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Department of Health and Human Services: Payments For
Department of Health and Human Services: Payments For
OFFICE OF
INSPECTOR GENERAL
INAPPROPRIATE MEDICARE
PAYMENTS FOR
TRANSFORAMINAL EpIDURAL
INJECTION SERVICES
~, SERVICEs
Daniel R. Levinson
Inspector General
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August 2010
DEI -05-09-00030
out their respective responsibilities and are intended to provide independent assessments of
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.. EXECUTIVE SUMMARY
OBJECTIVE
1. To determine the extent to which Medicare Part B payments for
requirements.
BACKGROUND
i pain
management technique used to diagnose or treat pain. Transforaminal
inter
ventiona
epidural injections may be used to treat pain that starts in the back and
radiates down the leg, such as that from a herniated disc pressing on a
nerve. Two primary codes, 64479 and 64483, are used to bil a single
injection in the cervical/thoracic or lumbar/sacral areas of the spine,
respectively. Each primary code has an associated add-on code for use
when injections are provided at multiple spinal
levels.
FINDINGS
EXECUTIVE
SUMMARY
RECOMMENDATIONS
Based on the results of our review, the Centers for Medicare & Medicaid
proper documentation.
Strengthen program safeguards to prevent improper payment for
transforaminal epidural injection services. To improve program
safeguards, CMS could encourage contractors to examine
RESPONSE
CMS concurred with our recommendations and outlined steps to
payments for transforaminal epidural injection
services. We did not make any changes to the report based on CMS's
comments.
improve its oversight of
OEI.05.09.00030
11
~ TABLE
o F
CONTENTS
INTRODUCTION ..............".............................1
A: Detailed Methodology. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 20
..
NTRODUCTION
OBJECTIVE
1. To determine the extent to which Medicare Part B payments for
requirements.
BACKGROUND
Chronic pain affects more adults in the United States than diabetes,
1 American Pain Foundation, Pain Facts & Figures, July 8, 2009. Accessed at
ofNCH physician/supplier file and (2) 2007 IOO-percent NCH physician/supplier file,
5 Ibid,
6 Estimate based on OIG analysis of
files: (i 2007 100-percent NCH physician/supplier fie and (2) I-percent sample of the
OEI.05.09.00030
NTRODUCTION
The number of
10
medication into the back help to reduce inflammation and relieve pain.
vertebrae has a pair offoramina, one on the left side and one on the
right side.12
10 Sara Taylor, Doctor with Waldorf offce guilty offraud, Southern Maryland
Newspapers Online, February 27,2008. Accessed at http://www.somdnews.com/on
June 12,2009.
11 Henry Gray, Anatomy
of
OEI.05.09.00030
NTRODUCTION
During a transforaminal epidural injection, the physician injects
medication through the foramen close to the affected nerve root in the
patient's back. This technique may enable the physician to inject the
pain as possible, reducing
medication as close to the source of
inflammation and relieving the patient's pain. See Figure 1 for an
example of the target point, through the foramen, for a transforaminal
epidural injection.
Figure 1:
Transforaminal
Epidural
Injections
Source: The Pain Clinic, "Selective Transforaminal Nerve Root Blocks," Accessed at http://ww.painclinic.org/on
September 2. 2009,
that are located near the injection point. Some physicians perform the
procedure without radiographic guidance, which is referred to as a
"blind" injection. One study concluded that physicians "blindly"
performing epidural injections failed to correctly perform the injections
13 G, El- Khoury, et al. Epidural Steroid Injection: A Procedure Ideally Performed with
OEI.05.09.00030
NTRODUCTION
complications resulting in stroke, paralysis, and death have been
documented.
14
part.
16 Ibid.
OEI.05.09.00030
NTRODUCT
o N
when more than one level is injected. The add -on codes are 64480
(cervical/thoracic) and 64484 (lumbar/sacral).
64479
64483
17 CMS, Medicare Program Integrity ManuaL, Pub, No, 100-08. ch.3, 11.1. The Manual
does not provide examples of the types of test reports required, Test reports for
transforaminal epidural injection services would likely include reports from diagnostic tests
that may identify whether the patient has a condition that is appropriately treated with
transforaminal epidural injections.
18 CMS, Medicare Program Integrity ManuaL, Pub. No. 100-08, ch.3, 11.1.
19 Section 1848(c)(5) of the Act requires the Secretary of Health & Human Services to
develop a uniform coding system for all physician services, The American Medical
Association's Current Procedural Terminology (CPT) codes are a numeric coding system
consisting of descriptive terms that are used primarily to describe medical services and
procedures performed by physicians and other health care practitioners,
20 Although physicians may refer to transforaminal epidural injections as diagnostic or
therapeutic, both types of injections are reported using the same procedure code, Procedure
codes do not distinguish between diagnostic and therapeutic.
