Department of Health and Human Services 
OFFICE OF 
INSPECTOR GENERAL 
Use Of Universal Product Numbers For 
Medical Equipment And Supplies 
JUNE GIBBS BROWN 
Inspector General 
NOVEMBER 1999 
OEI-07-99-00230  OFFICE OF INSPECTOR GENERAL 
The mission of the Office of Inspector General (OIG) mandated by Public Law 95-452, as amended 
by Public Law 100-504, is to protect the integrity of the Department of Health and Human Services 
programs as well as the health and welfare of beneficiaries served by them. This statutory mission is 
carried out through a nationwide program of audits, investigations, inspections, sanctions, and fraud 
alerts. The Inspector General informs the Secretary of program and management problems and 
recommends legislative, regulatory, and operational approaches to correct them. 
Office of Evaluation and Inspections 
The Office of Evaluation and Inspections (OEI) is one of several components of the Office of Inspector 
General. It conducts short-term management and program evaluations (called inspections) that focus 
on issues of concern to the Department, the Congress, and the public.  The inspection reports provide 
findings and recommendations on the efficiency, vulnerability, and effectiveness of departmental 
programs. 
OEI's Kansas City office prepared this report under the direction of James H. Wolf, Regional Inspector 
General. Principal OEI staff included: 
REGION  HEADQUARTERS 
Michael Presley Barrett, Project Leader  Stuart Wright, Program Specialist 
Perry Seaton, Team Leader  Brian Ritchie, Program Analyst 
Tricia Davis, Program Analyst 
To obtain copies of this report, please call the Kansas City Regional Office at (816) 426-3697. 
Reports are also available on the World Wide Web at our home page address: 
http://www.dhhs.gov/progorg/oei  E X E C U T I V E   S U M M A  R Y  
PURPOSE 
To provide a descriptive summary of the healthcare industrys use of Universal Product 
Numbers (UPNs) and their potential use by the Medicare program. 
BACKGROUND 
A Universal Product Number (UPN) is a product identifier which is encapsulated in the bar 
code media. A bar code is a medium which allows a number or other information to be read 
automatically by a bar code reader and entered into a computer without having to manually 
type in the data. UPNs can be encapsulated within a number of data structures and can be 
used with or without a bar code. 
All UPNs are variable length alphanumeric strings of either 14 or 20 characters that can be 
used universally as the key identifier on each inventory unit for durable medical equipment and 
supplies. They can also be used as the key identifier to communicate product information 
among all trading partners in the supply chain.  A number can be assigned to each packaging 
level (or inventory unit) of each product. 
We based our study on information gathered from manufacturers and suppliers of durable 
medical equipment and supplies who have been using UPNs and bar codes as well as software 
producers and representatives from industry groups. 
FINDINGS 
Universal Product Numbers Are Currently Used By Some Hospitals, Distributors, 
and Manufacturers 
Primary Use -- Supply chain management 
Bar codes are currently being used within the healthcare industry primarily as a mechanism to 
control the supply chain.  However, we found UPNs are not used in every situation in which an 
item is bar coded because not all manufacturers assign UPNs to their products. In these 
circumstances, users of bar codes must assign their own proprietary numbers to effectively 
utilize their bar coding systems. 
Hospitals -- Experimenting with bar coding systems 
We identified three hospitals currently using UPNs.  They began utilizing UPNs to more 
effectively eliminate waste and overutilization of costly supplies and equipment, assist in 
modifying physician practice patterns, and streamline the patient billing process. 
1 
Use of UPNs  OEI-07-99-00230  Some distributors and manufacturers are currently using bar coding systems 
We identified a number of distributors and manufacturers currently using UPNs to simplify 
ordering systems for customers.  At least one large manufacturer also allows customers to find 
products by UPN on their web site. 
UPNs May Be Valuable To Medicare If Impediments Can Be Overcome 
Product Identification 
Most industry members agree that UPNs would allow for a number of advantages to both 
Medicare and the industry as a whole by allowing Medicare to specifically identify the product 
being claimed and provide more efficient edits. They would also aid in fraud and abuse 
detection. 
Impediments to effective use of UPNs 
There are a number of impediments that must be overcome if UPNs are to be utilized 
effectively by the Medicare program.  For example, a standard national data repository does 
not exist. In those databases that do exist, there is insufficient detail for full identification of 
product equivalencies, and UPNs are not assigned to all medical equipment and supplies. 
Some manufacturers also have concerns about their responsibility to assign these numbers. 
Furthermore, HCFA currently lacks authority to appropriately control the system. 
CONCLUSION

