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Trouble In Transition City

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Jon Cohn wants to know what advocates of a single-payer health care system (using Jon's definition and endorsing Ezra Klein's point that constructing such a system should not entail banning private sector health care and health insurance) have to say about the large disruptions that would be involved in implementing such an idea. It's a good question.

Jon asked me to "put aside the politics for a second" but I think the politics are an important part of the answer. The odds run very strongly against the sort of "big bang" transition to single-payer that would introduce the disruptions actually happening. Short of some sort of awful catastrophe, it's extremely difficult to see how you could ever assemble sixty votes in the Senate for such a thing, with the administrative difficulties being a small part of the reason why.

If we ever do get single-payer, it's likely to be through a gradual evolution -- the consolidation, reform and expansion of the three large single-payer systems (Medicare, Medicaid, VHA) -- that we already have. That's both more politically tractable, and would break the disruption down into small, less disruptive parts.

The other thing that could happen is that you get a White House and a congressional leadership committed to single-payer, at which point the insurance industry blinks and decides to get behind the sort of mandate/regulate/subsidize plan Greg and others favor. Were such a thing to happen, I think liberals would be pretty daft to pass it up. My sincere belief is that any such plan would prove unworkable and would wind up gradually evolving toward single-payer, which would be a fine outcome, or else I'll be proven wrong and it'll work well, which would also be a fine outcome.

Some may feel that's a bit of a dodge, which I guess it is, but I also think it's fundamentally correct. What's more, large-scale disruptions are sort of integral to the concept of big bang reform and would happen under any sudden switch to a single-payer system. In some ways, a switch to single-payer would be less disruptive than a sudden switch to mandate/regulate/subsidize because at least everyone would be suddenly switching to a uniform system instead of trying to move from one patchwork to a new one.

Lastly, I agree with various folks around here and around the web who don't think arguing about the details of a reform plan is the most productive thing in the world. The class of things that count as "better than what we've got" is very big, and everyone in the history of American health care who's ever rejected an improvement on the theory that something even better is right around the corner has been proving wrong. I'll take what I can get, and I hope everyone who's thinking seriously about this issue feels the same way. My main concern is that people not reject single-payer in favor of a "more feasible" compromise plan in advance. If a situation actually arises where you can pass some non-single-payer plan but not a single-payer one, then, fine. But unless and until the alleged insurance industry wave of love for mandate/regulate/subsidize materializes then everything's on a par feasibility-wise and single-payer serves, at a minimum, as a useful threat with which to try and get the interest groups to put something else on the table.


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What sort of health care system would make Americans healthier? Despite the endless tropes from politicians that we have the best healthcare system in the world it is clear that other nations have lower infant mortality rates and higher life expectancies. I know there may be many reasons for this. However, as I read all the arguements for single payer systems or against them I have lost track of the goal which I thought would be making us all healthier, even if it means spending a bit more of our GNP.

The "best health care system in the world" is not accessible to the 40+ milliion of us without health insurance.

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What transition problem?  If we adopt single payer, then everyone will have health insurance... as soon as we do it... everyone.  Maybe for one shining moment, alot of people will actually have excess coverage due to the fact they are still covered under a private plan AND the new national insurance.  But that is hardly a problem.

Perhaps I'm being facetious.  I suppose it may cause some problems for the insurers, who will lose customers faster than hair.  But I hardly see that as a problem.

And there may be some short term confusion from providers in regard to what is covered and how they get paid.  But most of those problems could be easily avoided by a period of delay prior to implementation to allow everyone to get their bookkeeping up to speed.

 Like with any new program, there would be administrative snafus.  But any worse than our current system?

 And the market would likely need to make some adjustments.  Perhaps a few less administrators and a few more nurses...  Anyone want to complain about that?

So, where's the downside?  And please don't tell me uncertainty.  We've already got that, in spades. 

I'm all for single payer/universal access, but there will be a transition and it will be present some thorny issues. Investor-owned insurance companies are the "repository" for a significant amount of invested capital. If we put in place a system that drives most of them out of business, which single payer would do even if private insurance were not banned, I can see how there would be major difficulties for pension funds, mutual funds, etc. Somehow we would have to work out some kind of "buyout" (for want of better term) of the insurance companies.

but IMO you're exactly right.

