.
Who’s Enrolled in the State Children’s Health Insurance Program (SCHIP)? An Overview of Findings From the Child Health Insurance Research Initiative (CHIRI) Cindy Brach, MPP*, Eugene M. Lewit, PhD, Karen VanLandeghem, MPH, Janet Bronstein, PhD||, Andrew W. Dick, PhD¶, Kim S. Kimminau, PhD#, Barbara LaClair, MPH#, Elizabeth Shenkman, PhD**, Laura P. Shone, MSW, Nancy Swigonski, MD and Peter G. Szilagyi, MD, MPH¶,
* Center for Delivery, Organization and Markets, Agency for Healthcare Research and Quality, Rockville, Maryland
The David and Lucile Packard Foundation, Los Altos, California
Independent Consultant with the Agency for Healthcare Research and Quality, Arlington Heights, Illinois
|| University of Alabama, Birmingham, Alabama
¶ Department of Community and Preventive Medicine, University of Rochester School of Medicine and Dentistry, Rochester, New York
# Kansas Health Institute, Topeka, Kansas
** Institute for Child Health Policy, University of Florida, Gainesville, Florida
Department of Pediatrics, University of Rochester School of Medicine and Dentistry, Rochester, New York
Departments of Pediatrics and Medicine, Indiana University School of Medicine, Indianapolis, Indiana
-->
ABSTRACT
Background. The State Children’s Health Insurance Program (SCHIP) was enacted in 1997 to provide health insurance coverage to uninsured low-income children from families who earned too much to be eligible for Medicaid.
Objectives. To develop a "baseline" portrait of SCHIP enrollees in 5 states (Alabama, Florida, Kansas, Indiana, and New York) by examining: 1) SCHIP enrollees’ demographic characteristics and health care experiences before enrolling in SCHIP, particularly children with special health care needs (CSHCN), racial and ethnic minority children, and adolescents; 2) the quality of the care adolescents received before enrollment; and 3) the changes in enrollee characteristics as programs evolve and mature.
Methods. Each of 5 projects from the Child Health Insurance Research Initiative (CHIRI) surveyed new SCHIP enrollees as identified by state enrollment data. CHIRI investigators developed the CHIRI common core (a set of survey items from validated instruments), which were largely incorporated into each survey. Bivariate and multivariate analyses were conducted to ascertain whether there were racial and ethnic disparities in access to health care and differences between CSHCN and those without. Current Population Survey data for New York State were used to identify secular trends in enrollee characteristics.
Results. Most SCHIP enrollees (65% in Florida to 79% in New York) resided in families with incomes 150% of the federal poverty level. Almost half of SCHIP enrollees lived in single-parent households. A majority of SCHIP parents had not had education beyond high school, and in 2 states (Alabama and New York) 25% had not completed high school. The vast majority of children lived in households with a working adult, and in a substantial proportion of households both parents worked. Children tended to be either insured for the entire 12 months or uninsured the entire 12 months before enrolling in SCHIP. Private insurance was the predominant form of insurance before enrollment in SCHIP in most states, but 23.3% to 51.2% of insured children had Medicaid as their most recent insurance.
Health Care Use and Unmet Needs Before SCHIP. The vast majority of all SCHIP enrollees had a usual source of care (USC) during the year before SCHIP. The proportion of children who changed their USC after enrolling in SCHIP ranged from 29% to 41.3%. A large proportion of SCHIP enrollees used health services during the year before SCHIP, with some variability across states in the use of health care. Nevertheless, 32% to almost 50% of children reported unmet needs.
CSHCN. The prevalence of CSHCN in SCHIP (between 17% and 25%) in the study states was higher than the prevalence of CSHCN reported in the general population in those states. In many respects, CSHCN were similar to children without special health care needs, but CSHCN had poorer health status, were more likely to have had unmet needs, and were more likely to use the emergency department, mental health care, specialty care, and acute care in the year before enrolling in SCHIP than children without special health care needs.