UPNs, While Promising, Are Not Ready To Be Adopted By The Medicare Program

In order for UPNs to be used by Medicare, it will be necessary to: 
S  address the specific impediments discussed above; 
S	 methodically implement important steps in utilizing UPNs, and conduct periodic 
assessment of their viability; 
S	 involve all major players fully in the process, including manufacturers, suppliers, 
distributors, the coding industry and HCFA; and 
S  provide adequate funding for planning and implementing this program. 
2 
Use of UPNs  OEI-07-99-00230  T A B L E   O F   C O N T E N T S  
PAGE 
EXECUTIVE SUMMARY  . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .  1

INTRODUCTION  . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .  4

FINDINGS  ..................................................................9

Universal Product Numbers Are Currently Being Used By Some Hospitals, Distributors and

Manufacturers  ..........................................................9

Health care entities primarily use UPNs for supply chain management  ........ 9

A few hospitals are currently using bar coding systems  ....................9

Some distributors and manufacturers use bar coding systems ............... 10

Users cite a number of concerns about UPNs  .................................11

UPNs May Be Valuable To Medicare If Impediments Can Be Overcome  ........... 12

Product Identification .............................................. 12

Impediments to effective use of UPNs  ................................13

CONCLUSION  . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .  15

3 
Use of UPNs  OEI-07-99-00230  I N T R O D U C T I O N  
PURPOSE 
To provide a descriptive summary of the healthcare industrys use of Universal Product 
Numbers (UPNs) and their potential use by the Medicare program. 
BACKGROUND 
Universal Product Numbers (UPNs) have been in existence for more than 10 years, being used 
for supply-chain management1, pricing, and billing.  While most people recognize the bar code 
used on many products, the UPN is not as familiar. It is a product identifier which is 
encapsulated in the bar code media. A UPN can be used with or without a bar code.  A bar 
code is a medium which allows a number or other information to be read automatically by a bar 
code reader and entered into a computer without having to manually type in the data. 
To be useful, product identifiers must be unique.  This allows systems to distinguish one product 
at a given packaging level from another.  Data processing systems are unaffected by whether 
product identifiers are numeric or alphanumeric, descriptive or encoded, or of fixed or variable 
length. This requirement of uniqueness led to the creation of the UPN, a unique identifier 
combining a manufacturer number, item number, and packaging level information. UPNs can 
be encapsulated within a number of data structures or bar codes. 
All UPNs are variable length alphanumeric strings of either 14 or 20 characters that could be 
used universally as the key identifier on each inventory unit for durable medical equipment and 
supplies. The UPN can change if the products characteristics, such as labeling or packaging 
changes (i.e., product color, use of a product trade name, or use of a generic name).  It can 
also be used as the key identifier to communicate product information among all trading 
partners in the supply chain (i.e., manufacturer, distributor, supplier, provider, and end user). 
Such a number can be assigned to each packaging level (or inventory unit) of each product. 
Modern data systems accommodate all data types efficiently and, provided one adheres to 
basic design conventions for product identifiers, alphanumeric identifiers do not impact data 
processing procedures. Moreover, information such as manufacturer, item number, and level of 
packaging cannot be extracted from this number to identify individual components. 
1The term supply-chain management refers to the management of the process of manufacturing, 
ordering, distribution, and reordering equipment and supplies utilized by any given company. Because 
many organizations are decreasing or no longer maintaining inventories due to the advent of just-in-time 
inventory control, management of the supply-chain became more important and an increasingly popular 
way to lower costs. 
4 
Use of UPNs  OEI-07-99-00230  The process begins with the manufacturer. First, manufacturers must join one of the two Code 
Councils, the Health Industry Business Communications Council (HIBCC) or the Uniform 
Code Council (UCC). When they do so, they are granted a manufacture number and the right 
