. The
Congressional Budget Office estimated that the number of people
enrolled in coverage through Exchanges will increase from 7 million in
2014 to 26 million in 2017.\37\ Exchanges will create competitive
marketplaces where qualified individuals and qualified employers can
shop for insurance coverage, and are expected to reduce the unit price
of quality insurance for the average consumer by pooling risk and
promoting competition.
---------------------------------------------------------------------------
\37\ ``CBO's February 2013 Estimate of the Effects of the
Affordable Care Act on Health Insurance,'' Congressional Budget
Office, February 2013.
---------------------------------------------------------------------------
The proposed rule would specify the standards and processes for the
oversight and accountability of entities responsible for operations of
the Exchanges and reinsurance and risk adjustment programs. Affected
entities would include States, in their roles of establishing and
operating Exchanges and SHOPs and administering reinsurance and risk
adjustment programs; FFEs and FF-SHOPs; issuers of QHPs; health
insurance issuers offering coverage both inside and outside of the
Exchange when HHS operates risk adjustment or reinsurance on behalf of
the State; contractors or other subsidiaries of these organizations;
and insurance agents and brokers.
a. Benefits
This proposed rule would implement oversight, record maintenance
and enforcement provisions that would ensure integrity of the
reinsurance and risk adjustment programs, State Exchanges and FFE
functions; prevent fraud and abuse; and establish consumer protection
measures.
The proposed rule includes provisions that would create a system of
oversight, financial integrity and program integrity in the Exchanges
and the risk adjustment, reinsurance and risk corridors programs. The
proposed oversight requirements for HHS-operated and State-operated
reinsurance and risk-adjustment programs would ensure that these
programs are effective and efficient, and use program funds
appropriately. The proposed standards would also ensure that Federal
funds are used appropriately in the administration of State Exchange
activities. By monitoring financial reports and overseeing State
Exchange activities, HHS would safeguard the use of Federal funds
provided as cost-sharing reductions and advance payments of the premium
tax credit and provide value for taxpayers' dollars.
The proposed rule would also allow a State to operate a State-based
SHOP while the Exchange is operated as an FFE. This would enable the
State to focus on effective implementation of the SHOP and gain
experience that would help prepare it to operate both a SHOP and State
Exchange in the future. Each SHOP would also be required to develop
uniform standards for the termination of coverage in a QHP, starting in
2015, unless the SHOP offers employee choice before then. Standardizing
the timing, form, and manner of a group's termination in the SHOP would
ensure that an employer offering coverage through multiple health
insurance issuers (under the SHOP `employee choice'' model) will be
subject to uniform, predictable termination policies.
The proposed rule would implement consumer protections that would
ensure privacy and security of PII, increased access to customer
assistance, information about coverage options and allow consumers to
make informed coverage decisions. Permitting issuer customer service
representatives to assist individuals with applying for eligibility
determinations or redeterminations for coverage through the Exchange
would increase assistance available to consumers, while the training
and compliance standards would ensure that such assistance is fair and
unbiased. The proposed rule would establish requirements for customer
service representatives and agents and brokers who assist consumers,
requiring them to comply with registration and training requirements.
The proposed rule would also establish standards under which HHS could
terminate its relationship with agents and brokers in the FFE, to help
ensure that agents and brokers continue to meet Exchange standards. In
addition, the requirement for QHP issuers conducting direct enrollment
to provide standardized comparative information on their Web-sites
would ensure that consumers can readily differentiate and compare plan
choices leading to informed decisions. Consumers without bank accounts
or credits cards would also have a variety of payment options.
The provisions of this rule would also ensure that enrollees are
promptly refunded any excess premium paid or any excess cost sharing
they should not have paid. Individuals harmed by misconduct on the part
of non-Exchange entities would also be eligible for a special
enrollment period. A QHP would also be required to promptly reassign an
enrollee improperly assigned to a plan variation (or standard plan
without cost-sharing reductions), minimizing consumer harm.
The annual application requirement for enrollee satisfaction survey
vendors would allow HHS to ensure that these entities participate in
relevant training and post-training certification, follow protocols
related to quality assurance and the use of HHS data, and adhere to
privacy and security standards when handling data. This would help to
ensure that ultimately the enrollee satisfaction survey data are
reliable and valid and that the information is sufficiently protected.
The proposed enforcement actions such as CMPs and decertification
of a QHP, termination of agent and broker agreement for participation
in the
[[Page 37075]]
individual market of an FFE, would improve program performance, reduce
non-compliance by QHPs and agents and brokers, and decrease the
likelihood of errors and adverse outcomes for consumers.
b. Costs
Affected entities would incur costs to comply with the provisions
of this proposed rule. Costs related to information collection
requirements subject to PRA are discussed in detail in section III and
include administrative costs incurred by States, issuers and agents and
brokers related to record maintenance and reporting requirements;
oversight and financial integrity standards; enforcement actions;
enrollment process for qualified individuals; and training requirements
. In this section we discuss other costs related to the proposed
provisions.
States operating reinsurance programs would be required to maintain
records. The costs related to this provision are generally accounted
for in the RIA of the Payment Notice and are not included in this RIA.
States operating reinsurance would be required to keep an accurate
accounting for each benefit year, of all reinsurance funds received
from HHS for reinsurance payments and for administrative expenses, as
well as all claims for reinsurance payments from issuers of
reinsurance-eligible plans, all payments made to those issuers, and all
administrative expenses incurred. State-operated reinsurance programs
will already have a system in place to track reinsurance funds received
from HHS, claims from and payments to issuers, and expenses incurred to
operate the reinsurance program. The cost for States operating
reinsurance to maintain any records associated with the reinsurance
program was previously estimated in the RIA of the Payment Notice, and
we believe that the administrative costs associated with this
requirement are generally accounted for in that estimate.
State-operated reinsurance programs would submit to HHS annually
and make public a summary report of their program operations, which
would include a summary of the accounting kept pursuant to proposed
Sec. 153.260(a). We assume that the data already collected and used to
report to issuers and HHS would be the same used to prepare this annual
report. Therefore, the cost associated with this requirement is the
incremental time and cost to prepare an annual report to HHS and the
public on program operations. We estimate it will take insurance
management analysts 16 hours (at $51 per hour) and a senior manager 2
hours (at $77 per hour) to prepare the report. Therefore, we estimate
it would cost each State that operates reinsurance approximately $970
to submit this report to HHS. Because two States will operate
reinsurance in the 2014 benefit year, we estimate that an aggregate
cost of $1,940 as a result of this requirement in the first year. We
note that HHS will provide a portion of the reinsurance contributions
it collects to a State operating reinsurance for the purposes of
supporting State administration of reinsurance payments, which would
likely cover the costs associated with this requirement.
A State operating a risk adjustment program would be directed to
maintain documents and records relating to the risk adjustment program,
whether paper, electronic or in other media, for each benefit year for
at least 10 years, and make them available upon request from HHS, the
OIG, the Comptroller General, or their designees, to any such entity.
The documents and records must be sufficient to enable the evaluation
of a State-operated risk adjustment program's compliance with Federal
standards. States would also be directed to ensure that their
contractors, subcontractors, and agents maintain and make those
documents and records available upon request from HHS, the OIG, the
Comptroller General, or their designees. States operating risk
adjustment programs should already have the documents and records of
accounting procedures needed for periodic audits. Therefore we estimate
that the additional burden associated with this requirement is the
time, effort, and additional labor cost required to maintain and
archive the records. We assume that it would take an insurance
operations analyst 10 hours (at $38.49 an hour) to maintain records.
Therefore, the average cost for each state would be approximately $385.
Because one State will operate risk adjustment for the 2014 benefit
year, we estimate an aggregate cost of $385 to comply with this
requirement in the first year.
A State operating a risk adjustment program would be required to
submit by December 31st of the first benefit year an interim summary
report on the first 10 months of risk adjustment activities, in order
to obtain re-certification for the third benefit year. The cost of
complying with this provision is the time and effort to write the
interim report and submit it to HHS. We estimate it would take an
insurance management analyst 16 hours (at $51 per hour) and a senior
manager 2 hours (at $77 per hour) to prepare the interim summary
report. Therefore, we estimate it would cost each state operating risk
adjustment $970 to submit this report to HHS (an aggregate cost of $970
in the 2014 benefit year). A State operating a risk adjustment program
would submit and make public, a summary report of its risk adjustment
program operations for each benefit year after the first benefit year
for which the State operates the program. We propose that this summary
report include the results of a programmatic and financial audit for
each benefit year conducted by an independent qualified auditing
entity. We believe the cost of this annual report would be the same as
the cost of producing the interim first-year report above, except for
the cost of audits required in subsequent years, and these annual audit
costs are estimated later in this RIA. These estimates also include the
administrative costs related to the requirement for State-operated risk
adjustment programs to keep accurate accounting for each benefit year
of all receipts and expenditures related to risk adjustment payments,
charges, and administration of the program.
States would face a variety of costs due to the monitoring
requirements in this proposed rule. Conducting oversight of the
Exchanges, State-operated risk adjustment and reinsurance programs,
administration of the advance payments of the premium tax credit or
cost-sharing reductions, and other activities require independent
external audits, investigations, rectification of errors, and the
development of summary reports which would be submitted to HHS. The
estimated total audit costs for State reinsurance, risk adjustment and
Exchange programs are presented in Table V.2. It is expected that 18
States will establish State Exchanges in 2014 and we assume that number
will stay the same during the period covered by the RIA. We also assume
that each State would conduct a financial audit and a programmatic
audit annually, which would encompass reinsurance and risk adjustment
programs. Financial audit costs are estimated based on prices among the
big four audit firms for governmental entities of similar size to those
of the anticipated State Exchanges for a financial statement audit and
Yellowbook Report (report on internal controls) that reflects different
levels of cost for small, medium, and large entities, for entities with
low, medium, and high risk. Programmatic audit estimates reflect the
experience of Federal entitlement programs similar to Medicaid audited
under an A-133 program compliance supplement, and vary only by the size
of the program (small medium and large). For example, a small Exchange
judged to have low
[[Page 37076]]
risk would have a combined financial and programmatic audit cost of
$90,000; a large Exchange, in a State that also administers a
reinsurance program (which implies a more complex, high risk operation)
would have combined financial and programmatic audit costs of $360,000.
Audit prices are based on 2012 pricing and reflect an annual increase
of 3 percent each year, based on recent industry experience.
Table V.2.--Estimated Audit Costs for State Programs: Exchanges, Risk Adjustment and Reinsurance
----------------------------------------------------------------------------------------------------------------
2014 2015 2016 2017
----------------------------------------------------------------------------------------------------------------
Mid-range point estimate........................ $2,572,000 $2,649,160 $2,728,635 $2,810,494
Range........................................... $2,320,000-$2, $2,389,600-$2, $2,461,288-$2, $2,535,127-$3,
820,000 904,600 991,738 081,490
----------------------------------------------------------------------------------------------------------------
Exchanges and non-Exchange entities associated with FFEs and agents
and brokers permitted by States to assist consumers would incur costs
to comply with the privacy and security standards for PII, informing
individuals about related policies, procedures and technologies
developing policies and procedures, executing training, posting privacy
policies on Web sites and providing reports of any violations to HHS.
Issuers would also incur expenses to provide privacy and security
training to their customer service representatives. It is anticipated
that Exchanges and issuers' IT systems will need minimal changes to
comply with these provisions.
The proposed rule would require the enrollee satisfaction survey
vendors engaged by issuers to meet HHS standards. Survey vendors would
apply for approval annually in order to administer enrollee
satisfaction surveys to QHP enrollees on behalf of a QHP issuer.
Vendors would incur costs to submit the annual applications to HHS and
to meet the requirements necessary to meet approval.
The proposed rule would also amend existing requirements so that
SHOPs would no longer be required to accept paper applications and
applications by telephone. This could reduce the cost of operating a
SHOP. A SHOP would also incur costs to develop uniform standards for
the termination of a group's coverage in a QHP and to keep sufficient
records of terminations and reasonable accommodations.
C. Regulatory Alternatives
Under the Executive Order, HHS is required to consider alternatives
to issuing rules and alternative regulatory approaches. HHS considered
the following alternatives while developing this proposed rule:
1. Increased Uniformity of FFE and State Exchange Standards
Under this alternative, HHS would require a single standard for
Exchanges across the nation regardless of whether the Exchange was
established and operated by a State or was Federally-facilitated. The
proposed rule would defer to State discretion in oversight of QHPs.
This element of State flexibility would be precluded if greater
uniformity in operations and standards were to be imposed. Greater
standardization would have an uncertain impact on Federal oversight
activities but would likely impose greater costs of compliance on State
operations and issuers of QHPs in those States.
2. Placing More Responsibility on the States to Oversee Standards,
Including Those for FFES
Under this alternative, HHS would place more responsibility on
States and State Exchanges to interpret and meet statutory
requirements. This approach could create a number of problems. If every
State developed its own monitoring standards, oversight of different
Exchanges could be quite uneven, as States across the country have
varying levels of fiscal resources with which to monitor activities.
States currently have certain levels of responsibility under the
Affordable Care Act to oversee standards for Exchanges, QHPs, and other
programs. State Exchanges also have latitude in the number, type, and
standardization of plans they certify and accept into the Exchange as
QHPs.
There are a number of provisions in the Affordable Care Act that
devolve responsibilities from the Federal government to States.
Increased devolution could decrease the need of Federal oversight,
while granting States increased flexibility to regulate Exchanges
within their borders. There would also be a decrease in oversight-
related activities for the Federal government such as HHS
investigations or audits. On the other hand, States would likely face
an increase in their own oversight activities and related costs.
HHS believes that the options adopted for this proposed rule strike
the best balance of ensuring efficient operation and integrity of
Exchanges and the reinsurance and risk adjustment programs while
providing flexibility to the States and minimizing the burden on
States.
D. Regulatory Flexibility Act
The Regulatory Flexibility Act (RFA) requires agencies that issue a
rule to analyze options for regulatory relief of small businesses if a
rule has a significant impact on a substantial number of small
entities. The RFA generally defines a ``small entity'' as--(1) A
proprietary firm meeting the size standards of the Small Business
Administration (SBA), (2) a nonprofit organization that is not dominant
in its field, or (3) a small government jurisdiction with a population
of less than 50,000 (States and individuals are not included in the
definition of ``small entity''). HHS uses as its measure of significant
economic impact on a substantial number of small entities a change in
revenues of more than 3 percent to 5 percent. HHS anticipates that the
proposed rule would not have a significant economic impact on a
substantial number of small entities.
