GAO-09-730R State High-Risk Health Insurance Pools

United States Government Accountability Office

Washington, DC 20548 

July 22, 2009 

The Honorable Henry A. Waxman 

Chairman 

Committee on Energy and Commerce 

House of Representatives 

The Honorable John D. Dingell 

Chairman Emeritus 

Committee on Energy and Commerce 

House of Representatives 

The Honorable Frank Pallone, Jr. 

Chairman 

Subcommittee on Health 

Committee on Energy and Commerce 

House of Representatives 

Subject: Health Insurance: Enrollment, Benefits, Funding, and Other Characteristics of 

State High-Risk Health Insurance Pools 

A growing number of states—35 as of June 2009—have created high-risk health insurance 

pools (HRPs) primarily to provide coverage to individuals whose health status limits their 

access to coverage in the private individual health insurance market.1

 HRPs—typically staterun nonprofit associations—often contract with a private health insurance carrier to 

administer the pool and offer a range of health plan options to such individuals, who are 

commonly referred to as medically uninsurable.2

 Plan options vary within pools and from 

state to state, and like the private individual market, HRPs typically impose waiting periods 

 

1

Participants in the private individual market include self-employed people; people whose employers 

do not offer health insurance coverage; people not in the labor force; early retirees who no longer have 

employment-based coverage and are not yet eligible for Medicare; and people who lose their jobs and 

have exhausted or are ineligible for continuation of employer-based coverage. 

2

Individuals who—due to a preexisting health condition—have been rejected for coverage or charged 

higher premiums in the private individual market are typically eligible for HRP coverage. Other groups 

of individuals may also be eligible for HRP coverage. States may use HRPs to implement the group 

market to individual market portability provision of the Health Insurance Portability and 

Accountability Act (HIPAA) of 1996. Pub. L. No. 104-191, title I, §111, 110 Stat. 1936, 1978. HIPAA 

requires that individuals with prior group coverage must have continued access to nongroup coverage 

with any preexisting condition waiting periods waived. In addition, states can designate HRPs as 

qualified health coverage for displaced workers and retirees eligible for the federal Health Coverage 

Tax Credit, under the Trade Adjustment Assistance Reform Act of 2002. Pub. L. No. 107-210, Div. A, 

§201 (a), 116 Stat. 935, 954. 
for coverage of preexisting conditions to discourage medically uninsurable individuals from 

foregoing health insurance until they require care.3

Because of the higher health care costs typically incurred by medically uninsurable 

individuals, all pools operate at a loss. Premiums for HRP health plans are higher than for 

plans offered to healthy individuals in the private health insurance market; however, these 

premiums are capped to limit enrollees’ costs and are thus insufficient to cover the costs of 

enrollee health care claims.4

 As a result, all HRPs supplement their revenues through various 

funding mechanisms, such as assessments on health insurance carriers and state general 

revenues. 

Federal grants are also awarded to establish and fund HRPs. As part of the Trade Adjustment 

and Assistance Reform Act of 2002, Congress established a program to provide grants to 

HRPs to offset losses and establish HRPs—commonly referred to as operational and seed 

grants, respectively.5

 Subsequent legislation authorized funding for the program through 

2010, including grants to be used for supplemental consumer benefits—commonly referred 

as bonus grants.

to 

n the 

 

6

 Since 2003, the grant program has awarded nearly $286 million to state 

HRPs for various purposes. The Centers for Medicare & Medicaid Services (CMS), withi

Department of Health and Human Services (HHS), administers this federal grant program. 

Recent health care reform proposals call for an expanded role for HRPs to enhance health 

insurance options for the medically uninsurable. Because of the federal funding provided to 

HRPs, you expressed interest in obtaining data on several aspects of each state HRP. In this 

report, we describe (1) HRP enrollment and enrollee demographics; (2) HRP plans’ costsharing provisions, coverage restrictions, and premiums, and comparable information for 

certain private market health plans; and (3) HRPs’ governance, expenditures, and funding. 