to assign a UPN.  When manufacturers create new products, or modify existing products, they 
submit a data form to the Code Council of which they are a member.  This form contains basic 
information such as the UPN assigned by the manufacturer, the color, name, and unit of 
measure of the product. There is also a field for a description of the product.  This field is 
currently 75 characters, but there is discussion to lengthen it to 120 characters. Once this form 
is submitted, the UPN is assigned. HIBCC maintains a database of those UPNs assigned by its 
members. A third party such as a distributor may assign a new UPN to a product if the 
distributor repackages the product with their name on the package. In this case, they become a 
labeler and therefore may be able to assign a new UPN to a product. 
Once a UPN is assigned, the manufacturer generally bar codes the related products. This bar 
code is then scanned by distributors when they receive the package and entered into their 
computer system. They forward the product to the provider which also scans the bar code 
thereby entering it into its computer system.  When the product is used by the provider, it scans 
the bar code at the time it is furnished to the beneficiary. This enters the UPN into the 
computer system and tells the computer that one product of this type has been used. In the 
case of just-in-time inventory management, the item is also entered into the reordering system, 
which takes the UPN and returns it in the form of an electronic purchase order to the 
distributor.  It forwards the item to the manufacturer which in turn ships out a new product.  In 
cases where the provider maintains an inventory, a count of all products is kept on the 
computer system and when the UPN is scanned, it removes one unit of the product from that 
inventory count. When the computer system hits a reorder point, the electronic form is 
produced and submitted to the distributor for filling which then submits the order to the 
manufacturer for shipment of the products.  Most organizations use a combination of just-in-
time inventory control and maintaining a small amount of inventory. Unique identifiers such as 
Universal Product Codes (UPCs) have facilitated the move to just-in-time inventory control in 
retail stores and chains. 
Both code councils use a product look-up because it is faster, error-free, and provides a 
reliable source for validating the product identifier after it has been put into the system.  This 
means that the system utilizes tables keyed to the complete identifier to look-up either 
component or supplementary information about the product represented by it. To do this 
look-up, a repository for all UPNs is needed.  This repository is meant to be a master catalog 
of all medical surgical products containing basic data elements such as UPN, manufacturer 
name, description, item number, color, unit of measure, and quantity associated with the unit of 
measure. It is a single place to collect and redistribute the information necessary for the 
healthcare industry to cross-reference manufacturers part numbers to UPNs. 
5 
Use of UPNs  OEI-07-99-00230  Problems Identified by The General Accounting Office 
The General Accounting Office (GAO) issued a report on UPNs in 1998.2  According to the 
report, [the Health Care Financing Administration] does not know specifically what Medicare 
is paying for when its contractors process claims for... [durable medical equipment and 
supplies] and, it noted that Medicare reimburses large suppliers and individual beneficiaries at 
the same rates without regard to discounts many manufacturers give suppliers.  Furthermore, it 
noted that Medicare pays approximately $4.6 billion a year for medical equipment, but the 
problem with the current system according to the UPN supporters is the manner in which it is 
paid. Medicares payment rates are based on broad product categories called billing codes. 
These codes can contain medical items with more than one price.  Within each billing code, 
Medicare pays an average cost based on a complicated formula that essentially averages the 
price so that some products are overpaid and some are underpaid. For example, the GAO 
report stated that there are more than 200 types of catheters. These range in price from $.42 
to $34.95. Medicare paid a little more than $11.00 for each due to the limitation with their 
current coding system. The GAO raised as a possible problem the fact that there is an 
incentive for a hospital to use a $1.00 catheter, submit a claim, and be reimbursed over $11.00. 
Legislative Action on UPNs 