As discussed in the Web Portal final rule published on May 5, 2010
(75 FR 24481), HHS examined the health insurance industry in depth in
the RIA we prepared for the proposed rule on establishment of the
Medicare Advantage program (69 FR 46866, August 3, 2004). In that
analysis it was determined that there were few, if any, insurance firms
underwriting comprehensive health insurance policies (in contrast, for
example, to travel insurance policies or dental discount policies) that
fell below the size thresholds for ``small'' business established by
the SBA (currently $7 million in annual receipts for health
issuers).\38\ In addition, HHS used the data from Medical Loss Ratio
(MLR) annual report submissions for the 2011 MLR reporting year to
develop an estimate of the number of small entities
[[Page 37077]]
that offer comprehensive major medical coverage. These estimates may
overstate the actual number of small health insurance issuers that
would be affected, since they do not include receipts from these
companies' other lines of business. It is estimated that out of 466
issuers nationwide, there are 22 small entities each with less than $7
million in earned premiums that offer individual or group health
insurance coverage and would therefore be subject to the requirements
of this proposed regulation. Thirty six percent of these small issuers
belong to larger holding groups, and many if not all of these small
issuers are likely to have other lines of business that would result in
their revenues exceeding $7 million. It is uncertain how many of these
466 issuers would offer QHPs and be subject to the provisions of this
proposed rule. Based on this analysis, however, HHS expects that this
proposed rule will not affect small issuers.
---------------------------------------------------------------------------
\38\ ``Table of Size Standards Matched To North American
Industry Classification System Codes,'' effective January 7, 2013,
U.S. Small Business Administration, available at https://www.sba.gov.
---------------------------------------------------------------------------
Some of the agents and brokers affected by the provisions of this
proposed rule may be small entities and would incur costs to comply
with the provisions of this proposed rule. The size threshold for
``small'' business established by the SBA is currently $7 million in
annual receipts for insurance agencies and brokerages. We anticipate
that agents and brokers will continue to be an important source of
assistance for many consumers seeking access to health insurance
coverage through an Exchange, including those who own and/or are
employed by small businesses. Due to lack of data, HHS is unable to
estimate how many agents and brokers permitted by States to assist
consumers would be small entities. We invite comments on this issue.
E. Unfunded Mandates Reform Act
Section 202 of the Unfunded Mandates Reform Act (UMRA) of 1995
requires that agencies assess anticipated costs and benefits before
issuing any proposed rule that includes a Federal mandate that could
result in expenditure in any one year by State, local or tribal
governments, in the aggregate, or by the private sector, of $100
million in 1995 dollars, updated annually for inflation. In 2013, that
threshold level is approximately $141 million.
UMRA does not address the total cost of a proposed rule. Rather, it
focuses on certain categories of cost, mainly those ``Federal mandate''
costs resulting from--(1) imposing enforceable duties on State, local,
or tribal governments, or on the private sector; or (2) increasing the
stringency of conditions in, or decreasing the funding of, State,
local, or tribal governments under entitlement programs.
The proposed rule would direct States to undertake oversight
activities for State Exchanges, State-operated reinsurance and risk
adjustment programs. The costs related to oversight activities,
recordkeeping, reporting and audits are estimated to be approximately
$2.8 million in 2014. There are no mandates on local or tribal
governments. The private sector, for example, QHP issuers and agents
and brokers, would incur costs to comply with the record maintenance
and reporting requirements set forth in this proposed rule. The related
costs are estimated to be approximately $21.8 million in 2014. However,
consistent with policy embodied in UMRA, this proposed rule has been
designed to be a low-burden alternative for State, local and tribal
governments, and the private sector while achieving the objectives of
the Affordable Care Act.
F. Federalism
Executive Order 13132 establishes certain requirements that an
agency must meet when it promulgates a proposed rule that imposes
substantial direct requirement costs on State and local governments,
preempts State law, or otherwise has Federalism implications.
States are the primary regulators of health insurance coverage.
States will continue to apply State laws regarding health insurance
coverage. However, if any State law or requirement prevents the
application of a Federal standard, then that particular State law or
requirement would be preempted. State requirements that are more
stringent than the Federal requirements would be not be preempted by
this proposed rule. Accordingly, States have significant latitude to
impose requirements with respect to health insurance coverage that are
more restrictive than the Federal law.
States would continue to license, monitor and regulate all agents
and brokers, both inside and outside of Exchanges. All State laws
related to agents and brokers, including State laws related to
appointments, contractual relationships with issuers, and licensing and
marketing requirements, would continue to apply. Under the proposed
rule, States would have the option to operate only a State-based SHOP
while the Exchange is operated as an FFE. The proposed rule would also
provide additional flexibility to States with respect to the operation
of a SHOP-specific Navigator program when the State operates only a
SHOP Exchange. The State Exchange oversight program builds on State
oversight efforts, where possible, by coordinating with State
authorities to address compliance issues and concerns. HHS would
coordinate enforcement actions for QHP issuers with State efforts in
order to streamline the oversight of QHP issuers by States and to avoid
inappropriate duplication of enforcement actions. Because QHPs are one
of several commercial market insurance products operating in State
markets, HHS would not seek to inappropriately duplicate or interfere
with the traditional regulatory roles played by the State DOIs. HHS
would generally confine its QHP oversight to Exchange-specific
requirements and attributes. HHS would also seek to work
collaboratively with State DOIs on topics of mutual concern, in the
interest of efficiently deploying oversight resources and avoiding
needlessly duplicative regulatory roles. HHS may consider the
regulatory action taken by a State against a QHP issuer as a factor in
determining whether to decertify a QHP. As mentioned earlier in the
preamble, HHS recognizes that States play an important role in handling
consumer cases related to health insurance and HHS anticipates that
States will continue to assist consumers with these grievances and
complaints. QHP issuers are expected to comply with standards
established by State law and regulation for cases forwarded to an
issuer by a State in which it offers QHPs.
The requirements specified in this proposed rule would impose
direct costs on State and local governments and we seek comments on how
to minimize those costs. State Exchanges and State-operated reinsurance
and risk-adjustment programs would be required to undertake oversight,
record maintenance and reporting activities.
In compliance with the requirement of Executive Order 13132 that
agencies examine closely any policies that may have Federalism
implications or limit the policymaking discretion of the States, HHS
has engaged in efforts to consult with and work cooperatively with
affected States. Throughout the process of developing this proposed
rule, HHS has attempted to balance the States' interests in regulating
health insurance issuers, and the Congress' intent to provide uniform
protections to consumers in every State. By doing so, it is HHS' view
that it has complied with the requirements of Executive Order 13132.
Under the requirements set forth in section 8(a) of Executive Order
13132, and by the signatures affixed to this rule, HHS certifies that
the CMS Center for Consumer Information and Insurance Oversight
[[Page 37078]]
has complied with the requirements of Executive Order 13132 for the
attached proposed rule in a meaningful and timely manner.
G. Congressional Review Act
This proposed rule is subject to the Congressional Review Act
provisions of the Small Business Regulatory Enforcement Fairness Act of
1996 (5 U.S.C. 801 et seq.), which specifies that before a rule can
take effect, the Federal agency promulgating the rule shall submit to
each House of the Congress and to the Comptroller General a report
containing a copy of the rule along with other specified information,
and has been transmitted to the Congress and the Comptroller General
for review.
List of Subjects
45 CFR Part 144
Health care, Health insurance, Reporting and recordkeeping
requirements.
45 CFR Part 147
Health care, Health insurance, Reporting and recordkeeping
requirements, and State regulation of health insurance.
45 CFR Part 153
Administrative practice and procedure, Adverse selection, Health
care, Health insurance, Health records, Organization and functions
(Government agencies), Premium stabilization, Reporting and
recordkeeping requirements, Reinsurance, Risk adjustment, Risk
corridors, Risk mitigation, State and local governments.
45 CFR Part 155
Administrative practice and procedure, Health care access, Health
insurance, Reporting and recordkeeping requirements, State and local
governments, Cost-sharing reductions, Advance payments of premium tax
credit, Administration and calculation of advance payments of the
premium tax credit, Plan variations, Actuarial value.
45 CFR Part 156
Administrative practice and procedure, Advertising, Advisory
Committees, Brokers, Conflict of interest, Consumer protection, Grant
programs-health, Grants administration, Health care, Health insurance,
Health maintenance organization (HMO), Health records, Hospitals,
American Indian/Alaska Natives, Individuals with disabilities, Loan
programs-health, Organization and functions (Government agencies),
Medicaid, Public assistance programs, Reporting and recordkeeping
requirements, State and local governments, Sunshine Act, Technical
assistance, Women, and Youth.
For the reasons set forth in the preamble, the Department of Health
and Human Services proposes to amend 45 CFR parts 144, 147, 153, 155,
and 156 as set forth below:
PART 144--REQUIREMENTS RELATING TO HEALTH INSURANCE COVERAGE
0
1. The authority citation for part 144 is revised to read as follows:
Authority: Secs. 2701 through 2763, 2791, and 2792 of the
Public Health Service Act (42 U.S.C. 300gg through 300gg-63, 300gg-
91, and 300gg-92).
0
2. Section 144.102 is amended by revising the second sentence of
paragraph (c) to read as follows:
Sec. 144.102 Scope and applicability.
* * * * *
(c) * * * If the coverage is offered to an association member other
than in connection with a group health plan, the coverage is considered
individual health insurance coverage for purposes of 45 CFR parts 144
through 148. * * *
* * * * *
0
3. Section 144.103 is amended by revising the definitions of ``Group
market,'' ``Individual market,'' ``Large employer,'' ``Policy year,''
and ``Small employer'' to read as follows:
Sec. 144.103 Definitions.
* * * * *
Group market means the market for health insurance coverage offered
in connection with a group health plan.
* * * * *
Individual market means the market for health insurance coverage
offered to individuals other than in connection with a group health
plan.
* * * * *
Large employer means, in connection with a group health plan with
respect to a calendar year and a plan year, an employer who employed an
average of at least 101 employees on business days during the preceding
calendar year and who employs at least 1 employee on the first day of
the plan year. In the case of plan years beginning before January 1,
2016, a State may elect to define large employer by substituting ``51
employees'' for ``101 employees.''
* * * * *
Policy year means, with respect to--
(1) A grandfathered health plan offered in the individual health
insurance market, the 12-month period that is designated as the policy
year in the policy documents of the individual health insurance
coverage. If there is no designation of a policy year in the policy
document (or no such policy document is available), then the policy
year is the deductible or limit year used under the coverage. If
deductibles or other limits are not imposed on a yearly basis, the
policy year is the calendar year.
(2) A non-grandfathered health plan offered in the individual
health insurance market, or in a market in which the State has merged
the individual and small group risk pools, beginning January 1, 2015, a
calendar year for which health insurance coverage provides coverage for
health benefits.
* * * * *
Small employer means, in connection with a group health plan with
respect to a calendar year and a plan year, an employer who employed an
average of at least 1 but not more than 100 employees on business days
during the preceding calendar year and who employs at least 1 employee
on the first day of the plan year. In the case of plan years beginning
before January 1, 2016, a State may elect to define small employer by
substituting ``50 employees'' for ``100 employees.''
* * * * *
PART 147--HEALTH INSURANCE REFORM REQUIREMENTS FOR THE GROUP AND
INDIVIDUAL HEALTH INSURANCE MARKETS
0
4. The authority citation for part 147 continues to read as follows:
Authority: Secs. 2701 through 2763, 2791, and 2792 of the
Public Health Service Act (42 U.S.C. 300gg through 300gg-63, 300gg-
91, and 300gg-92), as amended.
0
5. Section 147.102 is amended by revising paragraph (a) introductory
text and adding a sentence at the end of paragraph (a)(1)(ii) to read
as follows:
Sec. 147.102 Fair health insurance premiums.
* * * * *
(a) In general. With respect to the premium rate charged by a
health insurance issuer in accordance with Sec. 156.80 of this
subchapter for health insurance coverage offered in the individual or
group market--
(1) * * *
(ii) * * * For purposes of this paragraph (a)(1), rating area is
determined in the small group market using the group policyholder's
principal business address and in the individual market using the
primary policyholder's address.
* * * * *
[[Page 37079]]
0
6. Section 147.104 is amended by revising paragraph (a), adding a
sentence at the end of paragraph (b)(2), and revising paragraphs
(c)(2), (d)(1)(ii), and (d)(2) introductory text to read as follows:
Sec. 147.104 Guaranteed availability of coverage.
(a) Guaranteed availability of coverage in the individual and group
market. Subject to paragraphs (b) through (d) of this section, a health
insurance issuer that offers health insurance coverage in the
individual, small group, or large group market in a State must offer to
any individual or employer in the State all products that are approved
for sale in the applicable market, and must accept any individual or
employer that applies for any of those products.
* * * * *
(b) * * *
(2) * * * As of January 1, 2015, health insurance coverage in the
individual market or in a market in which the State has merged the
individual and small group risk pools must be offered on a calendar
year basis.
* * * * *
(c) * * *
(2) An issuer that denies health insurance coverage to an
individual or an employer in any service area, in accordance with
paragraph (c)(1)(ii) of this section, may not offer coverage in the
individual, small group, or large group market, as applicable, for a
period of 180 calendar days after the date the coverage is denied. This
paragraph (c)(2) does not limit the issuer's ability to renew coverage
already in force or relieve the issuer of the responsibility to renew
that coverage.
* * * * *
(d) * * *
(1) * * *
(ii) It is applying this paragraph (d)(1) uniformly to all
employers or individual in the large group, small group, or individual
market, as applicable, in the State consistent with applicable State
law and without regard to the claims experience of those individuals,
employers and their employees (and their dependents) or any health
status-related factor relating to such individuals, employees, and
dependents.
(2) An issuer that denies health insurance coverage to any employer
or individual in a State under paragraph (d)(1) of this section may not
offer coverage in the large group, small group, or individual market,
as applicable, in the State before the later of either of the following
dates:
* * * * *
7. Section 147.106 is amended by revising paragraphs (a) and (d)(1)
introductory text to read as follows:
Sec. 147.106 Guaranteed renewability of coverage.
(a) General rule. Subject to paragraphs (b) through (d) of this
section, a health insurance issuer offering health insurance coverage
in the individual, small group, or large group market is required to
renew or continue in force the coverage at the option of the plan
sponsor or the individual, as applicable.
* * * * *
(d) * * *
(1) An issuer may elect to discontinue offering all health
insurance coverage in the individual, small group, or large group
market, or all markets, in a State in accordance with applicable State
law only if--
* * * * *
PART 153--STANDARDS RELATED TO REINSURANCE, RISK CORRIDORS AND RISK
ADJUSTMENT UNDER THE AFFORDBALE CARE ACT
8. The authority citation for part 153 continues to read as
follows:
Authority: Secs. 1321, 1341-1343, Pub. L. 111-148, 24 Stat. 119.
9. Section 153.20 is amended by revising the definition of
``contributing entity'' to read as follows:
Sec. 153.20 Definitions.
* * * * *
Contributing entity means a health insurance issuer or a self-
insured group health plan (including a group health plan that is
partially self-insured and partially insured, where the health
insurance coverage does not constitute major medical coverage). A self-
insured group health plan is responsible for the reinsurance
contributions, although it may elect to use a third party administrator
or administrative services-only contractor for transfer of the
reinsurance contributions.
* * * * *
10. Section 153.240 is amended by revising paragraph (c) to read as
follows:
Sec. 153.240 Disbursement of reinsurance payments.
* * * * *
(c) Maintenance of records. If a State establishes a reinsurance
program, the State must maintain documents and records relating to the
reinsurance program, whether paper, electronic, or in other media, for
each benefit year for at least 10 years, and make them available upon
request from HHS, the OIG, the Comptroller General, or their designees,
to any such entity. The documents and records must be sufficient to
enable the evaluation of the State-operated reinsurance program's
compliance with Federal standards. The State must also ensure that its
contractors, subcontractors, and agents similarly maintain and make
relevant documents and records available upon request from HHS, the
OIG, the Comptroller General, or their designees, to any such entity.