To address our three objectives, we administered a Web-based data collection instrument 

(DCI) to senior officials of the 34 HRPs in operation in 2008.7

 The data obtained were 

generally for fiscal year 2008, although for certain questions we obtained additional historical 

data. Because each HRP offers multiple plan options to enrollees, in order to simplify 

comparisons of plan-specific cost-sharing provisions, benefits, coverage restrictions, and 

premiums, we limited many of our comparisons to each pool’s most popular plan—i.e., the 

plan chosen by the most enrollees. Collectively, the most popular plans covered 41 percent of 

3

Most states offer waivers for the waiting period for coverage of preexisting medical conditions. 

Examples of criteria to qualify for a waiver often include involuntary termination of coverage by a 

previous carrier or previous creditable coverage within the past 12 months, among others. HIPAAeligible enrollees are not subject to preexisting condition restrictions. 

4

Where funding is limited, an HRP may need to restrict enrollment by various means, such as by 

temporarily closing the pool to new enrollees or maintaining a waiting list. 

5

Pub. L. 107-210, Div. A, § 201(b), 116 Stat. 935, 959. 

6

See, the Deficit Reduction Act of 2005, Pub. L. 109-171, § 6202, 120 Stat. 4, 134 (2006) and the State 

High Risk Pool Funding Extension Act of 2006, Pub. L. 109-172, § 2, 120 Stat. 185. The State High Risk 

Pool Funding Extension Act authorized a total of $75 million in operational and bonus grants for each 

of fiscal years 2006 through 2010 and $15 million in seed grants for fiscal year 2006. Bonus grants are 

to be used for supplemental consumer benefits such as premium subsidies, disease management 

programs, and HRP expansion efforts. 

7

We did not include the North Carolina HRP in our DCI because it was not operational until 2009. 

 2 GAO-09-730R State High-Risk Health Insurance Pools
the enrollees across the 34 HRPs.8

 To ensure the clarity and precision of our DCI questions, 

we pretested the DCI with officials of the National Association of State Comprehensive 

Health Insurance Plans (NASCHIP), an organization that provides educational resources and 

information to assist state HRPs in their operation. We also received comments on the DCI 

from a CMS official involved in the HRP federal grant program. We received responses to the 

DCI from all 34 HRPs, although not every HRP responded to every question in the DCI. We 

relied on the data as reported by the HRPs and did not independently verify or evaluate these 

data. However, we reviewed all responses for reasonableness and consistency, and we 

clarified apparent irregularities by comparing the data to other sources, such as an annual 

compendium of HRP statistical information compiled by NASCHIP. In addition, we followed 

up with state HRP representatives for clarification where necessary. Based on these 

activities, we determined these data were sufficiently reliable for the purpose of our report. 

We supplemented information obtained through the DCI with additional data and analyses. 

For our first objective, we estimated the number of individuals potentially eligible for HRP 

enrollment because they were uninsured and had one or more preexisting health condition. 

To do this, we used 2006 Medical Expenditure Panel Survey (MEPS) data to determine the 

percentage of uninsured individuals with at least one chronic condition that was diagnosed 

or treated in 2006. We then applied that percentage to Current Population Survey (CPS) 

estimates of the number of uninsured individuals in each of the 34 states with HRPs.9,10 We 

assessed the reliability of the MEPS and CPS data by reviewing related documentation and by 

testing the MEPS data to identify outliers, missing data, and other potential sources of errors, 

and we determined they were sufficiently reliable for our purposes. For our second objective, 

we compared selected HRP benefits and coverage restrictions to those found in employersponsored health insurance plans by obtaining data from two annual surveys—the Kaiser 

Family Foundation and Health Research and Educational Trust (KFF/HRET) Employer 

Health Benefits Annual Survey and the Mercer National Survey of Employer-Sponsored 

Health Plans.

11 KFF/HRET presents annual data based on its survey of a random sample of 

private and public-sector employers, which it implements from July through May each year. 

Mercer presents annual data based on its survey of a random sample of private-sector 

employers, which it implements in July of each year. For each of these surveys, we reviewed 

 

8

In this report, we refer to the primary policyholders as enrollees. 