Following the issuance of the GAO report, legislation was introduced in both the Senate and 
the House (S. 256 and H.R. 418) which would require the use of UPNs on all Medicare DME 
claims submitted for payment. The legislation would require that the UPN be accommodated 
on Medicare claim forms by February 1, 2001. It further requires the Secretary to review the 
UPN covered items billed under the HCFA Common Procedure Coding System and adjust 
such coding system to ensure that functionally equivalent UPN covered items are billed and 
reimbursed under the same codes.  No payment would be made for any claim for 
reimbursement for any UPN covered item unless the claim contains the universal product 
number of the UPN covered item. 
The system proposed by the legislation would conceivably initiate a new process of 
reimbursement whereby technology currently being used in most stores would be implemented 
to capture the specific item claimed and then pay the price of the medical equipment or supply. 
HCFA, in its comments to the GAO report, stated that there is insufficient information to make 
the UPN useful to claims processing decisions. It also indicated that if HCFA required the 
submission of UPNs, it would not have the authority to require manufacturers to reveal what 
each UPN represents [such as product features, manufacturers price, purpose and uses of a 
product, HCPCS code with which the UPN would be associated, and the number of items per 
2 Medicare, Need to Overhaul Costly Payment System for Medical Equipment and Supplies, 
GAO/HEHS-98-102. 
6 
Use of UPNs  OEI-07-99-00230  package.]  They also stated that it is possible manufacturers would consider such product 
information proprietary and resist any voluntary requests for information. 
Healthcare Electronic Data Infrastructure Coalition 
The Healthcare Electronic Data Infrastructure Coalition (HEDIC) is an organization whose 
stated mission is to improve the efficiency of business interaction through the collaborative 
development and optimization of the Electronic Data Infrastructure (EDI) in the healthcare 
industry.  This infrastructure includes the use of Bar-Codes, Automatic Identification and Data 
Capture, Electronic Data Interchange, Electronic Commerce, and Central Industry Data 
Repositories based on the adoption of universal identification, codification, communication and 
data standards...[sic]. HEDIC is composed of healthcare providers and their trading partners 
such as healthcare plans, suppliers, data communications services, software developers, 
consulting services, employers and government agencies. 
Uniform Code Council 
The Uniform Code Council, Inc.s (UCC) purpose is to take a global leadership role in 
establishing and promoting multi-industry standards for product identification and related 
electronic communication.  The goal is to enhance supply chain management thus contributing 
added value to the customer.  The European Article Numbering Association International 
(EAN) and the Uniform Code Council, Inc. are voluntary standards organizations that manage 
the EAN/UCC system. EAN International has a decentralized structure with a membership 
composed of Numbering Organizations that manage the EAN system in a particular country or 
economic region.  The UCC manages the numbering system for the U.S. and Canada.  The 
EAN International's head office is responsible for coordinating and facilitating activities that deal 
with the development, management and promotion of the EAN/UCC system amongst the 
Numbering Organizations. 
Health Industry Business Communications Council 
The Health Industry Business Communications Council (HIBCC)was founded in 1984 by the 
provider community and its trading partners for the specific purpose of creating a bar code 
labeling standard to meet the needs of hospitals.  There were two barriers that inhibited use of 
the technology: (1) there was no standard which accommodated unique product numbering 
schemes prevalent in healthcare; and (2) the high cost, bulk, and inflexibility of bar code 
equipment. 
The HIBCC labeling standard provided flexibility to accommodate various data structures, 
thereby solving the first impediment.  Low cost code scanners capable of reading multiple types 
of symbologies and inexpensive high-speed computers capable of storing and retrieving huge 
volumes of information contained in databases have solved the second. The HIBCC and the 
7 
Use of UPNs  OEI-07-99-00230  Uniform Code Council (UCC) have together provided labeling standards that address the 
needs of almost all manufacturers. 
Department of Defense 
About 5 years ago the Department of Defense (DOD) abandoned depot facilities and