* * * * *
0
11. Section 153.260 is added to subpart C to read as follows:
Sec. 153.260 General oversight requirements for State-operated
reinsurance programs.
(a) Accounting requirements. A State that establishes a reinsurance
program must ensure that its applicable reinsurance entity keeps an
accounting for each benefit year of:
(1) All reinsurance contributions received from HHS for reinsurance
payments and for administrative expenses;
(2) All claims for reinsurance payments received from issuers of
reinsurance-eligible plans;
(3) All reinsurance payments made to issuers of reinsurance-
eligible plans; and
(4) All administrative expenses incurred for the reinsurance
program.
(b) State summary report. A State that establishes a reinsurance
program must submit to HHS and make public a report on its reinsurance
program operations for each benefit year in the manner and timeframe
specified by HHS. The report must summarize the accounting for the
benefit year kept pursuant to paragraph (a) of this section.
(c) Independent external audit. A State that establishes a
reinsurance program must engage an independent qualified auditing
entity to perform a financial and programmatic audit for each benefit
year of its State-operated reinsurance program in accordance with
generally accepted auditing standards. The State must:
(1) Provide to HHS the results of the audit, in the manner and
timeframe to be specified by HHS;
(2) Ensure that the audit addresses the prohibitions set forth in
Sec. 153.265;
(3) Identify to HHS any material weakness or significant deficiency
identified in the audit, and address in writing to HHS how the State
intends to correct any such material weakness or significant
deficiency; and
(4) Make public a summary of the results of the audit, including
any material weakness or significant deficiency, in the manner and
timeframe to be specified by HHS.
[[Page 37080]]
0
12. Section 153.265 is added to subpart C to read as follows:
Sec. 153.265 Restrictions on use of reinsurance funds for
administrative expenses.
A State that establishes a reinsurance program must ensure that its
applicable reinsurance entity does not use any funds for the support of
reinsurance operations, including any reinsurance contributions
provided under the national contribution rate for administrative
expenses, for any of the following purposes:
(a) Staff retreats;
(b) Promotional giveaways;
(c) Excessive executive compensation; or
(d) Promotion of Federal or State legislative or regulatory
modifications.
0
13. Section 153.310 is amended by adding paragraphs (c)(4), (d)(3) and
(d)(4), and by removing paragraph (f) to read as follows:
Sec. 153.310 Risk adjustment administration.
* * * * *
(c) * * *
(4) Maintenance of records. A State operating a risk adjustment
program must maintain documents and records relating to the risk
adjustment program, whether paper, electronic, or in other media, for
each benefit year for at least 10 years, and make them available upon
request from HHS, the OIG, the Comptroller General, or their designees,
to any such entity. The documents and records must be sufficient to
enable the evaluation of the State-operated risk adjustment program's
compliance with Federal standards. A State operating a risk adjustment
program must also ensure that its contractors, subcontractors, and
agents similarly maintain and make relevant documents and records
available upon request from HHS, the OIG, the Comptroller General, or
their designees, to any such entity.
(d) * * *
(3) In addition to requirements set forth in paragraphs (d)(1) and
(d)(2) of this section, to obtain recertification from HHS to operate
risk adjustment for a third benefit year, the State must, in the first
benefit year for which it operates risk adjustment, provide to HHS an
interim report, in a manner specified by HHS, including a detailed
summary of its risk adjustment activities in the first 10 months of the
benefit year, no later than December 31 of the applicable benefit year.
(4) To obtain recertification from HHS to operate risk adjustment
for each benefit year after the third benefit year, each State
operating a risk adjustment program must submit to HHS and make public
a detailed summary of its risk adjustment program operations for the
most recent benefit year for which risk adjustment operations have been
completed, in the manner and timeframe specified by HHS.
(i) The summary must include the results of a programmatic and
financial audit for each benefit year of the State-operated risk
adjustment program conducted by an independent qualified auditing
entity in accordance with generally accepted auditing standards.
(ii) The summary must identify to HHS any material weakness or
significant deficiency identified in the audit and address in writing
to HHS how the State intends to correct any such material weakness or
significant deficiency.
* * * * *
0
14. Section 153.365 is added to subpart D to read as follows:
Sec. 153.365 General oversight requirements for State-operated risk
adjustment programs.
If a State is operating a risk adjustment program, it must keep an
accounting of all receipts and expenditures related to risk adjustment
payments and charges and the administration of risk adjustment-related
functions and activities for each benefit year.
0
15. Section 153.400 is amended by revising paragraph (a)(1)(i) and by
adding paragraph (a)(3) to read as follows:
Sec. 153.400 Reinsurance contribution funds.
(a) * * *
(1) * * *
(i) Such plan or coverage is not major medical coverage, subject to
paragraph (a)(3) of this section.
* * * * *
(3) Notwithstanding paragraph (a)(1)(i) of this section, a health
insurance issuer must make reinsurance contributions for lives covered
by its group health insurance coverage even if the insurance coverage
does not constitute major medical coverage, if -
(i) The group health plan provides health insurance coverage for
those covered lives through more than one insurance policy that in
combination constitute major medical coverage but individually do not;
(ii) The lives are not covered by self-insured coverage of the
group health plan (except for self-insured coverage limited to excepted
benefits); and
(iii) The health insurance coverage under the policy offered by the
health insurance issuer represents a percentage of the total health
insurance coverage offered in combination by the group health plan
greater than the percentage offered under any of the other policies.
For purposes of this paragraph, the percentage of coverage offered
under various policies is determined based on the average premium per
covered life for those policies. In the event that the percentage of
coverage for two or more insurance policies is equal, the issuer of the
policy that provides the greatest portion of in-network hospitalization
benefits will be responsible for reinsurance contributions.
* * * * *
0
16. Section 153.405 is amended by adding paragraph (h) to read as
follows:
Sec. 153.405 Calculation of reinsurance contributions.
* * * * *
(h) Maintenance of records. A contributing entity must maintain
documents and records, whether paper, electronic, or in other media,
sufficient to substantiate the enrollment count submitted pursuant to
this section for a period of at least 10 years, and must make that
evidence available upon request from HHS, the OIG, the Comptroller
General, or their designees, to any such entity, for purposes of
verification, investigation, audit, or other review of reinsurance
contribution amounts.
0
17. Section 153.410 is amended by adding paragraph (c) to read as
follows:
Sec. 153.410 Requests for reinsurance payment.
* * * * *
(c) Maintenance of records. An issuer of a reinsurance-eligible
plan must maintain documents and records, whether paper, electronic, or
in other media, sufficient to substantiate the requests for reinsurance
payments made pursuant to this section for a period of at least 10
years, and must make that evidence available upon request from HHS, the
OIG, the Comptroller General, or their designees, or, in a State where
the State is operating reinsurance, the State or its designee, to any
such entity, for purposes of verification, investigation, audit, or
other review of reinsurance payment requests.
0
18. Section 153.620 is amended by revising paragraph (b) to read as
follows:
Sec. 153.620 Compliance with risk adjustment standards.
* * * * *
(b) Issuer records maintenance requirements. An issuer that offers
risk adjustment covered plans must also maintain documents and records,
whether paper, electronic, or in other media, sufficient to enable the
evaluation of the issuer's compliance
[[Page 37081]]
with applicable risk adjustment standards, and must make that evidence
available upon request to HHS, OIG, the Comptroller General, or their
designees, or in a State where the State is operating risk adjustment,
the State or its designee to any such entity.
0
19. Section 153.740 is added to subpart H to read as follows:
Sec. 153.740 Failure to comply with HHS-operated risk adjustment and
reinsurance data requirements.
(a) Enforcement actions. If an issuer of a risk adjustment covered
plan or reinsurance-eligible plan fails to establish a dedicated
distributed data environment in a manner and timeframe specified by
HHS; fails to provide HHS with access to the required data in such
environment in accordance with Sec. 153.700(a) or otherwise fails to
comply with the requirements of Sec. 153.700 through Sec. 153.730;
fails to adhere to the reinsurance data submission requirements set
forth in Sec. 153.420; or fails to adhere to the risk adjustment data
submission and data storage requirements set forth in Sec. 153.610
through Sec. 153.630, HHS may impose civil money penalties in
accordance with the procedures set forth in Sec. 156.805 of this
subchapter.
(b) Default risk adjustment charge. If an issuer of a risk
adjustment covered plan fails to establish a dedicated distributed data
environment or fails to provide HHS with access to the required data in
such environment in accordance with Sec. 153.610(a), Sec. 153.700,
Sec. 153.710, or Sec. 153.730 such that HHS cannot apply the
applicable Federally certified risk adjustment methodology to calculate
the risk adjustment payment transfer amount for the risk adjustment
covered plan in a timely fashion, HHS will assess a default risk
adjustment charge.
PART 155--EXCHANGE ESTABLISHMENT STANDARDS AND OTHER RELATED
STANDARDS UNDER THE AFFORDABLE CARE ACT
0
20. The authority citation for part 155 continues to read as follows:
Authority: Title I of the Affordable Care Act, sections 1301,
1302, 1303, 1304, 1311, 1312, 1313, 1321, 1322, 1331, 1334, 1402,
1411, 1412, 1413, Pub. L. 111-148, 124 Stat. 119 (42 U.S.C. 18021-
18024, 18031-18033, 18041-18042, 18051, 18054, 18071, and 18081-
18083.
0
21. Section 155.20 is amended by revising the definition for
``Exchange'' and by adding a definition for ``Issuer customer service
representative'' in alphabetical order to read as follows:
Sec. 155.20 Definitions.
* * * * *
Exchange means a governmental agency or non-profit entity that
meets the applicable standards of this part and makes QHPs available to
qualified individuals and/or qualified employers. Unless otherwise
identified, this term includes an Exchange serving the individual
market for qualified individuals and a SHOP serving the small group
market for qualified employers, regardless of whether the Exchange is
established and operated by a State (including a regional Exchange or
subsidiary Exchange) or by HHS.
* * * * *
Issuer customer service representative means an employee,
contractor, or agent of a QHP issuer that provides assistance to
applicants and enrollees, but is not licensed as an agent, broker, or
producer under State law.
* * * * *
0
22. Section 155.100 is amended by revising paragraph (a) to read as
follows:
Sec. 155.100 Establishment of a State Exchange.
(a) General requirements. Each State may elect to establish:
(1) An Exchange that facilitates the purchase of health insurance
coverage in QHPs in the individual market and that provides for the
establishment of a SHOP; or
(2) An Exchange that provides only for the establishment of a SHOP.
(3) Timing. For plan years beginning before January 1, 2015, only
States with a conditionally approved Exchange Blueprint may elect to
establish an Exchange that provides only for the establishment of a
SHOP, pursuant to the process in Sec. 155.105(e). For plan years
beginning on or after January 1, 2015, any State may elect to establish
an Exchange that provides only for the establishment of a SHOP,
pursuant to the process in Sec. 155.106(a).
* * * * *
0
23. Section 155.105 is amended by revising paragraphs (b)(1), (b)(2)
and (f) to read as follows:
Sec. 155.105 Approval of a State Exchange.
* * * * *
(b) * * *
(1) The Exchange is able to carry out the required functions of an
Exchange consistent with subparts C, D, E, H, and K of this part unless
the State is approved to operate only a SHOP by HHS pursuant to Sec.
155.100(a)(2), in which case the Exchange must perform the minimum
functions described in subpart H and all applicable provisions of other
subparts referenced therein;
(2) The Exchange is capable of carrying out the information
reporting requirements in accordance with section 36B of the Code,
unless the State is approved to operate only a SHOP by HHS pursuant to
Sec. 155.100(a)(2); and
* * * * *
(f) HHS operation of an Exchange. (1) If a State does not elect to
operate an Exchange under Sec. 155.100(a)(1) or an electing State does
not have an approved or conditionally approved Exchange pursuant to
Sec. 155.100(a)(1) by January 1, 2013, HHS must (directly or through
agreement with a not-for-profit entity) establish and operate such
Exchange within the State. In this case, the requirements in Sec.
155.120(c), Sec. 155.130 and subparts C, D, E, H, and K of this part
will apply.
(2) If an electing State has an approved or conditionally approved
Exchange pursuant to Sec. 155.100(a)(2) by January 1, 2013, HHS must
(directly or through agreement with a not-for-profit entity) establish
and operate an Exchange that facilitates the purchase of health
insurance coverage in QHPs in the individual market and operate such
Exchange within the State. In this case, the requirements in Sec.
155.120(c), Sec. 155.130 and subparts C, D, E, and K of this part will
apply to the Exchange operated by HHS.
0
24. Section 155.140 is amended by revising paragraph (c)(2)(ii) to read
as follows:
Sec. 155.140 Establishment of a regional Exchange or subsidiary
Exchange.
* * * * *
(c) * * *
(2) * * *
(ii) Encompass the same geographic area for its regional or
subsidiary SHOP and its regional or subsidiary Exchange except:
(A) In the case of a regional Exchange established pursuant to
Sec. 155.100(a)(2), the regional SHOP must encompass a geographic area
that matches the combined geographic areas of the individual market
Exchanges established to serve the same set of States establishing the
regional SHOP; and
(B) In the case of a subsidiary Exchange established pursuant to
Sec. 155.100(a)(2), the combined geographic area of all subsidiary
SHOPs established in the State must encompass the geographic area of
the individual market Exchange established to serve the State.
0
25. Section 155.200 is amended by revising paragraph (a) to read as
follows:
[[Page 37082]]
Sec. 155.200 Functions of an Exchange.
(a) General requirements. The Exchange must perform the minimum
functions described in this subpart and in subparts D, E, H, and K of
this part unless the State is approved to operate only a SHOP by HHS
pursuant to Sec. 155.100(a)(2), in which case the Exchange operated by
the State must perform the minimum functions described in subpart H and
all applicable provisions of other subparts referenced therein while
the Exchange operated by HHS must perform the minimum functions
described in this subpart and in subparts D, E, and K of this part.
* * * * *
0
26. Section 155.220 is amended by revising paragraph (c)(3)(i); by
adding paragraphs (c)(3)(vii), (c)(4), (d)(4), (f), (g), and (h); by
removing the word ``and'' from the end of paragraph (c)(3)(v); and by
removing the period at the end of paragraph (c)(3)(vi) and by adding
``; and'' in its place to read as follows:--
Sec. 155.220 Ability of States to permit agents and brokers to assist
qualified individuals, qualified employers, or qualified employees
enrolling in QHPs.
* * * * *
(c) * * *
(3) * * *
(i) Disclose and display all QHP information provided by the
Exchange or directly by QHP issuers consistent with the requirements of
Sec. 155.205(b)(1) and Sec. 155.205(c), and display a Web link to the
Exchange Web site;
* * * * *
(vii) For the Federally-facilitated Exchange, prominently display
language notifying consumers that the agent's or broker's Web site is
not the Exchange Web site, that the agent or broker's Web site might
not display all QHP data available on the Exchange Web site, that the
agent or broker has entered into an agreement with HHS pursuant to
paragraph (d) of this section, and that the agent or broker agrees to
conform to the standards specified in paragraph (c) and (d) of this
section.