Race and Ethnicity. A substantial proportion of SCHIP enrollees were black non-Hispanic or Hispanic children (Alabama: 34% and <1%; Florida: 6% and 26%; Kansas: 12% and 15%; and New York: 31% and 45%, respectively). Minority children were poorer, in poorer health, and less likely to have had a USC or private insurance before enrolling in SCHIP. The prevalence and magnitude of the disparities varied among the states.
Quality of Care for Adolescents. Seventy-three percent of adolescent SCHIP enrollees engaged in one or more risk behaviors (ie, feeling sad or blue; alcohol, tobacco, and drug use; having sexual intercourse; and not wearing seat belts). Although almost 70% of adolescents reported having had a preventive care visit the previous year, a majority of them did not receive counseling in each of 4 counseling areas. Controlling for other factors, having a private, confidential visit with the physician was associated with an increased likelihood (2–3 times more likely) that the adolescent received counseling for 3 of 4 counseling areas.
Trends Over Time. New York SCHIP enrollees in 2001, compared with 1994 enrollees in New York’s SCHIP-precursor child health insurance program, were more likely to be black or Hispanic, older, from New York City, and from families with lower education, income, and employment levels. A greater proportion of 2001 enrollees was uninsured for some time in the year before enrollment, was insured by Medicaid, and lacked a USC. Secular trends in the low-income population in the state did not seem to be responsible for these differences. Program modifications during this time period that may be related to the shift in enrollee characteristics include changes to benefits, outreach and marketing efforts, changes in the premium structure, and the advent of a single application form for multiple public programs.
Conclusions. SCHIP enrollees are a diverse group, and there was considerable variation among the 5 study states. Overall, SCHIP enrollees had substantial and wide-ranging health care needs despite high levels of prior contact with the health care system. A sizable minority of SCHIP enrollees has special health care needs. There is racial and ethnic diversity in the composition of enrollees as well, with racial and ethnic disparities present. The quality of care adolescents received before enrollment in SCHIP was suboptimal, with many reporting unmet health care needs and not receiving recommended counseling. The characteristics of SCHIP enrollees can be expected to change as SCHIP programs evolve and mature.
Policy Implications. 1) Benefits should be structured to meet the needs of SCHIP enrollees, which are comparable to Medicaid enrollees’ needs in many respects. 2) Provider networks will have to be broad if continuity of care is to be achieved. 3) Multiple outreach strategies should be used, including using providers to distribute information about SCHIP. 4) The quality of care delivered to vulnerable populations (eg, minority children, CSHCN, and adolescents) should be monitored. 5) States and health plans should actively promote quality health care with the goal of improving the care received by SCHIP enrollees before enrollment. 6) States will have to craft policies that fit their local context. 7) Collecting baseline information on SCHIP enrollees on a continuous basis is important, because enrollee characteristics and needs can change, and many vulnerable children are enrolling in SCHIP.
--------------------------------------------------------------------------------
Key Words: access • children • children with special health care needs • disparities • enrollment • ethnicity • insurance • Medicaid • minorities • quality • race • State Children’s Health Insurance Program
Abbreviations: CHIRI, Child Health Insurance Research Initiative • SCHIP, State Children’s Health Insurance Program • CSHCN, children with special health care needs • USC, usual source of care • FPL, federal poverty level
This supplement to Pediatrics presents findings from the Child Health Insurance Research Initiative (CHIRI) that shed light on the question, "Who is enrolled in the State Children’s Health Insurance Program (SCHIP)?" SCHIP1 was enacted in 1997 in response to a seemingly intractable problem: the lack of health insurance among children. Although a large public insurance program for low-income children, Medicaid, has been in effect since 1965, 14% of all children under 19 were uninsured in 1995.2 Evidence had continued to accumulate that children without insurance had reduced access to health care and poorer health status.3–11 However, low-income children from families who earned too much to be eligible for Medicaid and did not have access to affordable dependent coverage from employers continued to fall between the cracks.12 Congress responded to the plight of these uninsured children by sponsoring SCHIP, which made $40 billion available as federal matching funds to states over a 10-year period.