commercial distribution centers. During this process they looked to commercial sector

distributors to obtain information on products that did not vary much between distributors and

product with similar qualities from different distributors.  DODs process of ordering by part

number was not satisfactory because each manufacturer uses their own numbering system. The

DOD needed to use one number for distribution, ordering, and processing shipments

electronically and it needed to be globally recognizable and unique to the product and its

packaging.  It tapped into use of the UPN which it found successful in inventory control and

purchasing.

Currently, there are different levels of compliance by DOD vendors. At the shipper level (i.e.,

where the main distributor purchases from the manufacturer directly) there is 75 percent

compliance, but over 95 percent compliance for high volume items.  There is less compliance as

the packaging is reduced to the box level and then to the unit of use level. This is what

supporters of UPN legislation hope to fix by requiring the coding of smaller packages or even

the individual items. This could mean more expense for manufacturers. 

The DOD has tested for vendor compliance with its ordering system and has found that

distributors can accept UPNs. It purchases items by the case lots from manufacturers directly

then break it down to the box level for customers.  However, it believes that legislation should

require UPNs at every level of packaging.  Since 1995, the DOD has been asking

manufacturers to do this.  However, it has limited power to require it because its purchases

represent only 4 percent of the market. 

METHODOLOGY 
As part of our development, we carried out extensive research into UPN literature, including 
various articles and product information. We also conducted interviews with a number of 
manufacturers and suppliers of durable medical equipment and supplies who have been using 
UPNs and bar codes, as well as software producers and representatives from industry groups, 
to obtain perceptions of the use of these designations for various programs, particularly claims 
processing and adjudication. Sources of referral for interviews came from industry contacts, 
Federal and State agency discussions, UPN-related conference attendance, and user 
references. We conducted this inspection in accordance with the Quality Standards for 
Inspections issued by the Presidents Council on Integrity and Efficiency. 
8 
Use of UPNs  OEI-07-99-00230  F I N D I N G S  
Universal Product Numbers Are Currently Used by Some 
Hospitals, Distributors, and Manufacturers 
Health care entities are primarily using UPNs for supply-chain management 
Currently bar codes are being used within the healthcare industry primarily as a mechanism to 
control the supply-chain. However, we found UPNs are not used in every situation in which an 
item is bar coded because not all manufacturers assign UPNs to their products. In these 
circumstances, users of bar codes must assign their own proprietary numbers to effectively 
utilize their bar coding systems. 
<<	 Manufacturers are assigning UPNs to some products. 
According to HEDIC, healthcare manufacturers of medical/surgical supplies are 
already bar coding a UPN on about 70 percent of shipping cases.  The 
percentage decreases as packaging levels decrease to box and unit of use.  A 
few of the larger manufacturers, however, are bar coding up to 95 percent of 
their products at all packaging levels. The remaining 5 percent are not bar 
coded due to transitions in the companies such as recent acquisitions or 
mergers. 
<<	 Distributors and providers encourage manufacturers to bar code 
products. 
Two providers told us that the efficiencies gained in their system paid for their 
bar coding system within 5 months of implementation.  Distributors and 
providers are the most frequent users of bar codes. They use bar codes (with 
and without UPNs) to track orders, increase/decrease inventory, and submit 
orders. One organization representing the distributor industry told us that many 
distributors would be willing to bar code items if HCFA requires their inclusion 
on Medicare claims. 
A few hospitals are currently using bar coding systems in supply-chain 
management and patient care 
We identified three hospitals currently using UPNs.  They began utilizing them for the following 
reasons: 
<<	 To more effectively provide services to beneficiaries, while operating 
with fewer resources. 
9 
Use of UPNs  OEI-07-99-00230  Due to competition and other factors, hospitals are attempting to eliminate 
unnecessary costs which has led to streamlining the supply-chain. 
<<	 To eliminate waste and overutilization of costly equipment and supplies. 
One hospital uses their bar coding system to determine what supplies a 
particular disease code uses 95 percent of the time. These supplies are then 
packaged together and delivered to the unit where needed. This has eliminated 
multiple trips to unclean areas (e.g., hallways, store rooms), resulting in 
improved patient care. Supplies are still maintained for atypical cases allowing 
the hospital to adjust products as practice patterns or patient needs require. 
<<	 To assist in modifying physician practice patterns. 
Another hospital provides physicians with information about the supplies they 
utilize during particular procedures. When a physician is found to be utilizing 
equipment or supplies that are not cost-effective, staff and physicians meet to 
discuss whether those items are the most appropriate. This often results in 
changes in physician practice patterns. 
<<	 To streamline the billing process. 
A third hospital wanted a more automated system which would require fewer 
employees, fewer mistakes in data entry, and greater accuracy.  This hospital is 