(4) When an Internet Web site of an agent or broker is used to
complete the QHP selection in the Federally-facilitated Exchange, and
an agent or broker permits another agent or broker to access or use the
Web site pursuant to an arrangement, the agent or broker who makes the
Web site available must provide a list of agents and brokers who enter
into such an arrangement to the Federally-facilitated Exchange, and
must ensure that any agent or broker accessing or using the Web site
pursuant to the arrangement:
(i) Complies with paragraphs (c) and (d) of this section; and
(ii) Complies with the policies and procedures that the agent or
broker making the Web site available has established pursuant to
paragraph (d)(4) of this section.
(d) * * *
(4) In the Federally-facilitated Exchange, comply with the
following standards:
(i) Establish policies and procedures to ensure compliance with
paragraph (d)(3) of this section;
(ii) Train its employees, representatives, contractors and agents
with respect to the policies and procedures established pursuant to
paragraph (d)(3) of this section on a periodic basis; and
(iii) Ensure as a condition of contract or agreement that its
employees, representatives, contractors, agents comply with the
policies and procedures established pursuant to paragraph (d)(3) of
this section.
* * * * *
(f) Termination notice to HHS. (1) An agent or broker may terminate
its agreement with HHS by sending to HHS a written notice at least 30
days in advance of the date of intended termination.
(2) The notice must include the intended date of termination, but
if it does not specify a date of termination, or the date provided is
not acceptable to HHS, HHS may set a different termination date that
will be no less than 30 days from the date on the agent or broker's
notice of termination.
(3) When termination becomes effective, the agent or broker will
not be able to assist any individual through the Federally-facilitated
Exchange, but the agent or broker must continue to protect PII created,
collected, use or disclosed during the term of the agreement with the
Federally-facilitated Exchange.
(g) Standards for termination for cause from the Federally-
facilitated Exchange. (1) If, in HHS's determination, a specific
finding of noncompliance or pattern of noncompliance is sufficiently
severe, HHS may terminate an agent's or broker's agreement with the
Federally-facilitated Exchange for cause.
(2) An agent or broker may be determined noncompliant if HHS finds
that the agent or broker violated--
(i) Any standard specified under this section;
(ii) Any term or condition of its agreement with the Federally-
facilitated Exchange required under paragraph (d) of this section,
including but not limited to compliance with Federally-Facilitated
Exchange privacy and security standards;
(iii) Any State law applicable to agents or brokers, as required
under paragraph (e) of this section, including but not limited to State
laws related to confidentiality and conflicts of interest; or
(iv) Any Federal law applicable to agents or brokers.
(3) HHS will notify the agent or broker of the specific finding of
noncompliance or pattern of noncompliance, and after 30 days from the
date of the notice, may terminate the agreement for cause if the matter
is not resolved to the satisfaction of HHS.
(4) After the period in paragraph (f)(3) of this section has
elapsed, the agent or broker will no longer be registered with the
Federally-facilitated Exchange or able to transact data through a
secure connection with HHS.
(h) Request for reconsideration of termination for cause from the
Federally-facilitated Exchange. (1) Request for reconsideration. An
agent or broker whose agreement with the Federally-facilitated Exchange
has been terminated may request reconsideration of such action in the
manner and form established by HHS.
(2) Timeframe for request. The agent or broker must submit a
request for reconsideration to the HHS reconsideration entity within 30
calendar days of the date of the written notice from HHS.
(3) Notice of reconsideration decision. The HHS reconsideration
entity will provide the agent or broker with a written notice of the
reconsideration decision within 30 calendar days of the date it
receives the request for reconsideration. This decision will constitute
HHS's final determination.
0
27. Section 155.270 is amended by revising paragraph (a) to read as
follows:
Sec. 155.270 Use of standards and protocols for electronic
transactions.
(a) HIPAA administrative simplification. To the extent that the
Exchange performs electronic transactions with a covered entity, the
Exchange must use standards, implementation specifications, operating
rules, and code sets that are adopted by the Secretary in 45 CFR parts
160 and 162 or that are otherwise approved by HHS.
* * * * *
0
28. Section 155.280 is added to subpart C to read as follows:
Sec. 155.280 Oversight and monitoring of privacy and security
requirements.
(a) General. HHS will oversee and monitor the Federally-facilitated
[[Page 37083]]
Exchanges and non-Exchange entities associated with Federally-
facilitated Exchanges which are required to comply with the privacy and
security standards established and implemented by a Federally-
facilitated Exchange pursuant to Sec. 155.260 for compliance with
those standards. HHS will oversee and monitor State Exchanges for
compliance with the standards State Exchanges establish and implement
pursuant to Sec. 155.260. State Exchanges will oversee and monitor
non-Exchange entities associated with the State Exchanges for
compliance with the standards established and implemented by the State
Exchange pursuant to Sec. 155.260.
(b) Audits and investigations. HHS may conduct oversight activities
that include but are not limited to the following: audits,
investigations, inspections, and any reasonable activities necessary
for appropriate oversight of compliance with the Exchange privacy and
security standards. HHS may also pursue civil, criminal or
administrative proceedings or actions as determined necessary.
(c) Security and privacy incidents and breaches. (1) The following
definitions apply to privacy and security incidents and breaches:
(i) Incident means the act of violating an explicit or implied
security policy, which includes attempts (either failed or successful)
to gain unauthorized access to a system or its data, unwanted
disruption or denial of service, the unauthorized use of a system for
the processing or storage of data; and changes to system hardware,
firmware, or software characteristics without the owner's knowledge,
instruction, or consent.
(ii) Breach means the loss of control, compromise, unauthorized
disclosure, unauthorized acquisition, unauthorized access, or any
similar term referring to situations where persons other than
authorized users and for an other than authorized purpose have access
or potential access to personally identifiable information, whether
physical or electronic.
(2) Incident or breach management. The entity where an incident or
breach occurs is responsible for managing the incident or breach in
accordance with the entity's documented incident handling and breach
notification procedures.
(3) Reporting. Federally-facilitated Exchanges, non-Exchange
entities associated with the Federally-facilitated Exchange, and State
Exchanges must report all privacy and security incidents and breaches
to HHS within one (1) hour of discovering the incident or breach. A
non-Exchange entity associated with a State Exchange must report all
privacy and security incidents and breaches to the State Exchange with
which they are associated.
0
29. Section 155.310 is amended by adding and reserving paragraph (j)
and adding paragraph (k) to read as follows:
Sec. 155.310 Eligibility process.
* * * * *
(j) [Reserved]
(k) Incomplete application. If an application filer submits an
application that does not include sufficient information for the
Exchange to conduct an eligibility determination for enrollment in a
QHP through the Exchange or for insurance affordability programs, if
applicable, the Exchange must--
(1) Provide notice to the applicant indicating that information
necessary to complete an eligibility determination is missing,
specifying the missing information, and providing instructions on how
to provide the missing information; and
(2) Provide the applicant with a period of no less than 15 days and
no more than 90 days from the date on which the notice described in
paragraph (k)(1) of this section is sent to the applicant to provide
the information needed to complete the application to the Exchange.
(3) During the period described in paragraph (k)(2) of this
section, the Exchange must not proceed with an applicant's eligibility
determination or provide advance payments of the premium tax credit or
cost-sharing reductions, unless an application filer has provided
sufficient information to determine his or her eligibility for
enrollment in a QHP through the Exchange, in which case the Exchange
must make such a determination for enrollment in a QHP.
0
30. Section 155.320 is amended by revising the section heading; by
redesignating paragraphs (b)(1) and (b)(2) as paragraph (b)(1)(i) and
(b)(1)(ii), by revising newly designated paragraph (b)(1), and by
adding paragraph (b)(2) to read as follows:
Sec. 155.320 Verification of eligibility for minimum essential
coverage other than through an eligible employer-sponsored plan.
* * * * *
(b) * * *
(1)(i) The Exchange must verify whether an applicant is eligible
for minimum essential coverage other than through an eligible employer-
sponsored plan, Medicaid, CHIP, or the BHP, using information obtained
by transmitting identifying information specified by HHS to HHS for
verification purposes.
(ii) The Exchange must verify whether an applicant has already been
determined eligible for coverage through Medicaid, CHIP, or the BHP, if
a BHP is operating in the service area of the Exchange, within the
State or States in which the Exchange operates using information
obtained from the agencies administering such programs.
(2) Consistent with Sec. 164.512(k)(6)(i) of this subchapter, a
health plan that is a government program providing public benefits, is
expressly authorized to disclose protected health information, as that
term is defined at Sec. 160.103 of this subchapter, that relates to
eligibility for or enrollment in the health plan to HHS for
verification of applicant eligibility for minimum essential coverage as
part of the eligibility determination process for advance payments of
the premium tax credit or cost-sharing reductions.
* * * * *
0
31. Section 155.340 is amended by adding paragraph (h) to read as
follows:
Sec. 155.340 Administration of advance payments of the premium tax
credit and cost-sharing reductions.
* * * * *
(h) Failure to reduce enrollee's premiums to account for advance
payments of the premium tax credits. If the Exchange discovers that it
did not reduce an enrollee's premium by the amount of the advance
payment of the premium tax credit, then the Exchange must refund to the
enrollee any excess premium paid by or for the enrollee and notify the
enrollee of the improper reduction no later than 30 calendar days after
discovery of the improper reduction
0
32. Section 155.415 is added to read as follows:
Sec. 155.415 Allowing issuer customer service representatives to
assist with eligibility applications.
(a) Exchange option. An Exchange, to the extent permitted by State
law, may permit issuer customer service representatives who do not meet
the definition of agent or broker at Sec. 155.20 to assist individuals
in the individual market with applying for a determination or
redetermination of eligibility for coverage through the Exchange and
insurance affordability programs, and to facilitate selection of a QHP
offered by the issuer represented by the customer service
representative, provided that such issuer customer service
representatives meet the requirements set forth in Sec. 156.1230(a)(2)
of this subchapter.
[[Page 37084]]
(b) [Reserved]
0
33. Section 155.420 is amended by removing the period at the end of
paragraph (d)(9) and by adding ``; and'' in its place, and by adding
paragraph (d)(10) to read as follows:
Sec. 155.420 Special enrollment periods.
* * * * *
(d) * * *
(10) It has been determined by the Exchange that a qualified
individual was not enrolled in QHP coverage, was not enrolled in the
QHP selected by the individual, or is eligible for but is not receiving
advance payments of the premium tax credit or cost-sharing reductions
as a result of misconduct on the part of a non-Exchange entity
providing enrollment assistance or conducting enrollment activities.
For purposes of this provision, misconduct includes, but is not limited
to, the failure of the non-Exchange entity to comply with applicable
standards under this part, part 156 of this subchapter, or other
applicable Federal or State laws, as determined by the Exchange.
* * * * *
0
34. In Sec. 155.700, paragraph (b) is amended by adding the definition
of ``SHOP application filer'' in alphabetical order to read as follows:
Sec. 155.700 Standards for the establishment of a SHOP
* * * * *
(b) * * *
SHOP application filer means an applicant, an authorized
representative, an agent or broker of the employer, or an employer
filing for its employees where not prohibited by other law.
0
35. Section 155.705 is amended by revising paragraphs (b)(6)(i), and
(b)(6)(ii), and by adding paragraphs (c) and (d) to read as follows:
Sec. 155.705 Functions of a SHOP.
* * * * *
(b) * * *
(6) * * *
(i) Require all QHP issuers to make any change to rates at a
uniform time that is no more frequently than quarterly.
(ii) In the FF-SHOP, rates may be updated quarterly with effective
dates of January 1, April 1, July 1, or October 1 of each calendar
year, beginning with rates effective no sooner than July 1, 2014. The
updated rates must be submitted to HHS at least 60 days in advance of
the effective date of the rates.
* * * * *
(c) Coordination with individual market Exchange for eligibility
determinations. A SHOP must provide data related to eligibility and
enrollment of a qualified employee to the individual market Exchange
that corresponds to the service area of the SHOP, unless the SHOP is
operated pursuant to Sec. 155.100(a)(2).
(d) Duties of Navigators in the SHOP. In States that have elected
to operate only a SHOP pursuant to Sec. 155.100(a)(2), at State option
and if State law permits the Navigator duties described in Sec.
155.210(e)(3) and Sec. 155.210(e)(4) may be fulfilled through
referrals to agents and brokers.
0
36. Section 155.730 is amended by revising paragraph (f) to read as
follows:
Sec. 155.730 Application standards for SHOP.
* * * * *
(f) The SHOP must:
(1) Accept applications from SHOP application filers; and
(2) Provide the tools to file an application via an Internet Web
site.
* * * * *
0
37. Section 155.735 is added to subpart H to read as follows:
Sec. 155.735 Termination of coverage.
(a) General requirements. The SHOP must determine the timing, form,
and manner in which coverage in a QHP may be terminated.
(b) Termination of employer group health coverage at the request of
the employer. (1) The SHOP must establish policies for advance notice
of termination required from the employer and effective dates of
termination.
(2) In the FF-SHOP, an employer may terminate coverage for all
enrollees covered by the employer group health plan effective on the
last day of any month, provided that the employer has given notice to
the FF-SHOP on or before the 15th day of any month. If notice is given
after the 15th of the month, the FF-SHOP may terminate the coverage on
the last day of the following month.
(c) Termination of employer group health coverage for non-payment
of premiums. (1) The SHOP must establish policies for termination for
non-payment of premiums, including but not limited to policies
regarding due dates for payment of premiums to the SHOP, grace periods,
employer and employee notices, and reinstatement provisions.
(2) In an FF-SHOP--
(i) For a given month of coverage, premium payment is due by the
first day of the coverage month.
(ii) If premium payment is not received 31 days from the first of
the coverage month, the FF-SHOP may terminate the qualified employer
for lack of payment.
(iii) If a qualified employer is terminated due to lack of premium
payment, but within 30 days following its termination the qualified
employer requests reinstatement, pays all premiums owed including any
prior premiums owed for coverage during the grace period, and pays the
premium for the next month's coverage, the FF-SHOP must reinstate the
qualified employer in its previous coverage.
(d) Termination of employee or dependent coverage. (1) The SHOP
must establish consistent policies regarding the process for and
effective dates of termination of employee or dependent coverage in the
following circumstances:
(i) The employee or dependent is no longer eligible for coverage
under the employer's group health plan;
(ii) The employee requests that the SHOP terminate the coverage of
the employee or a dependent of the employee under the employer's group
health plan;
(iii) The QHP in which the employee is enrolled terminates or is
decertified as described in Sec. 155.1080;
(iv) The enrollee changes from one QHP to another during the
employer's annual open enrollment period or during a special enrollment
period in accordance with Sec. 155.725(j); or
(v) The enrollee's coverage is rescinded in accordance with Sec.
147.128 of this subchapter.
(2) In the FF-SHOP, termination is effective on the last day of the
month in which the FF-SHOP receives notice of an event described in
paragraph (d)(1) of this section, and notice must have been received by
the FF-SHOP prior to the proposed date of termination.