9

The MEPS and CPS data we used were the most currently available at the time we performed our 

work. We used the 2006 MEPS, which is a set of large-scale surveys of families and individuals, their 

medical providers, and employers across the United States administered by the Agency for Healthcare 

Research and Quality. MEPS collects information regarding individuals’ demographics, health status, 

and insurance status, among other characteristics. We also used data published in the U.S. Census 

Bureau’s report, Income, Poverty, and Health Insurance Coverage in the United States: 2007, on the 

3-year average (2005-2007) of the uninsured populations by state. These data were based on the CPS 

Annual Social and Economic Supplement, which is a household survey that collects demographic 

information, such as employment and health insurance status, among other characteristics. 

10Our estimate of individuals potentially eligible for HRP enrollment may be understated because we 

excluded from our MEPS analysis individuals with conditions that are not always chronic in nature or 

that were diagnosed or treated prior to 2006. Conversely, our estimate could be overstated to the 

extent it includes uninsured individuals who may not be eligible because they had access to other 

private or public coverage but chose not to enroll. The CPS estimates of the uninsured in each state 

are subject to sampling error of plus or minus 1.3 percent at the 90 percent confidence level. 

11We compared HRP benefits and coverage restrictions to those in employer-sponsored plans because, 

according to model legislation prescribed by the National Association of Insurance Commissioners 

(NAIC), HRP plan benefit levels and deductibles should be comparable to coverage provided by large 

employers in the state. NAIC model legislation provides a basis for the uniform regulation of HRPs 

throughout the states. 

 3 GAO-09-730R State High-Risk Health Insurance Pools
the survey instruments and methodology and determined that the data were sufficiently 

reliable for our purposes. To compare trends in HRP premiums to those in the private health 

insurance market, we compared HRP premium data reported in our DCI to premium 

estimates for the private individual health insurance market published by America’s Health 

Insurance Plans (AHIP)—a health insurance trade association—and for the employersponsored health insurance market published by KFF/HRET. Finally, for our third objective, 

we supplemented the HRP funding information we obtained through the DCI with CMS 

documentation on the federal grants and through interviews with the CMS official who 

manages these grants. We did not independently verify or evaluate information we received 

from CMS. 

We conducted our work from July 2008 to June 2009 in accordance with all sections of GAO’s 

Quality Assurance Framework that are relevant to our objectives. The framework requires 

that we plan and perform the engagement to obtain sufficient and appropriate evidence to 

meet our stated objectives and to discuss any limitations in our work. We believe that the 

information and data obtained, and the analysis conducted, provide a reasonable basis for 

any findings and conclusions in this product. 

Results in Brief 

HRP Enrollment and Demographics of Those Enrolled

• HRP enrollment—enrollees and their dependents—totaled 199,418 in the 34 HRPs in 2008. 

We estimated nearly 4 million additional individuals to be potentially eligible for enrollment 

in an HRP based on their uninsured status and preexisting health conditions.12

• All HRPs accepted new applicants in 2008 except for California, which had a waiting list of 

about 1,030, and Florida, which has been closed to new enrollment since 1991. 

• The average age of HRP enrollees in 2008 was 49 years and their average length of enrollment 

was 3 years. Among the 6 HRPs that collected employment or income data,13 about half of the 

enrollees were employed, and the average household income was about $41,000. 

Enclosure I provides additional information on HRP enrollment and enrollee demographics. 

HRP Cost-sharing Provisions, Coverage Restrictions, and Premiums

• In 2008, the average annual deductible for the most popular plan offered by each of the 34 

HRPs was $1,593—almost three times as high as the average annual deductible of $560 

among employer-sponsored health insurance plans. About 63 percent of enrollees in these 

most popular HRP plans had deductibles of $1,000 or greater. In comparison, almost 

88 percent of enrollees in employer-sponsored plans had a deductible of under $1,000 or no 

deductible. 