using bar codes to enter charge codes into an electronic form which is then 
submitted for payment and printed and sent to the patient.  The proprietary 
number used by the hospital is linked to a plain language description of the 
service which assists patients understanding of the bills they receive. This 
hospital is not, however, using UPNs, nor is it planning to do so at this time. 
Instead they are focused on patient billing. 
Some distributors and manufacturers are currently using bar coding systems 
We identified some distributors and manufacturers currently using UPNs. At least one large 
manufacturer allows customers to find products by UPN on their web site. 
<<	 Distributors use UPNs to simplify their order systems for customers. 
HIDA told us that many distributors are beginning to use UPNs to aid 
customers in purchasing medical equipment and supplies.  UPNs also help them 
track orders in their own inventory systems. The organization is encouraging 
the use of UPNs because they see the industry as moving toward their use. 
One industry group reported distributors are currently bar coding 70 percent of 
shipping and inner packs, but only 25 percent at the unit of use level. Many are 
already making changes to their ordering systems to accommodate bar codes 
and they point out that the American National Standards Institute already has a 
space for UPNs on their insurance claims forms. 
10 
Use of UPNs  OEI-07-99-00230  <<	 Some manufacturers are assigning UPNs to their products. 
Some larger manufacturers are assigning UPNs to their products and at least 
one uses UPNs as a look-up number on their web site. 
Users Cite a Number of Concerns about UPNS 
Some users, mainly larger hospital systems, have concerns about bar coding systems and 
UPNs. Some manufacturers also have concerns centering on their responsibility to assign these 
numbers. 
<<	 Hospitals cannot require their suppliers to bar code products. 
As a consequence, hospitals and other providers using bar codes for inventory 
control, utilization, and reordering purposes assign their own codes and affix 
bar codes to these products. This results in additional costs to the hospitals and 
other providers.  However, costs associated with product coding should be less 
for a manufacturer capable of working it into their packaging system.  Two 
hospitals said they were willing to absorb added cost from manufacturers for 
UPN and bar coding of products and supplies. 
<<	 Implementation of UPNs requires a substantial investment. 
This concern was raised by a number of large hospital systems. These 
providers must change multiple computer systems at different facilities to accept 
the UPN and maintain these systems. 
<	 Providers systems in general are not able to use bar codes. 
Some hospitals told us that their computer systems were still using  operating 
systems as old as DOS and that there would need to be large system upgrades 
to utilize bar codes and UPNs.  We were unable to find any physicians 
practice that would be capable of using bar codes or UPNs. 
<	 Skepticism of the system. 
The accounting department of one facility is skeptical of the system and the 
charges resulting from the system, so the facility hired an auditor to double-
check all billings as they are produced. 
<	 Manufacturers are concerned about providing too much information 
about their products. 
At least one manufacturer told us that they were concerned that competitors 
may attempt to submit false information about their products to existing 
databases.  The same manufacturer also told us that they did not want to 
provide information that could be used by their competitors against them. They 
also think they should not be required to provide information sufficient to make 
11 
Use of UPNs  OEI-07-99-00230  functional equivalency determinations when the organization making those 
determinations could simply look in a company catalog. 
Sheer Number of Possible UPNs. 
Universal Product Numbers are extremely sensitive. Although the UCC 
recommends not assigning new UPNs for insignificant changes in products, 
there is no prohibition against doing so. As such, the smallest change in the 
product, including color, could result in the issuance of a new UPN.  Therefore 
it is possible that as products are updated, redesigned, and modified in other 
ways, a new UPN could be assigned.  One manufacturer and HCFA staff are 
concerned that this could result in slight changes for nothing more than 
marketing purposes or to game the system. Attempting to pay based on the 
UPN itself would require a process to consider equivalencies and pricing for 
massive numbers of items either on the repository or coming onto the repository 
at any one time. 
UPNs May Be Valuable To Medicare If Impediments Can Be 
Overcome 
Product Identification 
Most industry members agree that UPNs would allow for a number of advantages to both 
Medicare and the industry as a whole. 
<	 UPNs would allow Medicare to specifically identify the product being 
billed. 
This would be useful for determining Medicare coverage and appropriate 
payment. 
<	 UPNs will assure that providers are looking at the same product for 
both payment and medical review of items. 
One hospital system noted they are experiencing problems analyzing the same 
products among each of their 17 facilities. 
<	 UPNs could provide more efficient edits. 
The ability to specifically identify the product could enable carrier edits to work 
more efficiently. 
<	 UPNs could aid in fraud and abuse detection. 
Individuals from HCFA and industry told us that UPNs would help detect fraud 
and abuse if the system would provide for the independent and objective 
indexing of the salient characteristics for products.  UPNs could also reduce 
12 