The big obstacle is the [Est] $1.8 trillion/year in premiums that flow through the insurance companies to banks, Wall Street, etc. 
Also, giving even half that to the government for health care is also problematic.  Would the Bush Administration just use it to justify even more tax cuts for his friends?

Any ideas on what to do with that pool of money?

I would set up HCFA (the logical agency to administer the system) as a public/private entity similar to the Post Office with a budget separate from the general fund. Monies would flow directly to HCFA and never be available to the government for other purposes. You would also want to lump in all the money earmarked for Medicare/Medicaid since those programs would be rolled up into the universal system. It would be a BIG pile o' cash.

Teddy Kennedy is out there saying "Medicare for everybody". That makes sense to me. So I can go to the VA for coverage and my son can go to Medicare. If the insurance companies want to sell us better coverage, or expanded coverage, or coverage for plastic surgery well, more power to them. there's no reason for overwhelming government interference. Medicare is background noise. What's important is everybody gets to see the Doctor and the Dentist.

Two words for you-- Jacob Hacker.

His idea is pay or play-- Every employer either provides health insurance or pays a 5% payroll tax.
Their employees not provided group coverage would then be covered by Medicare, as would be the self-employed and unemployed.

The beauty of this system is that the employer-provided insurance system is left intact but it will slowy wither away. 5% is a low enough percentage that eventually every employer is going to find it cheaper to pay the tax than shop for and provide health insurance.

I really do agree with Matt.  We shouldn't sweat all the details right now.  We need to really push hard for health care reform in any reasonable form it takes.  Once something is in place it can be tweaked and improved.  Getting some thing in the works would be win-win.  The US would be starting the process of ensuring everybody had access to good health care.  And it is a cause we on the left has championed for a long time and rightfully could take credit for it. 

I see Jon already mentioned Hacker's plan. I'm a fan of Hacker's work (not just on health insurance but also his risk insurance ideas), he really should get a blog. :o)

What an insightful and concise argument.

I have to say, I agree 100%. This, despite the fact that I'm one of the guilty mudslinging parties.

I was <gulp> wrong. We should push for single-payer, as a powerful bargaining stance. If we get it, great. If not, we'll be in a much better position to get a favorable competition-based plan.

And we shouldn't be too attached to one plan over the other. Even if one is better than the other, both are solid improvements on the current situation.

<<repeat three times>>

OK, I think I got it now. 

Still, my main qualm is the '08 election. From a congressional viewpoint, pushing for single-payer is the best move; Congress is the place where the most bargaining occurs. But should that translate to single-payer as a primary plank on the Democratic presidential platform?

I keep hearing the notion that since the GOP will defame anything we do, we shouldn't pay heed to the obvious smears to come - in this case, 'Commie health care' and the like. But I don't consider the general public to be that gullible; people can and do make distinctions. Take one look at the President's Social Security disaster, and you'll see that Americans know when the BS pedal is to the floor.

(Yes, Iraq is the big exception, but c'mon - 9-11 made a lot of people very angry, and the Bushies have manipulated that to the Nth. And people are now finally starting to smell the BS there, too) 

Most Americans don't know jack about the currently-discussed alternatives to the current healthcare system, and won't until they become election issues. If at that time a competition-based plan is rolled out by the Dem candidate, will people believe the French-socialist-pigdog comparisons? I don't think they'll bite, because the insurance companies will be a major part of the system. It'll sound like typical Republican hot air, just like it did in '92.

However, if the plan under attack is single-payer, then Republicans will have some red meat mixed in the swill: the concomitant destruction of the health insurance industry, with all its 'socialist' connotations. It's not hard to imagine the haughty arrogance by Limbaugh, O'Reilly, etc. as they hoist yet more 'proof' that the Dems want to turn America into France with hot dogs. And people will bite - not everyone, but perhaps enough to lose another close election.

It was this concern that led me to embrace competition-based plans in the first place - not as a final solution, but as a 'strategic initiative' to warm Americans up to the concept of universal, tax-financed health care. But I'll be more open to other possibilities in the future, I swear.

Hopefully more people will read this thread and put away the screaming tendencies. Thank you again, Matt. 