Under the SCHIP legislation, states are given considerable latitude in designing and implementing their programs.13 They can expand Medicaid, create a separate program, or combine the 2 approaches. States also have control over setting the eligibility criteria, the delivery system, and, for states that opted for separate or combination programs, the benefit structure of their SCHIP programs. Although SCHIP is a small program compared with Medicaid (Medicaid serves 10 times as many children as SCHIP), it generated enthusiasm for the task of providing health insurance for children.14 Many were inspired by the flexibility offered under SCHIP to invest considerable energy into designing SCHIP programs.14 The autonomy given to states has resulted in the implementation of SCHIP programs with greatly varying features.
WHO’S INTERESTED IN WHO’S ENROLLED IN SCHIP?
Policy makers have an interest in knowing whether SCHIP is in fact serving the children it was intended to serve. SCHIP was designed to serve a specific segment of children: those who were not eligible for Medicaid and yet did not have "creditable coverage," that is, alternative health insurance that meets minimum standards.15 At the time of SCHIP’s passage, policy makers balanced an interest in reducing the number of uninsured children against concern over creating an additional entitlement by further expanding Medicaid. Furthermore, SCHIP was passed during a time period in which the welfare system was reformed dramatically to encourage and reward work. As a result, beneficiaries of the SCHIP legislation were portrayed as children of working families who pay their taxes but could not afford health insurance.16–18
State health agency administrators, public officials, and health plans also need information about who enrolls in SCHIP. Ideally, the SCHIP health care delivery system would be shaped by information regarding the characteristics and needs of enrollees. Because SCHIP was new, policy makers had to design their programs based on assumptions and estimates about how the SCHIP population may resemble or be dissimilar to other low-income children: those insured by Medicaid, those privately insured, and those uninsured. Data on SCHIP enrollees’ demographics and prior health care experiences allow policy makers to reexamine their assumptions and make evidence-based decisions.
Policy makers and program administrators are also interested in the characteristics and needs of vulnerable groups of SCHIP enrollees. Children with special health care needs (CSHCN), members of racial and ethnic minority groups, and adolescents constitute distinct populations whose health is of particular concern to policy makers. Their prevalence in SCHIP, characteristics, and prior health care experiences could influence future program adjustments.
Providers are also interested in knowing about the characteristics and needs of SCHIP enrollees. As SCHIP’s front line, providers want to know about the types of children they are likely to see to deliver the most appropriate services. Providers also want to know about the care enrollees have received before SCHIP enrollment, which can serve as a benchmark for learning if their participation in SCHIP improves health care for enrolled children.
WHAT IS CHIRI?
Numerous child health services researchers and funders of research recognized that the implementation of SCHIP represented an unparalleled research opportunity.19 In response to this opportunity, CHIRI, a unique, multistate research program, was launched in the fall of 1999 by the Agency for Health Care Research and Quality, The David and Lucile Packard Foundation, and the Health Resources and Services Administration.20 CHIRI’s main purpose is to supply policy makers with information to help them improve access to and the quality of health care for low-income children.
CHIRI is a 3-year, $9.7 million effort that includes 9 separate research projects, 7 of which are state-based and 2 of which are national in scope. Although the primary focus of most CHIRI studies is SCHIP, some projects include studies of Medicaid and the Title V Maternal and Child Health Services Block Grant program (a component of which serves CSHCN). The majority of the studies concentrate on the impact of public insurance programs on enrolled children, but some CHIRI projects examine impacts of public health insurance programs on communities and the health care system.