Use of UPNs  OEI-07-99-00230  claims fraud. If listed on the claim, the UPN will specifically identify the 
manufacturer and the type of product claimed, as compared to the current 
system which relies on HCPCS codes which are not always product specific. 
The UPN could be a valuable piece of additional evidence when trying to 
prosecute a fraudulent provider.  For instance, if the HCPCS for which the 
provider has submitted a claim for payment is not accurate, it could be due to 
the use of a mistaken code. However, when a provider also submits a UPN on 
that claim form, it is more difficult to claim a mistake when the UPN is readily 
identifiable. 
Impediments to effective use of UPNs 
There are a number of impediments that must be overcome if UPNs are to be used by the 
Medicare program. 
<	 A standard national data repository does not exist. 
Currently there is no nationally recognized database usable by all members of 
the industry.  There are a number of smaller databases, but none of them are 
used industry wide.  The HIBCC and UCC databases contain fewer than 
500,000 UPNs. Others, such a those developed by Mitch Cooper & 
Associates and St. Alexius Medical Center, are smaller and are not now used 
by the industry as a whole. 
<	 There is insufficient information contained in the repositories. 
In the HIBCC database, most commonly referred to as an industry standard 
repository, there are only 80 character spaces for descriptive information. The 
industry believes that this amount is sufficient, but those familiar with the current 
databases indicated that it could be increased to 120 characters. Still, some 
HCFA staff believe the available space is insufficient to provide the information 
needed to identify the appropriate HCPCS code or to make determinations 
concerning functional product equivalencies. A separate contractor would be 
needed over and above the carrier to collect UPN data and to build a data 
repository for these codes and their HCPCS equivalents.  This would increase 
the integrity of the information available to HCFA as well as assure access to it 
by all providers. HCFA may need to be able to control the information 
required on the database. Because space is limited, some information may be 
of lesser value in determining product equivalencies than other information. 
Further, industry may be reluctant to provide certain data if it is not specifically 
mandated. However, information that HCFA finds of lesser value may be 
needed by other industry members utilizing such a repository and, therefore, 
determination of what information should be required would need to be a 
cooperative effort. 
13 
Use of UPNs  OEI-07-99-00230  <	 HCFA would need control of the system. 
It may also be necessary for HCFA to be able to control various aspects of the 
implementation of UPNs. Such concerns might include what type of 
information is submitted to the database and the methodology used to assign 
UPNs.  Because suppliers vary in size and technology, HCFA may also need 
to control the phasing in of such a system to allow less technical suppliers to 
meet their systems needs. HCFA would also need to be able to determine who 
may assign UPNs to products. This is necessary to ensure that all 
manufacturers are treated fairly and that onerous membership costs and fees 
are not incurred as a requisite to assign a UPN. 
<	 Many computer systems are inadequate. 
Manufacturers, hospitals, and suppliers all cited inadequate systems as a 
problem. Many hospitals are on older computer systems that would need 
upgrading to accommodate UPNs and bar code technology. Manufacturers 
also would need time to not only change their computer systems, but also their 
packaging processes to accommodate changes in labels and boxes. 
<	 Bar codes are not applied to all medical equipment and supplies. 
As indicated, UPNs are assigned and bar codes are applied to about 
70 percent of medical/surgical supplies. If Medicare requires the inclusion of 
UPNs on all claims forms, the most troublesome issue is who is required to bar 
code. Manufacturers do not have a direct link to the Medicare program unless 
they are also suppliers.  Therefore, if manufacturers decide not to bar code their 
products, suppliers must decide whether to purchase from another 
manufacturer (provided the product is produced by another manufacturer) or 
whether to bar code themselves.  As the proposed legislation would require 
manufacturers of medical equipment and supplies to assign UPNs to all their 
products, this would also affect those manufacturers who do not sell products 
to Medicare suppliers. 
<	 At this time, no payer requires UPNs for claims processing. 
The largest government agency currently utilizing UPNs is the Department of 
Defense.  They advised us that the DOD has utilized UPNs for a number of 
years, but only uses them for supply-chain management.  We could not identify 
any insurance or government payer currently requiring the inclusion of UPNs on 
claims for payment. The State of California is considering, but has not 
implemented, the use of UPNs in their claims forms. 
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Use of UPNs  OEI-07-99-00230  C O N C L U S I O N  
UPNs, While Promising, Are Not Ready To Be Adopted By The 
Medicare Program 
In order for UPNs to be used by Medicare, it will be necessary to: 
S  address the specific impediments discussed above; 
S	 methodically implement important steps in utilizing UPNs, and conduct periodic 
assessment of their viability; 
S	 involve all major players fully in the process, including manufacturers, suppliers, 
distributors, the coding industry and HCFA; and 
S  provide adequate funding for planning and implementing this program. 
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Use of UPNs  OEI-07-99-00230