(e) Termination of coverage tracking and approval. The SHOP must
comply with the standards described in Sec. 155.430(c).
(f) Effective date. The provisions of Sec. 155.735 apply to
coverage--
(1) Beginning on or after January 1, 2015; and
(2) In any SHOP providing qualified employers with the option
described in Sec. 155.705(b)(2) or the option described in Sec.
155.705(b)(4) before January 1, 2015, beginning with the date that
option is offered.
0
38. Subpart M is added to read as follows:
Subpart M--Oversight and Program Integrity Standards for State
Exchanges
Sec.
155.1200 General program integrity and oversight requirements.
155.1210 Maintenance of records.
[[Page 37085]]
Subpart M--Oversight and Program Integrity Standards for State
Exchanges
Sec. 155.1200 General program integrity and oversight requirements.
(a) General requirement. A State Exchange must:
(1) Keep an accurate accounting of Exchange receipts and
expenditures in accordance with generally accepted accounting
principles (GAAP).
(2) Monitor and report to HHS on Exchange related activities.
(3) Collect and report to HHS performance monitoring data.
(b) Reporting. The State Exchange must, at least annually, provide
to HHS, in a manner specified by HHS, the following data and
information:
(1) A financial statement presented in accordance with GAAP by
April 1 of each year,
(2) Eligibility and enrollment reports, and
(3) Performance monitoring data.
(c) External audits. The State Exchange must engage an independent
qualified auditing entity which follows generally accepted governmental
auditing standards (GAGAS) to perform an annual independent external
financial and programmatic audit and must make such information
available to HHS for review. The State must:
(1) Provide to HHS the results of the annual external audit; and
(2) Inform HHS of any material weakness or significant deficiency
and any intended corrective action identified in the audit;
(d) External audit standard. The State Exchange must ensure that
independent audits of State Exchange financial statements and program
activities in paragraph (c) of this section address:
(1) Compliance with paragraph (a)(1) of this section;
(2) Compliance with requirements under subparts D, E, and K of this
part;
(3) Processes and procedures designed to prevent improper
eligibility determinations and enrollment transactions; and
(4) Identification of errors that have resulted in incorrect
eligibility determinations.
Sec. 155.1210 Maintenance of records.
(a) General. The State Exchange must maintain and must ensure its
contractors, subcontractors, and agents maintain for 10 years,
documents and records (whether paper, electronic, or other media) and
other evidence of accounting procedures and practices, which are
sufficient to do the following:
(1) Accommodate periodic auditing of the State Exchange's financial
records; and
(2) Enable HHS or its designee(s) to inspect facilities, or
otherwise evaluate the State- Exchange's compliance with Federal
standards.
(b) Records. The State Exchange and its contractors,
subcontractors, and agents must ensure that the records specified in
paragraph (a) of this section include, at a minimum, the following:
(1) Information concerning management and operation of the State
Exchange's financial and other record keeping systems;
(2) Financial statements, including cash flow statements, and
accounts receivable and matters pertaining to the costs of operations;
(3) Any financial reports filed with other Federal programs or
State authorities;
(4) Data and records relating to the State Exchange's eligibility
verifications and determinations, enrollment transactions, appeals, and
plan variation certifications; and
(5) Qualified health plan contracting (including benefit review)
data and consumer outreach and Navigator grant oversight information.
(c) A State Exchange must make all records and must ensure its
contractors, subcontractors, and agents must make all records in
paragraph (a) of this section available to HHS, the OIG, the
Comptroller General, or their designees, upon request.
PART 156--HEALTH INSURANCE ISSUER STANARDS UNDER THE AFFORDABLE
CARE ACT, INCLUDING STANDARDS RELATED TO EXCHANGES
0
39. The authority citation for part 156 continues to read as follows:
Authority: Title I of the Affordable Care Act, sections 1301-
1304, 1311-1313, 1321, 1322, 1324, 1334, 1342-1343, and 1401-1402,
Pub. L. 111-148, 124 Stat. 119 (42 U.S.C. 18042).
0
40. Section 156.20 is amended by adding definitions for ``Delegated
entity,'' ``Downstream entity,'' ``Enrollee satisfaction survey
vendor,'' ``Exchange,'' and ``Registered user of the enrollee
satisfaction survey data warehouse,'' in alphabetical order to read as
follows:
Sec. 156.20 Definitions
* * * * *
Delegated entity means any party, including an agent or broker,
that enters into an agreement with a QHP issuer to provide
administrative services or health care services to qualified
individuals, qualified employers, or qualified employees and their
dependents.
Downstream entity means any party, including an agent or broker,
that enters into an agreement with a delegated entity or with another
downstream entity for purposes of providing administrative or health
care services related to the agreement between the delegated entity and
the QHP issuer. The term ``downstream entity'' is intended to reach the
entity that directly provides administrative services or health care
services to qualified individuals, qualified employers, or qualified
employees and their dependents.
Enrollee satisfaction survey vendor means an organization has
relevant survey administration experience (e.g., CAHPS[supreg]
surveys), organizational survey capacity, and quality control
procedures for survey administration.
* * * * *
Exchange has the meaning given to the term in Sec. 155.20 of this
subchapter.
* * * * *
Registered user of the enrollee satisfaction survey data warehouse
means enrollee satisfaction survey vendors, QHP issuers, and Exchanges
authorized to access CMS's secure data warehouse to submit survey data
and to preview survey results prior to public reporting.
0
41. Section 156.80 is amended by adding paragraph (d)(3) to read as
follows:
Sec. 156.80 Single risk pool.
* * * * *
(d) * * *
(3) Frequency of index rate and plan-level adjustments. A health
insurance issuer may make the market-wide index rate adjustment
described in paragraph (d)(1) of this section or the plan-level
adjustments described in paragraph (d)(2) of this section--
(i) With respect to the individual market or markets in which the
individual and small group risk pools were merged by the State pursuant
to paragraph (c) of this section, on an annual basis.
(ii) With respect to the small group market, on an annual basis,
and beginning the quarter after HHS issues notification that the FF-
SHOP can process quarterly rate updates, on a quarterly basis.
* * * * *
0
42. Section 156.285 is amended by revising paragraphs (d)(1)(i) and
(iii) to read as follows:
Sec. 156.285 Additional standards specific to SHOP.
* * * * *
(d) * * *
(1) * * *
[[Page 37086]]
(i) (A) Effective in plan years beginning on or after January 1,
2015, requirements regarding termination of coverage established in
Sec. 155.735 of this subchapter, if applicable to the coverage being
terminated; otherwise
(B) General requirements regarding termination of coverage
established in Sec. 155.270 of this subchapter.
* * * * *
(iii) (A) Effective in plan years beginning on or after January 1,
2015, requirements regarding termination of coverage effective dates as
set forth in Sec. 155.735 of this subchapter, if applicable to the
coverage being terminated; otherwise
(B) Requirements regarding termination of coverage effective dates
as set forth in Sec. 156.270(i).
* * * * *
0
43. Subpart D is added to read as follows:
Subpart D--Federally-Facilitated Exchange Qualified Health Plan Issuer
Standards
Sec.
156.330 Changes of ownership in a Federally-Facilitated Exchange.
156.340 Standards for downstream and delegated entities.
Subpart D--Federally-Facilitated Exchange Qualified Health Plan
Issuer Standards
Sec. 156.330 Changes of ownership in a Federally-Facilitated
Exchange.
When a QHP issuer that offers one or more QHPs in a Federally-
facilitated Exchange undergoes a change of ownership as recognized by
the State in which the issuer offers the QHP, the QHP issuer must
notify HHS of the change in a manner to be specified by HHS, and
provide the legal name and Taxpayer Identification Number (TIN) of the
new owner and the effective date of the change at least 30 days prior
to the effective date of the change of ownership. The new owner must
agree to adhere to all applicable statutes and regulations.
Sec. 156.340 Standards for downstream and delegated entities.
(a) General requirement. Effective October 1, 2013, notwithstanding
any relationship(s) that a QHP issuer may have with delegated and
downstream entities, a QHP issuer maintains responsibility for its
compliance and the compliance of any of its delegated or downstream
entities, as applicable, with all applicable standards, including--
(1) Standards of subpart C of part 156 with respect to each of its
QHPs on an ongoing basis;
(2) Exchange processes, procedures, and standards in accordance
with subparts H and K of part 155 and, in the small group market, Sec.
155.705 of this subchapter;
(3) Standards of Sec. 155.220 of this subchapter with respect to
assisting with enrollment in QHPs; and
(4) Standards of Sec. 156.705 and Sec. 156.715 for maintenance of
records and compliance reviews for QHP issuers operating in a
Federally-facilitated Exchange or FF-SHOP.
(b) Delegation agreement specifications. If any of the QHP issuer's
activities or obligations, in accordance with paragraph (a) of this
section, are delegated to other parties, the QHP issuer's agreement
with any delegated or downstream entity must--
(1) Specify the delegated activities and reporting
responsibilities;
(2) Provide for revocation of the delegated activities and
reporting standards or specify other remedies in instances where HHS or
the QHP issuer determines that such parties have not performed
satisfactorily;
(3) Specify that the delegated or downstream entity must comply
with all applicable laws and regulations relating to the standards
specified under paragraph (a) of this section;
(4) Specify that the delegated or downstream entity must permit
access by the Secretary and the OIG or their designees in connection
with their right to evaluate through audit, inspection, or other means,
to the delegated or downstream entity's books, contracts, computers, or
other electronic systems, including medical records and documentation,
relating to the QHP issuer's obligations in accordance with Federal
standards under paragraph (a) of this section until 10 years from the
final date of the agreement period; and
(5) Contain specifications described in paragraph (b) of this
section by no later than January 1, 2015, for existing agreements; and
no later than the effective date of the agreement for agreements that
are newly entered into as of October 1, 2013.
0
44. Section 156.400 is amended by revising the definition of ``Most
generous or more generous'' to read as follows:
Sec. 156.400 Definitions.
* * * * *
Most generous or more generous means, as between a QHP (including a
standard silver plan) or plan variation and one or more other plan
variations of the same QHP, the standard plan or plan variation
designed for the category of individuals last listed in Sec.
155.305(g)(3) of this subchapter. Least generous or less generous has
the opposite meaning.
* * * * *
0
45. Section 156.410 is amended by adding paragraphs (c) and (d) to read
as follows:
Sec. 156.410 Cost-sharing reductions for enrollees.
* * * * *
(c) Improper cost-sharing reductions. (1) If a QHP issuer fails to
ensure that an individual assigned to a plan variation receives the
cost-sharing reductions required under the applicable plan variation,
taking into account Sec. 156.425(b) concerning continuity of
deductibles and out-of-pocket amounts (if applicable), then the QHP
issuer must, no later than 30 calendar days after discovery of the
application of the cost-sharing reduction, refund any resulting excess
cost sharing paid by or for the enrollee and notify the enrollee of the
improper application.
(2) If a QHP issuer provides an individual assigned to a plan
variation more cost-sharing reductions than required under the
applicable plan variation, taking into account Sec. 156.425(b)
concerning continuity of deductibles and out-of-pocket amounts (if
applicable), then the QHP issuer will not be eligible for reimbursement
of any excess cost-sharing reductions provided to the enrollee, and may
not seek reimbursement from the enrollee or the applicable provider for
any of the excess cost-sharing reductions.
(d) Improper assignment. If a QHP issuer does not assign an
individual to the applicable plan variation (or standard plan without
cost-sharing reductions) in accordance with Sec. 156.410(b) and Sec.
156.425(a) based on the eligibility and enrollment information or
notification provided by the Exchange, then the QHP issuer must, no
later than 30 calendar days after discovery of the improper assignment,
reassign the enrollee to the applicable plan variation (or standard
plan without cost-sharing reductions) and notify the enrollee of the
improper assignment such that--
(1) If, pursuant to a reassignment under this paragraph (d), a QHP
issuer reassigns an enrollee from a more generous plan variation to a
less generous plan variation of a QHP (or a standard plan without cost-
sharing reductions), the QHP issuer will not be eligible for
reimbursement for any of the excess cost-sharing reductions provided to
the enrollee following the effective date of eligibility required by
the Exchange, and may not seek reimbursement from the enrollee or the
applicable provider for any of the excess cost-sharing reductions.
[[Page 37087]]
(2) If, pursuant to a reassignment under this paragraph (d), a QHP
issuer reassigns an enrollee from a less generous plan variation (or a
standard plan without cost-sharing reductions) to a more generous plan
variation of a QHP, the QHP issuer must recalculate the enrollee's
liability for cost sharing paid between the effective date of
eligibility required by the Exchange and the date the issuer
effectuated the change, and must refund any excess cost sharing paid by
or for the enrollee during such period, no later than 30 calendar days
after discovery of the improper assignment.
0
46. Section 156.460 is amended by adding paragraph (c) to read as
follows:
Sec. 156.460 Reduction of enrollee's share of premium to account for
advance payments of the premium tax credit.
* * * * *
(c) Refunds to enrollees for improper reduction of enrollee's share
of premium to account for advance payments of the premium tax credit.
If a QHP issuer discovers that it did not reduce the portion of the
premium charged to or for an enrollee for the applicable month(s) by
the amount of the advance payment of the premium tax credit in
accordance with paragraph (a)(1) of this section, the QHP issuer must
refund to the enrollee any excess premium paid by or for the enrollee
and notify the enrollee of the improper reduction no later than 30
calendar days after the QHP issuer's discovery of the improper
reduction.
0
47. Section 156.480 is added to subpart E to read as follows:
Sec. 156.480 Oversight of the administration of the cost-sharing
reductions and advance payments of the premium tax credit programs.
(a) Maintenance of records. An issuer that offers a QHP in the
individual market through a State Exchange must adhere to, and ensure
that any relevant delegated entities and downstream entities adhere to,
the standards set forth in Sec. 156.705 concerning maintenance of
documents and records, whether paper, electronic, or in other media, by
issuers offering QHPs in a Federally-facilitated Exchange, in
connection with cost-sharing reductions and advance payments of the
premium tax credit.
(b) Annual reporting requirements. For each benefit year, an issuer
that offers a QHP in the individual market through an Exchange must
report to HHS, in the manner and timeframe required by HHS, summary
statistics specified by HHS with respect to administration of cost-
sharing reduction and advance payments of the premium tax credit
programs.
(c) Audits. HHS or its designee may audit an issuer that offers a
QHP in the individual market through an Exchange to assess compliance
with the requirements of this subpart.
Subpart G--[Added and Reserved]
0
48. Subpart G is added and reserved.
0
49. Subpart H is added to read as follows:
Subpart H--Oversight and Financial Integrity Standards for Issuers of
Qualified Health Plans in Federally-Facilitated Exchanges
Sec.
156.705 Maintenance of records for the Federally-Facilitated
Exchange.
156.715 Investigations and compliance reviews in Federally-
facilitated Exchanges.
Subpart H--Oversight and Financial Integrity Standards for Issuers
of Qualified Health Plans in Federally-facilitated Exchanges
Sec. 156.705 Maintenance of records for the Federally-facilitated
Exchange.