 

12GAO estimated the potentially eligible population, including dependents, by (1) determining the 

percentage of uninsured individuals with at least one chronic condition using 2006 MEPS data, and 

(2) applying that percentage to CPS estimates of the 3-year average uninsured population in each of 

the 34 states with an HRP (2005-2007). The CPS estimates are subject to sampling error of plus or 

minus 1.3 percent at the 90 percent confidence level. 

13Employment information was provided by Colorado, Maryland, Oregon, Utah, and Wisconsin. Income 

information was provided by Indiana, Maryland, Oregon, Utah, and Wisconsin for new enrollees only. 

 4 GAO-09-730R State High-Risk Health Insurance Pools
• About 18 percent of enrollees in the 34 most popular HRP plans in 2008 were in plans that did 

not cover maternity care and about 3 percent were in plans that did not cover mental health 

services. Almost all enrollees in the most popular plans had access to prescription drug and 

transplant coverage. 

• Fifteen percent of the most popular plans (5 plans) in 2008 had annual maximum coverage 

limits. These annual limits ranged between $75,000 and $300,000 and averaged $175,000. By 

comparison, 10 percent of employer-sponsored plans had annual limits. Almost 90 percent of 

the most popular plans (30 plans) had lifetime dollar limits, which ranged between $500,000 

and $5,000,000 and averaged $1.6 million. By comparison, 56 percent of employer-sponsored 

plans had lifetime limits. 

• Between 2004 and 2008, average monthly HRP premiums rose by 14 percent across all plans, 

from $424 to $485. During the period 2004 through 2006, HRP average monthly premiums 

increased by 6 percent while average premiums in the employer-sponsored health insurance 

and the individual health insurance markets both increased by 15 percent. During the period 

2007 through 2008, HRP average monthly premiums increased by 6 percent and employersponsored market premiums increased by 5 percent. No comparable individual market 

premium data were available for these 2 years. 

• Fourteen percent of all HRP enrollees received income-based premium subsidies, which were 

offered by 12 HRPs in 2008. The average monthly subsidy received was $261, or about 49 

percent of the subsidy recipients’ average monthly premium of about $538. 

Enclosure II provides additional information on HRP cost-sharing provisions, coverage 

restrictions, and premiums. 

HRP Governance, Expenditures, and Funding

• Collectively, in 2008, HRP governing boards included representatives from health insurance 

carriers (41 percent of board members), state government (13 percent), medical providers 

(9 percent), enrollees (7 percent), and employers (3 percent), among others.14

• Total claims paid by HRPs in 2008 were about $1.9 billion, accounting for almost 95 percent 

of total HRP expenditures. The average claims per enrolled individual totaled $9,437 in 2008, 

an increase of about 39 percent since 2003. 

• In 2008, premium revenue contributed 54 percent of HRP funding, and insurance carrier 

assessments contributed about 23 percent. 

• HRPs were awarded a total of approximately $286 million in federal grants between 2003 and 

2008, according to CMS. Almost 83 percent of these funds were operational grants, almost 

15 percent were bonus grants, and less than 3 percent were seed grants. Federal grants 

comprised less than 2 percent of total HRP funding in 2008. 

 

14Percentages provided are out of total voting board members. HRP governing boards may also include 

nonvoting members. 

 5 GAO-09-730R State High-Risk Health Insurance Pools
• Of the $75 million in federal grants that HRPs were awarded in 2006, about 55 percent were 

used to cover operational losses, about 17 percent to reduce premiums, and about 14 percent 

to support income-based premium subsidy programs, according to reports submitted to CMS. 

HRPs used the rest of the funds for various purposes, such as disease management programs 

and reduction in cost sharing, increasing benefit coverage, and marketing and outreach.15

Enclosure III contains more information on HRP governance, expenditures, and funding. 

Agency Comments 

We provided a draft of this report to HHS and NASCHIP for comment. In response, HHS 

provided written comments, stating that our report contains a wealth of valuable information 

on HRPs. We have reproduced these comments in enclosure IV. HHS and NASCHIP also 

provided technical comments, which we incorporated as appropriate. 