Perhaps the best approach is agradual phase-out of private insurance. The first step might be to convert all government workers to national not-for profit health care.  Then offer it as an option to busnesses.  If they choose to go that route, a deduction will be taken out of employee paychecks and the businesses no longer have to deal with health care. When a critical point is reached with people buying in, insurance could be extended to the uninsured, with taxes collected from everyone who cannot prove that they buy private health insurance.  As time passed, it would be obvious to most businesses that it made sound business sense to go to single payer.  This sort of gradual approach may help offset the impact of insurance companies going out of business.  I am totally opposed to a "buyout" of the lecherous insurance companies. They have taken more than their share already.

Didn't Social Security and personal bankruptcy laws disrupt the flophouse industry?

Happier and cheaper will...

We are going to have to allow dual coverage if only for the fact that so much capital is tied up in already existing systems.

In order to pass a "National Health Coverage" system we need to start small and work up.  Start by covering basic stuff, primary care visits, urgent care visits, vaccines with some catastrophic care coverage worked in.  If folks want additional coverage for say accupuncture, chiropractic, elective surgery let them buy additional policies to cover that or pay cash for that.  Let them make the call.

 I say start small because otherwise the whole program will be too easy to torpedo by those who want to continue making money off the current system.  Remember how well the whatshisface and Louise comercials worked against the programs proposed by Bill & Hillary in the 90's.  They'll do that again, no matter what is proposed, that is why you have to put something forth that is EASILY defensable.

Re Jim Texan,

Good post and good for you for being big enough to say "I was wrong." 

You cite the SS debate as an example of the public's usually fairly good ability to detect BS and make distinctions as one reason to believe the public would actually distinguish between single payer vs. other proposals in a health care debate.

I'm inclined to disagree.  In the case of SS we are talking about a benefit and system that has been in place for a long time.  Americans know about it.  So when benefit cuts are put out as a consequence of Bush's concept that's relatively easy to grasp.

Debates over competing health care reforms, by contrast, are debates over alternative proposals that do not yet exist, over abstractions.  They are played out in what to most Americans is inaccessible policy wonkese.  So it is far easier in such a context to get away with gross distortions or lies and say up is down with impunity.  As Rovebush surely knew when he characterized Kerry's proposal as essentially a government takeover of the health care industry.

If we come out in favor of a harder-to-explain regulatory reform it will be attacked anyway as a government takeover of the health care sector by the Limbaughs et al.  But it will be harder to defend against those charges simply because it is harder to convey what it is as opposed to what it is not. 

I have policywonk-type questions about how Medicare expansion would work but from a strategic standpoint this concept seems best to combine the advantages of a better policy approach (above all by severing the widespread linkage between employment and health insurance; the advantages of doing so I think are very easy to explain and intuitively very easy for the public to grasp) with ease of explanation and broad gut level appeal to the public.  If we go that route we go a long ways towards short circuiting the "government takeover" charges because of the comfort level most people have with Medicare.  The debate over whether we go with single payer or something else might largely fall away as a kind of bugaboo or hangup that gets in the way of universal health insurance supporters coalescing and organizing around and fighting for something vastly superior to what we have now.   

But amen to Matt on his point about staying flexible and not being overly wedded to any particular approach.   

Re '08 each candidate will make his and her own decision on what they want to say on this issue.  It will be interesting to see what they decide to do.  One of my concerns about Hillary is that she might feel overly hamstrung, more so than, say Edwards, in the scope of what she proposes because of her '94 experience.

Re '06 I am intrigued by the possible virtues of a Democratic variant on the '94 Republican Contract With (On) America, as a way to make it easier for candidates who want to insert national issues into their campaigns in addition to the local issues that are always present.  Opening up Medicare might be one of the planks.  

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HCFA (Health Care Financing Administration) was renamed the Center for Medicare and Medicaid Services.  It is currently part of HHS within the Executive Branch, unlike the US Postal Service.

 At the present time, the Postmaster General  is not selected by the President and confirmed by the Senate.  Are you advocating that an agency with control pf spending approximately half of the budget not be responsible to elected officials?

I'm not familiar with Hacker's work, but the problem with the 5% deal is that ALL employers that currently provide health insurance as a benefit probably pay more than 5% of payroll for the health insurance.  My employer, a municipality, pays about 15% of payroll for me and my family, they would pay less if I were single, of course (I pay about 3% of my payroll as my contribution, the city pays the rest).  A 5% payroll tax would cause a mass exodus of employers from private plans to the national plan, probably as soon as it was enacted.  So as for the employer plans withering away - I think not!