OEI.05.09.00030
NTRODUCTION
Medicare Part B Payments for Transforaminal Epidural Injections
Medicare reimburses physicians for transforaminal epidural injections
according to the Medicare Physician Fee Schedule.21 Medicare
$327.81
$112.56
64480
$151,21
$73,52
64483
$328.95
$99,67
64484
$156.90
$62.15
Reimbursements for primary codes 64479 and 64483 are higher because
they include presurgical and postsurgical expenses related to the
procedure that the add-on codes, 64480 and 64484, do not.
Physician payments also vary based on the modifiers23 biled with the
CPT. For example, bilateral transforaminal epidural injections, which
are performed on both the right side and the left side of a vertebral
level, should be biled using modifier 50, which increases
reimbursement to 150 percent of the base rate.
21 Section 1848(a)(i) of
the Act established the Medicare Physician Fee Schedule as the
basis for Medicare reimbursement for all physician services beginning in January 1992,
22 Base rates are national Medicare Physician Fee Schedule amounts with no adjustment
OEI.05.09.00030
INTRODUCTION
Facilty Payments. Medicare reimburses ASCs and hospital outpatient
(HCPCS) Codes and Payment Rates, 2007, and Hospital Outpatient Prospective Payment
Rates,
2007,
25 CMS, Medicare Program Integrity ManuaL, Pub, No, 100-08, ch,13, 1.3.
26 NCDs, issued by CMS, govern how Medicare wil cover specific services, procedures, or
technologies at a national
leveL.
27 CMS, Medicare Program Integn'ty ManuaL, Pub, No. 100-8, ch, 13, 4,
OEI.05.09.00030
INTRODUCTION
Edits. Contractors may implement edits to prevent improper payments.
These edits are part ofthe claims-processing system that automatically
pays all or part of a claim, denies all or part of a claim, or suspends all
or part of
METHODOLOGY
28 CMS, Medicare Program Integrity ManuaL, Pub. No. 100-08, ch, 13, 5.3 and 10.
29 CMS, Medicare Program Integrity ManuaL, Pub, No. 100-08, ch.3, 5.1.1.
30 OIG, Medicare Payments for Facet Joint Injection Services, OEI 05-07-00200,
September 2008.
OEI.05.09.00030
INTRODUCTION
Sample Selection
2007 allowed
Data Collection
procedure codes in the 2007 IOO.percent NCH Medicare Part B physician/supplier fie.
32 These claims represented less than I percent of the population.
33 Multiple line items may be biled within a single claim, Hereinafter, line items wil be
referred to as services,
34 A nonresponder is defined as a provider with whom no successful contact was made
after at least three written contacts and two phone calls. Providers with whom successful
contact was made who did not return the requested medical records were not counted as
nonresponders, but rather as having a documentation error.
OEI.05.09.00030
INTRODUCTION
inquired about what edits they had in place associated with the LCDs.
Because CMS requires the outgoing contractors to inform the incoming
contractors of edits on LCDs, we were able to obtain written
confirmation from the 11 contractors that we interviewed about the
program safeguards used by all
14 contractors operating in 2007. Thus,
we report on information from all
the
medical records.
Data Analysis
physician services
did not meet Medicare requirements. We also calculated the
10
"
INTRODUCTION
had in 2007. In addition, we analyzed the number and type of edits
each contractor had in 2007. We considered a contractor to have an
LCD or edit if it covered at least one State within the contractor's
jurisdiction at any time in 2007. To determine whether any safeguards
changed, we analyzed the LCDs and edits in 2009 and compared those
to the ones in place in 2007. Finally, we reviewed information collected
Standards
This study was conducted in accordance with the Quality Standards for
Inspections approved by the Council of the Inspectors General on Integrity
and Efficiency.
OEI-05.09.00030
11
.. FINDINGS
Thirty-four percent of transforaminal epidural
injection services allowed by Medicare in
Injection
Sample
Services
Type of Error
Allowed
Amount
Allowed
Services
Amount
Documentation
87
$19,504
19%
$29 milion
Medical Necessity
56
$12.109
13%
$19 millon
Coding
35
$3.626
8%
$6 milion
(30)
($6,161)
(7%)
($9 milion)
148
$29,078
34%"
$45 milion
(Overlapping Errors)
Total
this
review is on physician claims, we also analyzed facility claims that were
estimates for associated facility claims. Although the focus of
12
FINDINGS
documentation errors may be the result of recordkeeping problems,
others may represent services not rendered. Records lacking
documentation to show that care was provided do not meet Medicare
requirements.
Ten percent of transforaminal epidural injection services were undocumented.
sampled service. In all other cases, the requested record was never
submitted.