– – – – – 

As agreed with your offices, unless you publicly announce its contents earlier, we plan no 

further distribution of this report until 30 days from its issue date. At that time, we will send 

copies of this report to the Secretary of HHS, relevant congressional committees, and other 

interested members. The report will also be available at no charge on GAO’s Web site at 

John E. Dicken 

http://www.gao.gov. 

Director, Health Care Issues 

 

Enclosures – 5 

15Such funds were next awarded in 2008. Annual reports on how HRPs used these 2008 grants were not 

available at the time of this report, so they were not included in our analysis. 

 6 GAO-09-730R State High-Risk Health Insurance Pools
Enclosure I 

7 GAO-09-730R State High-Risk Health Insurance Pools

HRP Enrollment and Demographics of HRP Enrollees, Fiscal Year 2008 

Table 1: HRP Enrollment in 2008 and Estimate of the Potentially Eligible Population, 2005-2007 State 

Averages 

HRP Total HRP enrollees

Total HRP enrollees 

and dependents

Estimated number of 

individuals potentially 

eligible for HRP enrollmenta

AL 2,272 2,410 79,632

AK 469 469 14,490

AR 3,079 3,079 61,110

CA 6,809 7,036 846,720

CO 8,552 8,552 100,674

CT 2,073 2,336 43,344

FL 292 292 465,948

ID 1,272 1,337 27,216

IL 16,063 16,063 218,610

IN 6,261 6,561 96,516

IA 2,732 2,732 34,524

KS 1,693 1,863 40,320

KY 4,185 4,354 71,694

LA 1,117 1,117 101,682

MD 11,366 14,691 95,886

MN 23,511 27,386 55,188

MS 3,468 3,468 68,418

MO 3,015 3,015 91,098

MT 3,016 3,016 18,900

NE 5,126 5,126 26,712

NH 1,038 1,094 17,388

NM 6,020 6,020 53,550

ND 1,463 1,463 8,568

OK 2,276 2,276 80,640

OR 13,953 15,318 78,246

SC 2,329 2,329 88,830

SD 669 669 10,962

TN 3,768 3,768 104,580

TX 24,170 26,908 716,562

UT 3,621 3,621 50,274

WA 3,397 3,397 97,020

WV 568 652 33,768

WI 16,284 16,284 60,480
Enclosure I 

 8 GAO-09-730R State High-Risk Health Insurance Pools

HRP Total HRP enrollees

Total HRP enrollees 

and dependents

Estimated number of 

individuals potentially 

eligible for HRP enrollmenta

WY 716 716 9,198

Across all HRPs 186,643 199,418 3,968,748

Source: GAO data collection instrument administered to all 34 HRPs operational in 2008 and analysis of data from the 2006 Medical Expenditure Panel Survey (MEPS) 

and U.S Census Bureau, Income, Poverty, and Health Insurance Coverage in the United States: 2007. 

a

GAO estimated the potentially eligible population, including dependents, by (1) determining the percentage of uninsured 

individuals with at least one chronic condition using 2006 MEPS data, and (2) applying that percentage to Current Population 

Estimates (CPS) estimates of the 3-year average uninsured population in each of the 34 states with an HRP (2005-2007). The 

CPS estimates are subject to sampling error of plus or minus 1.3 percent at the 90 percent confidence level. The MEPS and 

CPS data used were the most current available at the time we performed our work. 

Table 2: HRPs with Waiting Lists or Closed to Enrollment, 2004-2008 

Year 

HRPs with a waiting list 

(maximum number of individuals on the list) HRPs closed to enrollment 

2004 Illinois (279) Florida 

2005 Illinois (173) Florida 

2006 California (864) Florida 

2007 California (232) Florida 

2008 California (1,030) Florida 

Source: GAO data collection instrument administered to all 34 HRPs operational in 2008. 
Enclosure I 

9 GAO-09-730R State High-Risk Health Insurance Pools

Table 3: Demographics of HRP Enrollees, by State HRP, 2008 

Employment statusa,b 

Percentage of enrollees who are: 

HRP 

Average 

age 

(years) Employed Unemployed Retired

Average 

household 

income of 

new 

enrolleesc

Percent 

male

Average 

length of 

enrollment 

(in months) 