CHIRI places an emphasis on particularly vulnerable populations: CSHCN, racial and ethnic minority children, and adolescents. Little is known about the impact of changes in health care delivery systems on CSHCN, who have been found in general to have many needs.21–24 Minority children are also of particular interest, because past research has shown that minority children can face greater barriers to care than nonminority children.25–27 Adolescents have also been identified as a third vulnerable population that is at risk of high morbidity and mortality but often goes underserved.28 Thus, 7 CHIRI projects address CSHCN, 5 projects address disparities between minority and nonminority children, and 2 projects address adolescents. Furthermore, several CHIRI studies are longitudinal and are assessing SCHIP’s impact both overall and on vulnerable populations.
Producing policy-relevant research has been a fundamental objective of CHIRI from its inception. CHIRI grantees are required to work with the state and local programs being studied to ensure that the researchers are answering questions that policy makers are asking. Researchers are also required to ensure that public officials and other stakeholders continue to be involved throughout the studies. National stakeholders have also been given an opportunity to have input into CHIRI research.
Finally, CHIRI is a collaborative initiative that is able to harness the research skills, knowledge, and perspectives of multiple research entities. Although the 9 CHIRI studies were designed and funded separately, the researchers have engaged in a cooperative process that makes CHIRI truly an initiative rather than a collection of disparate studies. The principal investigators all participate in a coordinating committee and various work groups to facilitate research collaboration among projects. This Pediatrics supplement is an example of this collaboration. CHIRI researchers have joined forces to present comparable findings across several states, highlighting commonalities and dissimilarities of SCHIP enrollees.
WHAT IS CHIRI’S NEW CONTRIBUTION?
Despite researchers’ interest in studying SCHIP, no national studies have yet been published that can answer the question, "Who’s enrolled in SCHIP?" based on identified samples of program enrollees. Several researchers have modeled what the SCHIP-eligible population looks like by using population-based household surveys.29,30 Population-based surveys, however, cannot conclusively identify children who are enrolled in SCHIP because of confusion about which insurance coverage children possess. Moreover, models of income eligibility, even sophisticated ones, cannot take into account all states’ complex eligibility rules. Even if SCHIP enrollees could be identified reliably, most national surveys would be limited by having few SCHIP enrollees in most states because of the relatively small number of SCHIP enrollees.
CHIRI analyses are based on surveys of children known to be enrolled in SCHIP and thus provide robust samples of SCHIP enrollees. Additionally, CHIRI surveys are able to capture SCHIP enrollees’ experiences with insurance and health care before they enrolled in SCHIP as well as support analyses by race and ethnicity or CSHCN status and examinations of the quality of care received by adolescents.
A handful of researchers have collected data for single-state evaluations of SCHIP programs,31–33 but these studies have not included the breadth of analyses found in the CHIRI research. Although not national in scope, the CHIRI data in this supplement encompass 5 states that collectively accounted for almost 30% of SCHIP enrollment in 2001. CHIRI includes states that are large and had SCHIP-like programs before the passage of the SCHIP legislation as well as relatively small states that implemented new programs as a result of SCHIP. This range provides more breadth than studies of single states.
METHODS
The specific methods of the CHIRI projects are described in detail in the articles and technical appendices included in this supplement.24,28,34–38 Each CHIRI project represented in this supplement conducted a survey of new enrollees of separate, free-standing SCHIP programs as identified by state enrollment data. (Indiana sampled only CSHCN new enrollees in both their free-standing and Medicaid expansion SCHIP programs, and Florida sampled only adolescents.) Table 1 summarizes the SCHIP program characteristics in the study states. Each project was responsible for the design of its own survey to meet its objectives.
more...
>>http://pediatrics.aappublications.org/cgi/content/full/112/6/SE1/e499?maxtoshow=&HITS=&hits=&RESULTFORMAT=&fulltext=Health+Insurance&andorexactfulltext=and&searchid=1128407254349_37665&stored_search=&FIRSTINDEX=0&resourcetype=1
.