Nine percent of transforaminal epidural injection services were insufficientlv
Office
Facility
Documentation'
27%
13%
Medical Necessity
18%
9%
8%
9%
Coding
Any Error
41%"
28%
OEI.05.09.00030
13
FINDINGS
Thirteen percent of transforaminal epidural injection services had a medical
necessity error
All but one ofthe miscoded services resulted in overpayment. The one
underpayment was a bilateral transforaminal epidural injection service
OEI.05.09.00030
14
FINDINGS
Among the four most common LCD requirements, contractors most
frequently required that providers perform the procedure only on
patients with acceptable diagnoses codes. All nine contractors with
LCDs listed this requirement in their LCD. In addition, eight of
the
six of the nine contractors listed all four of the most common
requirements in their LCD.
Subsequent to our analysis period, the number of contractors with LCDs
decreased. In 2009, 7 contractors had LCDs covering 23 States.
Eight contractors did not enforce all of their LCD requirements with edits
Although, in general, contractor staff reported that edits were the best
way to enforce the requirements in their LCDs, only one contractor
enforced all LCD requirements with edits. Two contractors did not have
any edits. See Table 5 for a list of the most common LCD requirements
and corresponding edits by contractor.
OEI.05.09.00030
15
FINDINGS
Table 5: 2007 Common LCD Requirements and Edits by
Contractor
Edit
LCD
.
.
Edit
LCD
Edit
.
.
4
5
6
7
.
.
8
9
.
.
.
.
.
.
.
.
.
10
11
12
13
14
Source: OrG interviews and document review, 2009,
The most commonly used edits ensured that claims were paid only for
OEI.05.09.00030
16
FINDINGS
Contractors did not use edits to enforce less common requirements from
LCDs.
therapeutic.
In other instances, claims captured the required information, but
contractors did not create edits to enforce LCD requirements. Most
contractors had an LCD requiring that providers use radiographic
guidance. Providers separately bil radiographic guidance on the
decreased. In 2007, 7 of
data analysis or edits. Staff from five contractors stated that medical
review is more comprehensive than either edits or data analysis. For
17
.. RECOMMENDATIONS
This report identifies problms with Medicare payments for
transforaminal epidural injections. Thirty-four percent of
transforaminal epidural injection services in 2007 did not meet
Medica:re requirements, resulting in improper payments of
improper payments of $96 milion. The previous report found that facet
joint injections delivered in office settings were more likely to have an
error.
Based on the results of this body of work, CMS should:
Conduct provider education, directly and through contractors, about proper
documentation
Nineteen percent of transforaminal epidural injection services had a
documentation error. CMS should conduct provider education
Both our current study and our 2008 facet joint injection study found
higher error rates for services performed in offices. Contractors could
18
RECOMMENDATIONS
injections may consider developing one. As noted in the limitations
section of this report, we were not able to assess whether contractor
safeguards, such as LCDs, had an impact on error rates. However,
joint injection study found that not all LCD requirements were enforced
by edits. In addition, between 2007 and 2009, the number of States
covered by at least 1 edit for transforaminal epidural injection services
decreased from 20 to 7. Contractors could strengthen current
RESPONSE
CMS concurred with our recommendations and outlined steps to
improve its oversight of
services. We did not make any changes to the report based on CMS's
OEI.05.09.00030
19
.. APPENDIX-A
Detailed Methodology
Sample Selection
The population from which we sampled consisted of all the allowed
physician services in the Centers for Medicare & Medicaid Services
Injection Claims
Population
Stratum
Description
1 - Offce
~ $325
103,987
110
2 - Offce
242,074
110
~ $100
149.362
110
311,278
110
806,701
440
Sampled Claims
3 - Facility (Ambulatory
Total
Source: Ofce of Inspector General (OIG) analysis of 2007 NCH physician/supplier file,
Data Collection
OEI.05.09.00030
20
APPENDIX~A
documentation for all services provided to the beneficiary 4 months
before and 1 month after the sampled date of servce.
We requested the beneficiary's medical record from the provider
associated with the sampled claim. We used the Unique Physician
Identification Number validation fie and the National Provider
Identifier to obtain contact information for the provider when mailing
the request.
We allowed at least 7 weeks from the date of
Our response rate for this study was 99 percent. Of the 440 services
that we originally sampled, 2 services were removed because of ongoing
OIG investigations. Then we requested records for the remaining
438 sampled services. We classified five ofthese as nonresponders. We
reviewed. Our analysis was based on the 433 remaining services in the
sample for which we received a response.
Data Analysis
Calculation of improper physician payments. We calculated the total
actual and projected dollars paid in error for these services. For
21
APPENDIX
Afer matching the claims, we projected the facility dollars paid in error.
Our estimate of facility dollars associated with physician services in
error is conservative. First, we excluded physician services in error
incorrect
OEI.05.09.000JO
22
..