(a) General standard. Issuers offering QHPs in a Federally-
facilitated Exchange must maintain all documents and records (whether
paper, electronic, or other media) and other evidence of accounting
procedures and practices, necessary for HHS to do the following:
(1) Periodically audit financial records related to QHP issuers'
participation in a Federally-facilitated Exchange, and evaluate the
ability of QHP issuers to bear the risk of potential financial losses;
and
(2) Conduct compliance reviews or otherwise monitor QHP issuers'
compliance with all Exchange standards applicable to issuers offering
QHPs in a Federally-facilitated Exchange as listed in this part.
(b) Records. The records described in paragraph (a) of this section
include the sources listed in Sec. 155.1210(b)(2), (b)(3), and (b)(5)
of this subchapter.
(c) Record retention timeframe. Issuers offering QHPs in a
Federally-facilitated Exchange must maintain all records referenced in
paragraph (a) of this section for 10 years.
(d) Record availability. Issuers offering QHPs in a Federally-
facilitated Exchange must make all records in paragraph (a) of this
section available to HHS, the OIG, the Comptroller General, or their
designees, upon request.
Sec. 156.715 Investigations and compliance reviews in Federally-
facilitated Exchanges.
(a) General standard. Issuers offering QHPs in the Federally-
facilitated Exchange may be subject to compliance reviews to ensure
ongoing compliance with Exchange standards applicable to issuers
offering QHPs in the Federally-facilitated Exchange.
(b) Records. In preparation for or in the course of the compliance
review, a QHP issuer must make available for HHS to review the records
of the QHP issuer that pertain to its activities within the Federally-
facilitated Exchange. Such records may include, but are not limited to
the following:
(1) The QHP issuer's books and contracts, including the QHP
issuer's policy manuals and other QHP plan benefit information provided
to the QHP issuer's enrollees;
(2) The QHP issuer's policies and procedures, protocols, standard
operating procedures, or other similar manuals related to the QHP
issuer's activities in the Federally-facilitated Exchange;
(3) Any other information reasonably necessary for HHS to--
(i) Evaluate the QHP issuer's compliance with QHP certification
standards and other Exchange standards applicable to issuers offering
QHPs in the Federally-facilitated Exchange;
(ii) Evaluate the QHP's performance, including its adherence to an
effective compliance plan, within the Federally-facilitated Exchange;
(iii) Verify that the QHP issuer has performed the duties attested
to as part of the QHP certification process; and
(iv) Assess the likelihood of fraud or abuse.
(c) Interest of qualified individuals and qualified employers.
HHS's findings from the compliance reviews under this section may be in
conjunction with other finds related to the QHP issuers' compliance
with certification standards, used to confirm that permitting the
issuer's QHPs to be available through the Federally-facilitated
Exchange is in the interest of the qualified individuals and qualified
employers as provided under Sec. 155.1000(c)(2) of this subchapter.
(d) Onsite and desk reviews. The QHP issuer will make available,
for the purposes listed in paragraph (c) of this section, its premises,
physical facilities and equipment (including computer and other
electronic systems), for HHS to conduct a compliance review as provided
under this section.
(1) A compliance review under this section will be carried out as
an onsite or desk review based on the specific circumstances.
(2) Unless otherwise specified, nothing in this section is intended
to preempt Federal laws and regulations
[[Page 37088]]
related to information privacy and security.
(e) Compliance review timeframe. A QHP issuer may be subject to a
compliance review up to 10 years from the last day of that plan benefit
year, or 10 years from the last day that the QHP certification is
effective if the QHP is no longer available through a Federally-
facilitated Exchange; provided, however, that if the 10 year review
period falls during an ongoing compliance review, the review period
would be extended until the compliance review is completed.
0
50. Subpart I is added to read as follows:
Subpart I--Enforcement Remedies in Federally-Facilitated Exchanges
Sec.
156.800 Available remedies; Scope.
156.805 Bases and process for imposing civil money penalties in
Federally-facilitated Exchanges.
156.810 Bases and process for decertification of a QHP offered by an
issuer through a Federally-facilitated Exchange.
Subpart I--Enforcement Remedies in Federally-facilitated Exchanges
Sec. 156.800 Available remedies; Scope.
(a) Kinds of sanctions. HHS may impose the following types of
sanctions on QHP issuers in a Federally-facilitated Exchange that are
not in compliance with Exchange standards applicable to issuers
offering QHPs in the Federally-facilitated Exchange:
(1) Civil money penalties as specified in Sec. 156.805; and
(2) Decertification of a QHP offered by the non-compliant QHP
issuer in a Federally-facilitated Exchange as described in Sec.
156.810.
(b) Scope. Sanctions under this subpart are applicable only for
non-compliance with QHP issuer participation standards and other
standards applicable to issuers offering QHPs in a Federally-
facilitated Exchange.
Sec. 156.805 Bases and process for imposing civil money penalties in
Federally-facilitated Exchanges.
(a) Grounds for imposing civil money penalties. Civil money
penalties may be imposed on an issuer in a Federally-facilitated
Exchange by HHS if, based on credible evidence, HHS has reasonably
determined that the issuer has engaged in one or more of the following
actions:
(1) Misconduct in the Federally-facilitated Exchange or substantial
non-compliance with the Exchange standards applicable to issuers
offering QHPs in the Federally-facilitated Exchange under subparts C
through G of part 153 of this subchapter;
(2) Limiting the QHP's enrollees' access to medically necessary
items and services that are required to be covered as a condition of
the QHP issuer's ongoing participation in the Federally-facilitated
Exchange, if the limitation has adversely affected or has a substantial
likelihood of adversely affecting one or more enrollees in the QHP
offered by the QHP issuer;
(3) Imposing on enrollees premiums in excess of the monthly
beneficiary premiums permitted by Federal standards applicable to QHP
issuers participating in the Federally-facilitated Exchange;
(4) Engaging in any practice that would reasonably be expected to
have the effect of denying or discouraging enrollment into a QHP
offered by the issuer (except as permitted by this part) by qualified
individuals whose medical condition or history indicates the potential
for a future need for significant medical services or items;
(5) Intentionally or recklessly misrepresenting or falsifying
information that it furnishes--
(i) To HHS; or
(ii) To an individual or entity upon which HHS relies to make its
certifications or evaluations of the QHP issuer's ongoing compliance
with Exchange standards applicable to issuers offering QHPs in the
Federally-facilitated Exchange;
(6) Failure to remit user fees assessed under Sec. 156.50(c); or
(7) Failure to comply with the cost-sharing reductions and advance
payments of the premium tax credit standards of subpart E of this part.
(b) Factors in determining the amount of civil money penalties
assessed. In determining the amount of civil money penalties, HHS may
take into account the following:
(1) The QHP issuer's previous or ongoing record of compliance;
(2) The level of the violation, as determined in part by--
(i) The frequency of the violation, taking into consideration
whether any violation is an isolated occurrence, represents a pattern,
or is widespread; and
(ii) The magnitude of financial and other impacts on enrollees and
qualified individuals; and
(3) Aggravating or mitigating circumstances, or other such factors
as justice may require, including complaints about the issuer with
regard to the issuer's compliance with the medical loss ratio standards
required by the Affordable Care Act and as codified by applicable
regulations.
(c) Maximum penalty. The maximum amount of penalty imposed for each
violation is $100 for each day for each QHP issuer for each individual
adversely affected by the QHP issuer's non-compliance; and where the
number of individuals cannot be determined, HHS may estimate the number
of individuals adversely affected by the violation.
(d) Notice of intent to issue civil money penalty. If HHS proposes
to assess a civil money penalty in accordance with this part, HHS will
send a written notice of this decision to--
(1) The QHP issuer against whom the civil money penalty is being
imposed, whose notice must include the following:
(i) A description of the basis for the determination;
(ii) The basis for the penalty;
(iii) The amount of the penalty;
(iv) The date the penalty is due;
(v) An explanation of the issuer's right to a hearing under subpart
J of this part; and
(vi) Information about where to file the request for hearing.
(e) Failure to request a hearing. (1) If the QHP issuer does not
request a hearing within 30 days of the issuance of the notice
described in paragraph (d)(1) of this section, HHS may assess the
proposed civil money penalty.
(2) HHS will notify the QHP issuer in writing of any penalty that
has been assessed and of the means by which the responsible entity may
satisfy the judgment.
(3) The QHP issuer has no right to appeal a penalty with respect to
which it has not requested a hearing in accordance with subpart J of
this part unless the QHP issuer can show good cause, as determined
under Sec. 156.905(b), for failing to timely exercise its right to a
hearing.
Sec. 156.810 Bases and process for decertification of a QHP offered
by an issuer through a Federally-facilitated Exchange.
(a) Bases for decertification. A QHP may be decertified on one or
more of the following grounds:
(1) The QHP issuer substantially fails to comply with the Federal
laws and regulations applicable to QHP issuers participating in the
Federally-facilitated Exchange;
(2) The QHP issuer substantially fails to comply with the standards
related to the risk adjustment, reinsurance, or risk corridors programs
under 45 CFR Part 153, including providing HHS with valid risk
adjustment, reinsurance or risk corridors data;
[[Page 37089]]
(3) The QHP issuer substantially fails to comply with the
transparency and marketing standards in Sec. Sec. 156.220 and 156.225;
(4) The QHP issuer substantially fails to comply with the standards
regarding advance payments of the premium tax credit and cost-sharing
in subpart E of this part;
(5) The QHP issuer is operating in the Federally-facilitated
Exchange in a manner that hinders the efficient and effective
administration of the Exchange;
(6) The QHP no longer meets the conditions of the applicable
certification criteria;
(7) Based on credible evidence, the QHP issuer has committed or
participated in fraudulent or abusive activities, including submission
of false or fraudulent data;
(8) The QHP issuer substantially fails to meet the requirements
under Sec. 156.230 related to network adequacy standards or, Sec.
156.235 related to inclusion of essential community providers;
(9) The QHP issuer substantially fails to comply with the law and
regulations related to internal claims and appeals and external review
processes; or
(10) The State recommends to HHS that the QHP should no longer be
available in a Federally-facilitated Exchange.
(b) State sanctions and determinations. (1) State sanctions. HHS
may consider regulatory or enforcement actions taken by a State against
a QHP issuer as a factor in determining whether to decertify a QHP
offered by that issuer.
(2) State determinations. HHS may decertify a QHP offered by an
issuer in a Federally-facilitated Exchange based on a determinations or
actions by a State as it relates to the issuer offering QHPs in a
Federally-facilitated Exchange, including when a State places an issuer
or its parent organization into receivership or when the State
recommends to HHS that the QHP no longer be available in a Federally-
facilitated Exchange.
(c) Standard decertification process. For decertification actions
on grounds other than those described in Sec. 156.810(a)(7), (a)(8),
or (a)(9), HHS will provide written notices to the QHP issuer,
enrollees in that QHP, and the State department of insurance in the
State in which the QHP is being decertified. The written notice must
include the following:
(1) The effective date of the decertification, which will be a date
specified by HHS that is no earlier than 30 days after the date of
issuance of the notice;
(2) The reason for the decertification, including the regulation or
regulations that are the basis for the decertification;
(3) For the written notice to the QHP issuer, information about the
effect of the decertification on the ability of the issuer to offer the
QHP in the Federally-facilitated Exchange and must include information
about the procedure for appealing the decertification by making a
hearing request; and
(4) The written notice to the QHP enrollees must include
information about the effect of the decertification on enrollment in
the QHP and about the availability of a special enrollment period, as
described in Sec. 155.420 of this subchapter.
(d) Expedited decertification process. For decertification actions
on grounds described in Sec. 156.810(a)(7), (a)(8), or (a)(9), HHS
will provide written notice to the QHP issuer, enrollees, and the State
department of insurance in the State in which the QHP is being
decertified. The written notice must include the following:
(1) The effective date of the decertification, which will be a date
specified by HHS; and
(2) The information required by paragraphs (c)(2) through (c)(4) of
this section.
(e) Appeals. An issuer may appeal the decertification of a QHP
offered by that issuer under paragraph (c) or (d) of this section by
filing a request for hearing under subpart J of this part.
(1) Effect of request for hearing. If an issuer files a request for
hearing under this paragraph,
(i) If the decertification is under paragraph (c) of this section,
the decertification will not take effect prior to the issuance of the
final administrative decision in the appeal, notwithstanding the
effective date specified in the notice under paragraph (c)(1) of this
section.
(ii) If the decertification is under paragraph (d) of this section,
the decertification will be effective on the date specified in the
notice of decertification, but the certification of the QHP may be
reinstated immediately upon issuance of a final administrative decision
that the QHP should not be decertified.
(2) [Reserved]
0
51. Subpart J is added to read as follows:
Subpart J--Administrative Review of QHP Issuer Sanctions in Federally-
Facilitated Exchanges
Sec.
156.901 Definitions.
156.903 Scope of Administrative Law Judge's (ALJ) authority.
156.905 Filing of request for hearing.
156.907 Form and content of request for hearing.
156.909 Amendment of notice of assessment or decertification request
for hearing.
156.911 Dismissal of request for hearing.
156.913 Settlement.
156.915 Intervention.
156.917 Issues to be heard and decided by ALJ.
156.919 Forms of hearing.
156.921 Appearance of counsel.
156.923 Communications with the ALJ.
156.925 Motions.
156.927 Form and service of submissions.
156.929 Computation of time and extensions of time.
156.931 Acknowledgment of request for hearing.
156.935 Discovery.
156.937 Submission of briefs and proposed hearing exhibits.
156.939 Effect of submission of proposed hearing exhibits.
156.941 Prehearing conferences.
156.943 Standard of proof.
156.945 Evidence.
156.947 The record.
156.949 Cost of transcripts.
156.951 Posthearing briefs.
156.953 ALJ decision.
156.955 Sanctions.
156.957 Review by Administrator.
156.959 Judicial review.
156.961 Failure to pay assessment.
156.963 Final order not subject to review.
Subpart J--Administrative Review of QHP Issuer Sanctions in
Federally-Facilitated Exchanges
Sec. 156.901 Definitions.
In this subpart, unless the context indicates otherwise:
ALJ means administrative law judge of the Departmental Appeals
Board of HHS.
Filing date means the date postmarked by the U.S. Postal Service,
deposited with a carrier for commercial delivery, or hand delivered.
Hearing includes a hearing on a written record as well as an in-
person or telephone hearing.
Party means HHS or the respondent.
Receipt date means five days after the date of a document, unless
there is a showing that it was in fact received later.
Respondent means an entity that received a notice of proposed
assessment of a civil money penalty issued pursuant to Sec. 156.805 or
a notice of decertification pursuant to Sec. 156.810(c) or Sec.
156.810(d).
Sec. 156.903 Scope of Administrative Law Judge's (ALJ) authority.
(a) The ALJ has the authority, including all of the authority
conferred
[[Page 37090]]
by the Administrative Procedure Act (5 U.S.C. 554a), to adopt whatever
procedures may be necessary or proper to carry out in an efficient and
effective manner the ALJ's duty to provide a fair and impartial hearing
on the record and to issue an initial decision concerning the
imposition of a civil money penalty or the decertification of a QHP
offered in a Federally-facilitated Exchange.