Of course, this would solve the selection problem that has caused this mess in the first place, as all people would be in the same risk pool.  What would then explode would be the market for secondary plans, ala Medicare, that would cover the deductibles and copays in the government-sponsered plans.

This plan has a lot to recommend it, however.  Of course, that means it will never happen.......

Marc

>And the market would likely need to make some adjustments.  Perhaps a few less administrators and a few more nurses...  Anyone want to complain about that?<

Nope, no problem here!  :-)

Marc, RN (yes, and firefighter, too, whose spouse is an RN, too)

As someone who's been working on this issue since the late 70's, I don't understand why there's even a question here. To my mind, with the possible exception of supplemental coverage which is problematic itself, single-payer means the end of private health insurance.

  • If we allow supplemental coverage as Medicare does today, then we will still have significant inequities and extra complexity. The most recent data I've seen showed that about half of Medicare beneficiaries had private supplemental coverage. Perhaps 25 percent had Medicaid as an equivalent supplement. The other 25 percent had nothing other than Medicare and they were precisely who you'd expect: near poor. Not poor enough for Medicaid, but not comfortable enough to be able to buy private coverage. And certainly offering private plans the ability to write supplemental coverage would only be a minor sop when their core business would be eliminated.
  • Medicare today offers beneficiaries the option of enrolling in private managed care plans. Do single-payer advocates expect that option to be maintained and, if so, how does it differ from other voucher plans?

Perhaps the single-payer advocates have not been held to the same explanatory standard as everyone else. 

For a number of reasons that go beyond the politics, I prefer universal coverage without single payer (www.signalhealth.com). But on the politics of it, choosing another option is not giving up at the front end. It's recognizing:

  • That single-payer is a fundamental threat to the survival of private plans. They have no choice but to fight to the death because single-payer means their death. Alternatively, they could be allies because a new market of 45 million people would open up.
  • Most people prefer to have multiple choices. Individuals confronting large systems only have two means of influence, voice and exit. The voice of individuals in a national single-payer system would simply not be heard. And there would be no exit. That's not the case with voucher systems. Health plans might behave in ways we don't like, but at least there would be an option for individuals to choose another plan. And the summation of many individuals choosing one plan over another would be leverage in itself.
  • American history and political culture, our sense of ourselves puts great stock in individualism and freedom. Yes, much of this is overblown myth and much of it includes troublesome baggage, but advocates of universal coverage are asking for trouble if they ignore this.
There are powerful symbols that we can take advantage of or we can fight. Why ask for trouble?

Two problems at least with "play or pay"

  • It retains the relationship of health coverage to employment and to an employer. This means that every time you change jobs you have to change your coverage. It's called "job lock." Not good.
  • It's insensitive to the financial abilities of employers or the differing compensation levels among employees
It's time to let that system go rather than trying to shore it up or leverage it.

 

As I understand Matt's post, the transition problem is one involving insurance companies suddenly finding themselves bankrupt, and their employees out of work. My solution would be for a single payer system to be used, with the funding provided by a progressive payroll tax, but with the insurance companies competing to administer the program in various regions of the country. That keeps the element of competition, prevents the need for a massive new federal bureaucracy, and keeps many insurance companies in business.

I argue that Democrats should promote a health care model that does the best job of providing proper incentives.

I explain what kind of system that is here.

I argue that the Democratic Party should wrap its identity around a health care system that provides the best incentives.

For a detailed explanation of what I'm talking about, go here.

James Kroeger

You're correct about the renaming of HCFA, it seemed like a pointless change to me and, I guess I've been in healthcare so long, it's hard to change.  It'll always be HCFA to me. (Also HCFA worked well as an acronym, pronounced 'hickfa', where as CMMS doesn't.  I'll stick with HCFA.)


I'm not suggesting that HCFA, which to me is also a more sensible name for the entity I'm advocating since Medicare and Medicaid will be irrelevant and it describes what the agency would do, be completely analogous to the USPS.  But I do think it needs to have similar separation from the general operations of the government, certainly it needs a discrete budget.  Though the leadership definitely should have accountability to elected officials, I do think that whoever heads this agency should not be a political appointment subject to change with every new administration.  You'd avoid that by giving them a fixed term that did not coincide with the presidential election cycle.