APPENDIX
33.9%
29.1 %-38,7%
19,2%
15.4%-23.0%
9,8%
6.8%-12,7%
9.4%
6.6%-12.4%
12,9%
9,6%-16,3%
8.3%
5.5%-11,2%
6.6%
4.1%-9.0%
31.7%
27.0%-36.4%
Estimate Description
Table B-2: Estimates of Improper Physician Payments Associated With All Errors
Point Estimate
$44,833,417
$38,188,484-51,478,349
$28,895,365
$22,934,192-$34,856,538
$14,005,827
$9,505,141-$18,506,513
$14,889,538
$10,360,675-$19,418,401
$18,831,045
$13,779,543-$23,882,548
$6,248,458
$3,829,614-$8,667,303
$9,141,452
$5,352,508-$12,930,395
Estimate Description
necessary
o E 1.0 5-09.00030
23
A P PEN D
Table B-3: Estimate of Improper Facilty Payments Associated With Any Error
Offce
27.0%
20.5%-33,5%
Facilty
13.3%
8.6%-18,0%
Offce
17.7%
12.1 %-23,3%
Faciliy
9,3%
5,1%-13.4%
Offce
8.0%
4.0%-12,0%
Facility
8.6%
4.6%-12,6%
Offce
41.3%
34.1 %-48.4%
Facility
28,3%
22.0%-34.7%
Setting
Error Type
,
Docum entation
Medical Necessity
Coded Incorrectly
Any Error
Source: OIG analysis of medical review results, 2009,
OEI.05.09.00030
24
..
A P PEN 0
Agency Comments
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Centers for Medicare & Mediceid Servces
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diagnose or treat
pain. The OIG conducted a medical record review of a stratified random sample of 433
transforainal epidural injections performed in 2007. The OIG determined that thirty-four
percent of
trans
foraina
Medicare requirements. In addition, OIG reported that nine out offoureen CMS contractors had
a Local Coverage Determination (LCD) for transforaminal epidural injection services but only
one contractor enforced all LCD requirements with edits.
The CMS appreciates the work of OIG on this issue and wi1 work to improve our oversight of
its findings,'the om made the following
these payments in the future. As a result of
recommendations:
OIG Recommendation
Conduct provider education, directly and though contrctors, about proper documentation.
eMS Response
The CMS concurs with ths recommendation. CMS wil direct contractors to conduct provider
education about proper documentation for transforaminal epidural injections especially provided
in offces. CMS wil issue a Medicare Learing Network Matters Arcle on this topic related to
documentation requirements and expectations.
o E I. 05-09.000 30
25
A P PEN 0
OIG Recommendation
Strengthen progr safeguards to prevent improper payment for tranforaminal epidural
injection services.
CMS Response
Examine transforaminal epidural injection services provided in offices.
The CMS concurs. To strengten program safeguards, CMS wil instrct the appropriate
Medicare contractors to review their claims data for transforaminal epidural injection servces
Medicare contractors, who may develop policies under their own authority and based on CMS
manual instrctions.
Develop additional edits enforcing LCS requirements for trasforamnal epidural injection
services.
The CMS concurs. CMS wil instrct
Use medical review to identify improper payments for tranforaminal epidural injection services.
consistent with their
The CMS concurs. CMS will instruct the MACs to tae appropriate action
individual prioritized medical review strategy. MACs use their medical review strtegies to best
focus their resources relative to other vulnerabilties.
OIG Recommendation
Take appropriate action regarding the undocUIented, inedically unnecessar, and miscoded
CMS Response
The CMS concurs. CMS wil share the OIG report and any additional claim information received
with the appropriate Medicare contractors. CMS will instruct them to consider the issues
identifed in this report and the additional claim information when prioritizing their Medicare
review strategies.
The CMS requests that OIG fuish the necessary data, including Medicare contractor numbers,
provider numbers, claims inormation including the paid date, HlC numbers, etc. to accomplish
our review. In addition, CMS requests that Medicare contractor-specific data be wrtten to
separate CD-ROMs or separate hardcopy worksheets to better faciltate the transfer of
information to the appropriate contractors,
The CMS appreciates the O!G's effort and insight on this report. CMS looks forward to
continualy working with OIG on issues related to waste, fraud and abuse in the Medicare
program.
OEI.05.09.00030
26
.. ACKNOWLEDGMENTS
This report was prepared under the direction of Ann Maxwell, Regional
General.
Laura Kordish served as the team leader for this study and Beth
McDowell served as the lead analyst. Other principal Offce of
from the Chicago regional offce who
Evaluation and Inspections staff
contributed to the report include Lisa Minich and Lauren Rosapep;
who contributed include Sandy Khoury and Megan
central
offce staff
Ruhnke.
OEI.05.09.00030
27