Percent 

who are 

HIPAAeligibled

Percent 

who are 

HCTCeligiblee

AL 51 — — — — 45.6 9 100.0f0.0

AK 50 — — — — 48.6 50 32.4 0.0

AR — — — — — 47.7 42 45.1 0.6

CA — — — — — 43.7 36 — —

CO 45 29.8 63.4 2.1 — 46.9 26 9.4 0.1

CT 47 — — — — 48.4 53 49.4 0.8

FL 50 — — — — 50.3 N/Ag0.0 0.0

ID 47 — — — — 45.0 31 — —

IL 50 — — — — 44.6 47 64.3 1.4

IN 48 — — — $27,500 54.9 31 37.8 0.1

IA 49 — — — — 50.3 22 43.0 0.0

KS 51 — — — — 44.2 42 17.9 0.2

KY 48 — — — — 51.1 29 40.3 0.0

LA 50 — — — — 52.8 41 60.6 0.2

MD 49 57.8 29.1 12.1 $35,000 45.6 16 30.2 1.5

MN — — — — — — — 5.2 0.1

MS 51 — — — — 45.0 43 36.6 —

MO 48 — — — — 50.8 25 40.1 —

MT 50 — — — — 45.0 42 46.3 0.1

NE 47 — — — — 52.6 59 45.2 0.0

NH 47 — — — — 47.3 19 25.4 1.4

NM 48 — — — — 45.9 24 17.7 0.0

ND — — — — — — — 2.6 0.2

OK — — — — — — — 43.6 0.0

OR 46 42.5 29.5 13.0 $29,366 41.2 31 13.7 0.2

SC 50 — — — — 48.0 36 66.7 1.2

SD 47 — — — — 49.6 31 100.0f0.0

TN 51 — — — — 40.3 6 12.1 —

TX 51 — — — — 46.6 42 43.1 0.1

UT 46 47.9 5.4 3.0 $70,573 40.5 60 35.0 0.0

WA 49 — — — — 57.1 45 0.0 0.0

WV 49 — — — — 42.1 13 — —

WI 51 51.1 37.0 — $54,200h54.5 40 — —

WY 51 — — — — 48.0 — 0.8 —

Across 

all HRPs 49i 47 32 9 $41,136i 47 36i 28 0.3

Source: GAO data collection instrument administered to all 34 HRPs operational in 2008. 

Legend: — = response not provided 

N/A: Not applicable 
Enclosure I 

 10 GAO-09-730R State High-Risk Health Insurance Pools

Note: Information presented for enrollees only—not dependents, with the exception of Texas where dependents are counted as enrollees 

because they hold their own policies. 

a

Employment status was provided by five states—Colorado and Wisconsin collected these data from new enrollees only, and Maryland,

Oregon, and Utah collected it from all enrollees. 

b

Percentages may not add to 100 because some enrollees may fall into other or unknown employment status categories. 

c

Average income was provided by the five HRPs that collected income data for new enrollees in 2008. 

d

HIPAA-eligible refers to those individuals who qualify for HRP enrollment because of the Health Insurance Portability and Accountability Act of 

1996, which allows for portability of health coverage for those with prior group coverage. 

e

HCTC-eligible refers to those individuals who qualify for HRP enrollment because of the Health Coverage Tax Credit, which provides tax 

credits for health insurance premiums for certain eligible displaced workers and retirees. 

f

Pool is open to HIPAA-eligibles only. 

g

The Florida HRP has been closed to new enrollment since 1991 and, in 2008, had 292 enrollees. 

h

Income data were provided on a voluntary basis by 77 percent of new enrollees in Wisconsin. 

i

Averages are weighted based on HRP enrollment. 
Enclosure II 

11 GAO-09-730R State High-Risk Health Insurance Pools

HRP Plan Cost-sharing Provisions, Benefits, Coverage Restrictions, and Premiums 

Table 4: Average Annual Deductible of Most Popular HRP Plans Compared to Employer-sponsored 

Plans, 2008 

Most popular HRP plansa

Employer-sponsored plansb

Average annual deductible $1,593c$560

Source: GAO data collection instrument administered to all 34 HRPs operational in 2008 and Kaiser Family Foundation and Health Research & Educational Trust, 

Employer Health Benefits: 2008 Annual Survey (Menlo Park, Calif., and Chicago, Ill.: 2008). 