(b) The ALJ's authority includes the authority to modify,
consistent with the Administrative Procedures Act (5 U.S.C. 552a), any
hearing procedures set out in this subpart.
(c) The ALJ does not have the authority to find invalid or refuse
to follow Federal statutes or regulations.
Sec. 156.905 Filing of request for hearing.
(a) A respondent has a right to a hearing before an ALJ if it files
a request for hearing that complies with Sec. 156.907(a), within 30
days after the date of issuance of either HHS' notice of proposed
assessment under Sec. 156.805, notice of decertification of a QHP
under Sec. 156.810(c) or Sec. 156.810(d). The request for hearing
should be addressed as instructed in the notice of proposed
determination. ``Date of issuance'' is five (5) days after the filing
date, unless there is a showing that the document was received earlier.
(b) The ALJ may extend the time for filing a request for hearing
only if the ALJ finds that the respondent was prevented by events or
circumstances beyond its control from filing its request within the
time specified above. Any request for an extension of time must be made
promptly by written motion.
Sec. 156.907 Form and content of request for hearing.
(a) The request for hearing must do the following:
(1) Identify any factual or legal bases for the assessment or
decertifications with which the respondent disagrees.
(2) Describe with reasonable specificity the basis for the
disagreement, including any affirmative facts or legal arguments on
which the respondent is relying.
(b) Identify the relevant notice of assessment or decertification
by date and attach a copy of the notice.
Sec. 156.909 Amendment of notice of assessment or decertification
request for hearing.
The ALJ may permit CMS to amend its notice of assessment or
decertification, or permit the respondent to amend a request for
hearing that complies with Sec. 156.907(a), if the ALJ finds that no
undue prejudice to either party will result.
Sec. 156.911 Dismissal of request for hearing.
An ALJ will order a request for hearing dismissed if the ALJ
determines that:
(a) The request for hearing was not filed within 30 days as
specified by Sec. 156.905(a) or any extension of time granted by the
ALJ pursuant to Sec. 156.905(b).
(b) The request for hearing fails to meet the requirements of Sec.
156.907.
(c) The entity that filed the request for hearing is not a
respondent under Sec. 156.901.
(d) The respondent has abandoned its request.
(e) The respondent withdraws its request for hearing.
Sec. 156.913 Settlement.
HHS has exclusive authority to settle any issue or any case,
without the consent of the ALJ at any time before or after the ALJ's
decision.
Sec. 156.915 Intervention.
(a) The ALJ may grant the request of an entity, other than the
respondent, to intervene if all of the following occur:
(1) The entity has a significant interest relating to the subject
matter of the case.
(2) Disposition of the case will, as a practical matter, likely
impair or impede the entity's ability to protect that interest.
(3) The entity's interest is not adequately represented by the
existing parties.
(4) The intervention will not unduly delay or prejudice the
adjudication of the rights of the existing parties.
(b) A request for intervention must specify the grounds for
intervention and the manner in which the entity seeks to participate in
the proceedings. Any participation by an intervenor must be in the
manner and by any deadline set by the ALJ.
(c) The Department of Labor (DOL) or the Internal Revenue Service
(IRS) may intervene without regard to paragraphs (a)(1) through (a)(3)
of this section.
Sec. 156.917 Issues to be heard and decided by ALJ.
(a) The ALJ has the authority to hear and decide the following
issues:
(1) Whether a basis exists to assess a civil money penalty against
the respondent.
(2) Whether the amount of the assessed civil money penalty is
reasonable.
(3) Whether a basis exists to decertify a QHP offered by the
respondent in the Federally-facilitated Exchange.
(b) In deciding whether the amount of a civil money penalty is
reasonable, the ALJ--
(1) Will apply the factors that are identified in Sec. 156.805 for
civil money penalties.
(2) May consider evidence of record relating to any factor that HHS
did not apply in making its initial determination, so long as that
factor is identified in this subpart.
(c) If the ALJ finds that a basis exists to assess a civil money
penalty, the ALJ may sustain, reduce, or increase the penalty that HHS
assessed
Sec. 156.919 Forms of hearing.
(a) All hearings before an ALJ are on the record. The ALJ may
receive argument or testimony in writing, in person, or by telephone.
The ALJ may receive testimony by telephone only if the ALJ determines
that doing so is in the interest of justice and economy and that no
party will be unduly prejudiced. The ALJ may require submission of a
witness' direct testimony in writing only if the witness is available
for cross-examination.
(b) The ALJ may decide a case based solely on the written record
where there is no disputed issue of material fact the resolution of
which requires the receipt of oral testimony.
Sec. 156.921 Appearance of counsel.
Any attorney who is to appear on behalf of a party must promptly
file, with the ALJ, a notice of appearance.
Sec. 156.923 Communications with the ALJ.
No party or person (except employees of the ALJ's office) may
communicate in any way with the ALJ on any matter at issue in a case,
unless on notice and opportunity for both parties to participate. This
provision does not prohibit a party or person from inquiring about the
status of a case or asking routine questions concerning administrative
functions or procedures.
Sec. 156.925 Motions.
(a) Any request to the ALJ for an order or ruling must be by
motion, stating the relief sought, the authority relied upon, and the
facts alleged. All motions must be in writing, with a copy served on
the opposing party, except in either of the following situations:
(1) The motion is presented during an oral proceeding before an ALJ
at which both parties have the opportunity to be present.
(2) An extension of time is being requested by agreement of the
parties or with waiver of objections by the opposing party.
(b) Unless otherwise specified in this subpart, any response or
opposition to a motion must be filed within 20 days of the party's
receipt of the motion. The
[[Page 37091]]
ALJ does not rule on a motion before the time for filing a response to
the motion has expired except where the response is filed at an earlier
date, where the opposing party consents to the motion being granted, or
where the ALJ determines that the motion should be denied.
Sec. 156.927 Form and service of submissions.
(a) Every submission filed with the ALJ must be filed in
triplicate, including one original of any signed documents, and
include:
(1) A caption on the first page, setting forth the title of the
case, the docket number (if known), and a description of the submission
(such as ``Motion for Discovery'').
(2) The signatory's name, address, and telephone number.
(3) A signed certificate of service, specifying each address to
which a copy of the submission is sent, the date on which it is sent,
and the method of service.
(b) A party filing a submission with the ALJ must, at the time of
filing, serve a copy of such submission on the opposing party. An
intervenor filing a submission with the ALJ must, at the time of
filing, serve a copy of the submission on all parties. Service must be
made by mailing or hand delivering a copy of the submission to the
opposing party. If a party is represented by an attorney, service must
be made on the attorney.
Sec. 156.929 Computation of time and extensions of time.
(a) For purposes of this subpart, in computing any period of time,
the time begins with the day following the act, event, or default and
includes the last day of the period unless it is a Saturday, Sunday, or
legal holiday observed by the Federal government, in which event it
includes the next business day. When the period of time allowed is less
than seven days, intermediate Saturdays, Sundays, and legal holidays
observed by the Federal government are excluded from the computation.
(b) The period of time for filing any responsive pleading or papers
is determined by the date of receipt (as defined in Sec. 156.901) of
the submission to which a response is being made.
(c) The ALJ may grant extensions of the filing deadlines specified
in these regulations or set by the ALJ for good cause shown (except
that requests for extensions of time to file a request for hearing may
be granted only on the grounds specified in Sec. 156.905(b)).
Sec. 156.931 Acknowledgment of request for hearing.
After receipt of the request for hearing, the ALJ assigned to the
case or someone acting on behalf of the ALJ will send a letter to the
parties that acknowledges receipt of the request for hearing,
identifies the docket number assigned to the case, provides
instructions for filing submissions and other general information
concerning procedures, and sets out the next steps in the case.
Sec. 156.935 Discovery.
(a) The parties must identify any need for discovery from the
opposing party as soon as possible, but no later than the time for the
reply specified in Sec. 156.937(c). Upon request of a party, the ALJ
may stay proceedings for a reasonable period pending completion of
discovery if the ALJ determines that a party would not be able to make
the submissions required by Sec. 156.937 without discovery. The
parties should attempt to resolve any discovery issues informally
before seeking an order from the ALJ.
(b) Discovery devices may include requests for production of
documents, requests for admission, interrogatories, depositions, and
stipulations. The ALJ orders interrogatories or depositions only if
these are the only means to develop the record adequately on an issue
that the ALJ must resolve to decide the case.
(c) Each discovery request must be responded to within 30 days of
receipt, unless that period of time is extended for good cause by the
ALJ.
(d) A party to whom a discovery request is directed may object in
writing for any of the following reasons:
(1) Compliance with the request is unduly burdensome or expensive.
(2) Compliance with the request will unduly delay the proceedings.
(3) The request seeks information that is wholly outside of any
matter in dispute.
(4) The request seeks privileged information. Any party asserting a
claim of privilege must sufficiently describe the information or
document being withheld to show that the privilege applies. If an
asserted privilege applies to only part of a document, a party
withholding the entire document must state why the nonprivileged part
is not segregable.
(5) The disclosure of information responsive to the discovery
request is prohibited by law.
(e) Any motion to compel discovery must be filed within 10 days
after receipt of objections to the party's discovery request, within 10
days after the time for response to the discovery request has elapsed
if no response is received, or within 10 days after receipt of an
incomplete response to the discovery request. The motion must be
reasonably specific as to the information or document sought and must
state its relevance to the issues in the case.
Sec. 156.937 Submission of briefs and proposed hearing exhibits.
(a) Within 60 days of its receipt of the acknowledgment provided
for in Sec. 156.931, the respondent must file the following with the
ALJ:
(1) A statement of its arguments concerning CMS's notice of
assessment or decertification (respondent's brief), including citations
to the respondent's hearing exhibits provided in accordance with
paragraph (a)(2) of this section. The brief may not address factual or
legal bases for the assessment or decertification that the respondent
did not identify as disputed in its request for hearing or in an
amendment to that request permitted by the ALJ.
(2) All documents (including any affidavits) supporting its
arguments, tabbed and organized chronologically and accompanied by an
indexed list identifying each document.
(3) A statement regarding whether there is a need for an in-person
hearing and, if so, a list of proposed witnesses and a summary of their
expected testimony that refers to any factual dispute to which the
testimony will relate.
(4) Any stipulations or admissions.
(b) Within 30 days of its receipt of the respondent's submission
required by paragraph (a) of this section, CMS will file the following
with the ALJ:
(1) A statement responding to the respondent's brief, including the
respondent's proposed hearing exhibits, if appropriate. The statement
may include citations to CMS's proposed hearing exhibits submitted in
accordance with paragraph (b)(2) of this section.
(2) Any documents supporting CMS's response not already submitted
as part of the respondent's proposed hearing exhibits, organized and
indexed as indicated in paragraph (a)(2) of this section (CMS's
proposed hearing exhibits).
(3) A statement regarding whether there is a need for an in-person
hearing and, if so, a list of proposed witnesses and a summary of their
expected testimony that refers to any factual dispute to which the
testimony will relate.
(4) Any admissions or stipulations.
(c) Within 15 days of its receipt of CMS's submission required by
[[Page 37092]]
paragraph (b) of this section, the respondent may file with the ALJ a
reply to CMS's submission.
Sec. 156.939 Effect of submission of proposed hearing exhibits.
(a) Any proposed hearing exhibit submitted by a party in accordance
with Sec. 156.937 is deemed part of the record unless the opposing
party raises an objection to that exhibit and the ALJ rules to exclude
it from the record. An objection must be raised either in writing prior
to the prehearing conference provided for in Sec. 156.941 or at the
prehearing conference. The ALJ may require a party to submit the
original hearing exhibit on his or her own motion or in response to a
challenge to the authenticity of a proposed hearing exhibit.
(b) A party may introduce a proposed hearing exhibit following the
times for submission specified in Sec. 156.937 only if the party
establishes to the satisfaction of the ALJ that it could not have
produced the exhibit earlier and that the opposing party will not be
prejudiced.
Sec. 156.941 Prehearing conferences.
An ALJ may schedule one or more prehearing conferences (generally
conducted by telephone) on the ALJ's own motion or at the request of
either party for the purpose of any of the following:
(a) Hearing argument on any outstanding discovery request.
(b) Establishing a schedule for any supplements to the submissions
required by Sec. 156.937 because of information obtained through
discovery.
(c) Hearing argument on a motion.
(d) Discussing whether the parties can agree to submission of the
case on a stipulated record.
(e) Establishing a schedule for an in-person hearing, including
setting deadlines for the submission of written direct testimony or for
the written reports of experts.
(f) Discussing whether the issues for a hearing can be simplified
or narrowed.
(g) Discussing potential settlement of the case.
(h) Discussing any other procedural or substantive issues.
Sec. 156.943 Standard of proof.
(a) In all cases before an ALJ--
(1) CMS has the burden of coming forward with evidence sufficient
to establish a prima facie case;
(2) The respondent has the burden of coming forward with evidence
in response, once CMS has established a prima facie case; and
(3) CMS has the burden of persuasion regarding facts material to
the assessment or decertification; and
(4) The respondent has the burden of persuasion regarding facts
relating to an affirmative defense.
(b) The preponderance of the evidence standard applies to all cases
before the ALJ.
Sec. 156.945 Evidence.
(a) The ALJ will determine the admissibility of evidence.
(b) Except as provided in this part, the ALJ will not be bound by
the Federal Rules of Evidence. However, the ALJ may apply the Federal
Rules of Evidence where appropriate; for example, to exclude unreliable
evidence.
(c) The ALJ excludes irrelevant or immaterial evidence.
(d) Although relevant, evidence may be excluded if its probative
value is substantially outweighed by the danger of unfair prejudice,
confusion of the issues, or by considerations of undue delay or
needless presentation of cumulative evidence.
(e) Although relevant, evidence is excluded if it is privileged
under Federal law.
(f) Evidence concerning offers of compromise or settlement made in
this action will be inadmissible to the extent provided in the Federal
Rules of Evidence.
(g) Evidence of acts other than those at issue in the instant case
is admissible in determining the amount of any civil money penalty if
those acts are used under Sec. 156.805 of this part to consider the
entity's prior record of compliance, or to show motive, opportunity,
intent, knowledge, preparation, identity, or lack of mistake. This
evidence is admissible regardless of whether the acts occurred during
the statute of limitations period applicable to the acts that
constitute the basis for liability in the case and regardless of
whether HHS' notice sent in accordance with Sec. 156.805 referred to
them.
(h) The ALJ will permit the parties to introduce rebuttal witnesses
and evidence.
(i) All documents and other evidence offered or taken for the
record will be open to examination by all parties, unless the ALJ
orders otherwise for good cause shown.
(j) The ALJ may not consider evidence regarding the willingness and
ability to enter into and successfully complete a corrective action
plan when that evidence pertains to matters occurring after HHS' notice
under Sec. 156.805(d) or Sec. 156.810(c) or Sec. 156.810(d).
Sec. 156.947 The record.
(a) Any testimony that is taken in-person or by telephone is
recorded and transcribed. The ALJ may order that other proceedings in a
case, such as a prehearing conference or oral argument of a motion, be
recorded and transcribed.
(b) The transcript of any testimony, exhibits and other evidence
that is admitted, and all pleadings and other documents that are filed
in the case constitute the record for purposes of an ALJ decision.