As to whether to do away with private ins companies or use vouchers:


I do not believe that the program should 'ban' private ins, but maintaining our current system and just transferring the financing of it to the gov't does not make good sense to me.  I don't believe it will do much to contain costs over the long term.  I believe that private ins companies currently represent a major 'hole' in our system where healthcare $$ disappear and represent the main opportunity for saving under a single pay system.  If we leave the current system of insurance in tact, the insurance companies will eventually run the show.  The sheer amount of money involved will provide the insurance companies with all the leverage they need to get whatever they want from the Congress.  I think we need to starve that beast.


Obviously, we cannot just shutter all the insurance companies tomorrow and move to a single payer system.  Some kind of transition will be necessary, but the phase-in of coverage for the currently uninsured should be as rapid as possible.  Not just out of humane concerns but because the uninsured represent a significant cost for our system now.

...than countries with national health insurance do. I'm not sure, but I think we spend something like 13% of GDP, while the Europeans something on the order of 7-9%. That's partly because administrative costs for things like patient screening to weed out sick people, millionaire executive salaries and returns to shareholders account for abut 30% of U.S. healthcare costs. I think it was Paul Krugman who pointed out that 2-3 million people in the U.S. are employed just to pass medical bills off on someone else.


So the U.S. can actually have a system that makes us all healthier for less of our GDP, not more. I find that amazing, but it's evidently true. As a side note, I now live in Sweden, where my wife just had a baby. Top-flight medical care and the bill from Karolinska Hospital  was just over ten bucks. No additional cost for pre-natal and post-natal care, since it's pre-paid in our taxes.

Win some, lose some. All those shareholders make lots of money off of a system that charges my brother an extortionate amount for his health insurance. I say screw 'em.

Yes, I think our businesses would be more competitive if they didn't provid health insurance.

Medicare for all or, perhaps, just saying that all Americans should have the same healthcare plan that members of Congress have should be pretty easy to explain and easy for us to campaign on: "Lookee here, the Republicans don't want you to have the same healthcare that they have." And punishing those HMO and pharmaceutical companies that have donated to Rethuglicans for all these years? SOOOOWEEEEET!

Because single payer has so many efficiencies that it would be much, much cheaper, as shown in every country in the world that has it.

JamesKroeger, I had the pleasure of reading the article you link to an a further article linked from that. Great, great stuff. Incredibly useful. I've added you to my bookmarks.

...would at least have health insurance.

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Here is an idea: why not link with Canada's health system in a form of a NAFTA? I mean, why do we need to re-invent the wheel. We could link up with their already established systems. I know this is radical, but why is it that NAFTA only benefits the corporations. Why not have it work for average citizens for a change. Initially we woule exclude Mexico.

From my blog entry on 6/17.05:

This discussion reminds me a lot of the “Economics of Health Care” course I took in graduate school, possibly the most enlightening economics elective I ever took. It was the term paper in particular that I found especially challenging. We were asked to “solve” the health care crisis in America, given all that we had learned about America’s health care industry and the comparative health care systems found in Canada, England, France, Germany, and Japan. The model I ended up embracing was certainly not one that I had originally thought might be among the final two contenders."


"What led me to my ultimate choice was discovering that there were a couple of fundamental principles I could logically base my choice on. Indeed, I eventually realized that there was one principle above all others that Democrats should be basing all of their reform proposals on. We need to fix the incentives that drive our health care providers. I guess economists tend to understand this more than most people..."

For the rest of this entry: http://taxwisdom.org/WordPress/index.php

As long as your gauaranteed similar coverage at your new job (which would true under a Pay or Play plan) changing coverages may be a hassle but certainly not a disaster, and I don't see that it's hassle enough to produce job lock.

The insurance companies would probably convert to administration companies to whom the government would farm out the actual grunt work of the health payor system, which would be at least as massive and labor intensive as it is now, probably ab it so since you;'d nbe adding 40 million more people to the system. Marketing departments and the upper management would be out of jobs. The costomer service reps, claim adjudicators, care management specialists, mail room clerks, IT personnel, accountants and analysts, etc. would mostly keep their jobs since the work would certainly not go away.

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