Note: Deductibles are for self-only coverage and in-network services. 

a

This includes the most popular HRP plan—the plan with the most enrollees—in each of the 34 HRPs. The most popular plans 

had a total of 76,846 enrollees, accounting for 41 percent of total HRP enrollees in 2008. 

b

Preferred provider organization plan types. 

c

Average was weighted by the number of HRP enrollees in the 33 most popular plans that had deductibles greater than zero. 

Table 5: Distribution of Enrollees by Annual Deductible Level in All HRP Plans and Most Popular HRP 

Plans, Compared to Employer-sponsored Plans, 2008 

HRPs 

All HRP plans Most popular HRP plansaEmployer-sponsored plansb

Annual deductible 

Percentage of 

total enrolleesc

Percentage of 

total enrolleesc

Percentage of covered 

workers in employersponsored plansd

No deductible 1.8 1.0 32.0

$1–$499 6.0 4.1 35.4

$500–$999 17.1 32.2 20.4

$1,000–$1,999 27.1 17.8 8.8

$2,000–$2,999 24.5 39.1

$3,000–$4,999 4.6 1.7

$5,000 or more 17.8 4.1 2.7e

Source: GAO data collection instrument administered to all 34 HRPs operational in 2008 and Kaiser Family Foundation and Health Research & Educational Trust, 

Employer Health Benefits: 2008 Annual Survey (Menlo Park, Calif., and Chicago, Ill.: 2008). 

Note: Deductibles are for self-only coverage and in-network services. Information presented for enrollees only—not 

dependents, with the exception of Texas where dependents are counted as enrollees because they hold their own policies. 

a

This includes the most popular HRP plan—the plan with the most enrollees—in each of the 34 HRPs. The most popular plans 

had a total of 76,846 enrollees, accounting for 41 percent of total HRP enrollees in 2008. 

b

Preferred provider organization plan types. 

c

Percentages do not add to 100 because HRP enrollees in supplemental insurance plans were excluded. 

d

Percentages do not add to 100 due to rounding. 

e

Data for employer-sponsored plans were only available for deductibles of $2,000 or more. 
Enclosure II 

 12 GAO-09-730R State High-Risk Health Insurance Pools

Table 6: Distribution of Enrollees in Most Popular HRP Plans, by Annual Out-of-pocket Spending Limits, 

2008 

Annual out-of-pocket spending limits 

in most popular HRP plans 

Percentage of all enrollees 

in most popular HRP plans 

Less than $2,000 29.3

$2,001–$5,000 48.5

$5,001–$7,000 15.5

$7,001–$10,000 6.6

More than $10,000 0

Total 100

Source: GAO data collection instrument administered to all 34 HRPs operational in 2008. 

Notes: Analysis includes the most popular HRP plan—the plan with the most enrollees—in each of the 34 HRPs. The most 

popular plans had a total of 76,846 enrollees, accounting for 41 percent of total HRP enrollees in 2008. 

Information on out-of-pocket spending limits was provided for self-only coverage and in-network services. 

Information presented for enrollees only—not dependents, with the exception of Texas where dependents are counted as 

enrollees because they hold their own policies. 