(c) For good cause, the ALJ may order appropriate redactions made
to the record.
Sec. 156.949 Cost of transcripts.
Generally, each party is responsible for 50 percent of the
transcript cost. Where there is an intervenor, the ALJ determines what
percentage of the transcript cost is to be paid for by the intervenor.
Sec. 156.951 Posthearing briefs.
Each party is entitled to file proposed findings and conclusions,
and supporting reasons, in a posthearing brief. The ALJ will establish
the schedule by which such briefs must be filed. The ALJ may direct the
parties to brief specific questions in a case and may impose page
limits on posthearing briefs. Additionally, the ALJ may allow the
parties to file posthearing reply briefs.
Sec. 156.953 ALJ decision.
The ALJ will issue an initial agency decision based only on the
record and on applicable law; the decision will contain findings of
fact and conclusions of law. The ALJ's decision is final and appealable
after 30 days unless it is modified or vacated under Sec. 156.957.
Sec. 156.955 Sanctions.
(a) The ALJ may sanction a party or an attorney for failing to
comply with an order or other directive or with a requirement of a
regulation, for abandonment of a case, or for other actions that
interfere with the speedy, orderly or fair conduct of the hearing. Any
sanction that is imposed will relate reasonably to the severity and
nature of the failure or action.
(b) A sanction may include any of the following actions:
(1) In the case of failure or refusal to provide or permit
discovery, drawing negative fact inferences or treating such failure or
refusal as an admission by deeming the matter, or certain facts, to be
established.
(2) Prohibiting a party from introducing certain evidence or
[[Page 37093]]
otherwise advocating a particular claim or defense.
(3) Striking pleadings, in whole or in part.
(4) Staying the case.
(5) Dismissing the case.
(6) Entering a decision by default.
(7) Refusing to consider any motion or other document that is not
filed in a timely manner.
(8) Taking other appropriate action.
Sec. 156.957 Review by Administrator.
(a) The Administrator of CMS (which for purposes of this section
may include his or her delegate), at his or her discretion, may review
in whole or in part any initial agency decision issued under Sec.
156.953.
(b) The Administrator may decide to review an initial agency
decision if it appears from a preliminary review of the decision (or
from a preliminary review of the record on which the initial agency
decision was based, if available at the time) that:
(1) The ALJ made an erroneous interpretation of law or regulation.
(2) The initial agency decision is not supported by substantial
evidence.
(3) The ALJ has incorrectly assumed or denied jurisdiction or
extended his or her authority to a degree not provided for by statute
or regulation.
(4) The ALJ decision requires clarification, amplification, or an
alternative legal basis for the decision.
(5) The ALJ decision otherwise requires modification, reversal, or
remand.
(c) Within 30 days of the date of the initial agency decision, the
Administrator will mail a notice advising the respondent of any intent
to review the decision in whole or in part.
(d) Within 30 days of receipt of a notice that the Administrator
intends to review an initial agency decision, the respondent may
submit, in writing, to the Administrator any arguments in support of,
or exceptions to, the initial agency decision.
(e) This submission of the information indicated in paragraph (d)
of this section must be limited to issues the Administrator has
identified in his or her notice of intent to review, if the
Administrator has given notice of an intent to review the initial
agency decision only in part. A copy of this submission must be sent to
the other party.
(f) After receipt of any submissions made pursuant to paragraph (d)
of this section and any additional submissions for which the
Administrator may provide, the Administrator will affirm, reverse,
modify, or remand the initial agency decision. The Administrator will
mail a copy of his or her decision to the respondent.
(g) The Administrator's decision will be based on the record on
which the initial agency decision was based (as forwarded by the ALJ to
the Administrator) and any materials submitted pursuant to paragraphs
(b), (d), and (f) of this section.
(h) The Administrator's decision may rely on decisions of any
courts and other applicable law, whether or not cited in the initial
agency decision.
Sec. 156.959 Judicial review.
(a) Filing of an action for review. Any responsible entity against
whom a final order imposing a civil money penalty or decertification of
a QHP is entered may obtain review in the United States District Court
for any district in which the entity is located or in the United States
District Court for the District of Columbia by doing the following:
(1) Filing a notice of appeal in that court within 30 days from the
date of a final order.
(2) Simultaneously sending a copy of the notice of appeal by
registered mail to HHS.
(b) Certification of administrative record. HHS promptly certifies
and files with the court the record upon which the penalty was
assessed.
(c) Standard of review. The findings of HHS and the ALJ may not be
set aside unless they are found to be unsupported by substantial
evidence, as provided by 5 U.S.C. 706(2)(E).
Sec. 156.961 Failure to pay assessment.
If any entity fails to pay an assessment after it becomes a final
order, or after the court has entered final judgment in favor of CMS,
CMS refers the matter to the Attorney General, who brings an action
against the entity in the appropriate United States district court to
recover the amount assessed.
Sec. 156.963 Final order not subject to review.
In an action brought under Sec. 156.961, the validity and
appropriateness of the final order described in Sec. 156.945 is not
subject to review.
0
52. Subpart K is added to read as follows:
Subpart K--Cases Forwarded to Qualified Health Plans and Qualified
Health Plan Issuers in Federally-Facilitated Exchanges
Sec. 156.1010 Standards.
(a) A case is a communication brought by a complainant that
expresses dissatisfaction with a specific person or entity subject to
State or Federal laws regulating insurance, concerning the person or
entity's activities related to the offering of insurance, other than a
communication with respect to an adverse benefit determination as
defined in Sec. 147.136(a)(2)(i) of this subchapter. Issues related to
adverse benefit determinations are not addressed in this section and
are subject to the provisions in Sec. 147.136 of this subchapter
governing internal claims appeals and external review.
(b) QHP issuers operating in a Federally-facilitated Exchange must
investigate and resolve, as appropriate, cases from the complainant
forwarded to the issuer by HHS. Cases received by a QHP issuer
operating in a Federally-facilitated Exchange directly from a
complainant or the complainant's authorized representative will be
handled by the issuer through its internal customer service process.
(c) Cases may be forwarded to a QHP issuer operating in a
Federally-facilitated Exchange through a casework tracking system
developed by HHS or other means as determined by HHS.
(d) Cases received by a QHP issuer operating in a Federally-
facilitated Exchange from HHS must be resolved within 15 calendar days
of receipt of the case. Urgent cases as defined in Sec. 156.1010(e)
that do not otherwise fall within the scope of Sec. 147.136 of this
subchapter must be resolved no later than 72 hours after receipt of the
case. Where applicable State laws and regulations establish timeframes
for case resolution that are stricter than the standards contained in
this paragraph, QHP issuers operating in a Federally-facilitated
Exchange must comply with such stricter laws and regulations.
(e) For cases received from HHS by a QHP issuer operating in a
Federally-facilitated Exchange, an urgent case is one in which there is
an immediate need for health services because the non-urgent standard
could seriously jeopardize the enrollee's or potential enrollee's life,
or health or ability to attain, maintain, or regain maximum function.
(f) For cases received from HHS, QHP issuers operating in a
Federally-facilitated Exchange are required to notify complainants
regarding the disposition of the as soon as possible upon resolution of
the case, but in no event later than seven (7) business days after the
case is resolved. Notification may be by verbal or written means as
determined most appropriate by the QHP issuer.
(g) For cases received from HHS, QHP issuers operating in a
Federally-facilitated Exchange must use the casework tracking system
developed by HHS, or other means as determined by
[[Page 37094]]
HHS, to document, no later than seven (7) business days after
resolution of the case, that the case has been resolved. The record
must include a clear and concise narrative explaining how the case was
resolved including information about how and when the complainant was
notified of the resolution.
(h) Cases received by a QHP issuer operating in a Federally-
facilitated Exchange from a State in which the issuer offers QHPs must
be investigated and resolved according to applicable State laws and
regulations. With respect to cases directly handled by the State, HHS
or any other appropriate regulatory authority, QHP issuers operating in
a Federally-facilitated Exchange must cooperate fully with the efforts
of the State, HHS, or other regulatory authority to resolve the case.
0
53. Subpart L is added to read as follows:
Subpart L--Quality Standards
Sec. 156.1105 Establishment of standards for HHS-approved enrollee
satisfaction survey vendors for use by QHP issuers in Exchanges.
(a) Application for approval. An enrollee satisfaction survey
vendor must be approved by HHS, in a form and manner to be determined
by HHS, to administer, on behalf of a QHP issuer, enrollee satisfaction
surveys to QHP enrollees. HHS will approve enrollee satisfaction survey
vendors on an annual basis, and each enrollee satisfaction survey
vendor must submit an application for each year that approval is
sought.
(b) Standards. To be approved by HHS, an enrollee satisfaction
survey vendor must meet each of the following standards:
(1) Sign and submit an application form for approval in accordance
with paragraph (a) of this section;
(2) Ensure, on an annual basis, that appropriate staff participate
in enrollee satisfaction survey vendor training and successfully
complete a post-training certification exercise as established by HHS;
(3) Ensure the accuracy of their data collection, calculation and
submission processes and attest to HHS the veracity of the data and
these processes;
(4) Sign and execute a standard HHS data use agreement, in a form
and manner to be determined by HHS, that establishes protocols related
to the disclosure, use, and reuse of HHS data;
(5) Adhere to the enrollee satisfaction survey protocols and
technical specifications in a manner and form required by HHS;
(6) Develop and submit to HHS a quality assurance plan and any
supporting documentation as determined to be relevant by HHS. The plan
must describe in adequate detail the implementation of and compliance
with all required protocols and technical specifications described in
paragraph (b)(5) of this section;
(7) Adhere to privacy and security standards established and
implemented under Sec. 155.260 of this subchapter by the Exchange with
which they are associated;
(8) Comply with all applicable State and Federal laws;
(9) Become a registered user of the enrollee satisfaction survey
data warehouse to submit files to HHS on behalf of its authorized QHP
contracts;
(10) Participate in and cooperate with HHS oversight for quality-
related activities, including, but not limited to: review of the
enrollee satisfaction survey vendor's quality assurance plan and other
supporting documentation; analysis of the vendor's submitted data and
sampling procedures; and site visits and conference calls; and,
(11) Comply with minimum business criteria as established by HHS.
(c) Approved list. A list of approved enrollee satisfaction survey
vendors will be published on an HHS Web site.
0
54. Subpart M is added to read as follows:
Subpart M--Qualified Health Plan Issuer Responsibilities
Sec.
156.1210 Confirmation of HHS payment and collections reports.
156.1230 Direct enrollment with the QHP issuer in a manner
considered to be through the Exchange.
156.1240 Enrollment process for qualified individuals.
Subpart M--Qualified Health Plan Issuer Responsibilities
Sec. 156.1210 Confirmation of HHS payment and collections reports.
Within 15 calendar days of the date of a payment and collections
report from HHS, the issuer must, in a format specified by HHS, either:
(a) Confirm to HHS that the amounts identified in the payment and
collections report for the timeframe specified in the report accurately
reflects applicable payments owed by the issuer to HHS and the payments
owed to the issuer by HHS; or
(b) Describe to HHS any inaccuracy it identifies in the payment and
collections report.
Sec. 156.1230 Direct enrollment with the QHP issuer in a manner
considered to be through the Exchange.
(a) A QHP issuer that is directly contacted by a potential
applicant may, at the Exchange's option, enroll such applicant in a QHP
in a manner that is considered through the Exchange. In order for the
enrollment to be made directly with the issuer in a manner that is
considered to be through the Exchange, the QHP issuer needs to comply
with at least the following requirements:
(1) QHP issuer general requirements. (i) The QHP issuer follows the
enrollment process for qualified individuals consistent with Sec.
156.265.
(ii) The QHP issuer's Web site provides applicants the ability to
view QHPs offered by the issuer with the data elements listed in Sec.
155.205(b)(1)(i) through (viii) of this subchapter.
(iii) The QHP issuer's Web site clearly distinguishes between QHPs
for which the consumer is eligible and other non-QHPs that the issuer
may offer, and indicate that APTC and CSRs apply only to QHPs offered
through the Exchange.
(iv) The QHP issuer informs all applicants of the availability of
other QHP products offered through the Exchange and displays the Web
link to or describes how to access the Exchange Web site.
(v) The QHP issuer's Web site allows applicants to select and
attest to an APTC amount, if applicable, in accordance with Sec.
155.310(d)(2) of this subchapter.
(2) QHP issuer customer service representative eligibility
application assistance requirements. If permitted by the Exchange
pursuant to Sec. 155.415 of this subchapter, and to the extent
permitted by State law, a QHP issuer may permit its issuer customer
service representatives who do not meet the definition of agent or
broker at Sec. 155.20 of this subchapter to assist individuals in the
individual market with applying for a determination or redetermination
of eligibility for coverage through the Exchange and for insurance
affordability programs, and to facilitate selection of a QHP offered by
the issuer represented by the customer service representative, provided
that such issuer customer service representatives comply with the terms
of an agreement between the issuer and the Exchange under which the
issuer customer service representative at least--
(i) Receives training on QHP options and insurance affordability
programs, eligibility, and benefits rules and regulations;
(ii) Complies with the Exchange's privacy and security standards
adopted
[[Page 37095]]
consistent with Sec. 155.260 of this subchapter; and
(iii) Complies with applicable State law related to the sale,
solicitation, and negotiation of health insurance products, including
applicable State law related to agent, broker, and producer licensure;
confidentiality; and conflicts of interest.
(3) Premium accuracy requirements. A QHP issuer must ensure that
(i) The premium it charges to an enrollee is the same amount as was
accepted by the Exchange in its certification of the QHP issuer after
accounting for any applicable APTC.
(ii) No later than 30 calendar days after discovery of an incorrect
amount it has charged an enrollee, retroactively correct any incorrect
amounts collected.
(iii) For issuers of QHPs in a Federally-facilitated Exchange, it
allows HHS to review the premiums charged to qualified individuals
through compliance reviews as set forth in Sec. 156.715(a).
(b) Direct enrollment in a Federally-facilitated Exchange. The
individual market Federally-facilitated Exchanges will permit issuers
of QHPs in each Federally-facilitated Exchange to directly enroll
applicants in a manner that is considered to be through the Exchange,
pursuant to paragraph (a) of this section, to the extent permitted by
applicable State law.
Sec. 156.1240 Enrollment process for qualified individuals.
(a) Premium payment. A QHP issuer must--
(1) Follow the premium payment process established by the Exchange
in accordance with Sec. 155.240.
(2) Offer method of payment options that do not discriminate
against individuals without bank accounts or credit cards.
(b) [Reserved]
(Catalog of Federal Domestic Assistance Program No. 93.778, Medical
Assistance Program)
(Catalog of Federal Domestic Assistance Program No. 93.773,
Medicare--Hospital Insurance; and Program No. 93.774, Medicare--
Supplementary Medical Insurance Program)
Dated: May 28, 2013.
Marilyn Tavenner,
Administrator, Centers for Medicare & Medicaid Services.
Approved: May 31, 2013
Kathleen Sebelius,
Secretary, Department of Health and Human Services.
[FR Doc. 2013-14540 Filed 6-14-13; 1:00 pm]
BILLING CODE 4120-01-P