Percentages do not add to 100 due to rounding. 
Enclosure II 

13 GAO-09-730R State High-Risk Health Insurance Pools

Table 7: Annual Out-of-pocket Spending Limit in Each State HRP’s Most Popular Plan, and Costs that Could 

Exceed the Limit, 2008 

Cost-sharing features

HRP 

Annual 

out-ofpocket 

spending 

limit 

Overall 

annual 

deductible 

Separate 

hospital 

deductible

Separate 

prescription 

drug 

deductible 

Separate 

mental 

health 

deductible Coinsurance

Copay for 

prescription 

drugs 

Copay 

for 

mental 

health

Copay for 

physician 

office 

visits 

AL N/A 

AK $10,000  

AR $2,000  ●

CA $2,500     

CO $2,000   ● ● ●

CT $7,500  ● ● ●  ● ● ●

FL — 

ID $10,000 ● ● 

IL $1,500 ● 

IN $1,500 ●  ●

IA $5,000   ● ●

KS $3,000   

KY $4,000 ●  ● ● ●

LA $9,500  

MD $3,000  ●  ●  

MN $3,000   

MSaN/A ● ●  ●

MO $5,000    

MT $7,500  

NE $3,500   ● ● ●

NH $3,500  ●  ●

NM $2,500   ●  

ND $3,000   

OK $10,000  ●  ● 

OR $1,500   ●  

SC $5,000  

SD $3,250   ●

TN $5,000   ●

TX $5,500  ●  ● ●

UT $2,000  ●  ●  

WA $1,500  ● ● ●   ● ●

WV $3,000 ● ● ● ●  ● ● ●

WI $3,500   ●

WY $2,000  ●  ●

Source: GAO data collection instrument administered to all 34 HRPs operational in 2008 

Legend: ● = Cost is not subject to the annual out-of-pocket maximum 

 = Cost is subject to the annual out-of-pocket maximum
Enclosure II 

14 GAO-09-730R State High-Risk Health Insurance Pools

N/A = Not applicable because the most popular plan did not have an annual out-of-pocket maximum 

— = Response not provided 

Notes: Blank cells indicate that the cost was not a feature of the plan’s cost-sharing structure. 

Analysis includes the most popular HRP plan—the plan with the most enrollees—in each of the 34 HRPs. The most popular 

plans had a total of 76,846 enrollees, accounting for 41 percent of total HRP enrollees in 2008. 

Information on out-of-pocket spending limits was provided for self-only coverage and in-network services. 

a

Mississippi does not have an overall policy regarding the out-of-pocket maximum, but it has a $5,000 out-of-pocket maximum 

on allowable hospital charges, after which the policy pays allowable hospital charges at 100 percent. 

Table 8: Coverage of Selected Benefits Among Most Popular HRP Plans Compared to Employersponsored Plans, 2008 

Most popular HRP plansa,b

Employersponsored plans

Benefit 

Number of plans 

that cover benefit

Percentage of 

enrolleesc

 in plans 

that cover benefit 

Percentage of 

workers in plans 

that cover benefit

Maternity care 30 82 NA

• Maternity care covered as a riderd

4 10 NA

Transplants 33 100eNA

Mental health services 31 97 98

Prescription drugs 34 100 98 

Source: GAO survey of 34 HRPs operational in 2008 and Kaiser Family Foundation and Health Research & Educational Trust, Employer Health Benefits: 2008 Annual 

Survey (Menlo Park, Calif., and Chicago, Ill.: 2008). 

Legend: NA = Not available 

a

This includes the most popular HRP plan—the plan with the most enrollees—in each of the 34 HRPs. The most popular plans 

had a total of 76,846 enrollees, accounting for 41 percent of total HRP enrollees in 2008. 

b

Information is for in-network services and individual (not family) coverage only. Supplemental insurance policies are excluded.

c

Information presented for enrollees only—not dependents, with the exception of Texas where dependents are counted as 

enrollees because they hold their own policies. 

d

Private individual health insurance plans may offer optional coverage of additional services, such as maternity care. This extra 

coverage is referred to as an optional rider. 

e

The percentage of enrollees with coverage of transplants was 99.7, which rounds to 100. 
Enclosure II 

 15 GAO-09-730R State High-Risk Health Insurance Pools

Table 9: Selected Cost-sharing Features and Coverage Limits Among Most Popular HRP Plans 

Compared to Employer-sponsored Plans, 2008 

Most popular HRP plansa,b

Employer-sponsored 

plans

Cost-sharing features and limits on 

coverage Number of plans

Percentage of 

enrollees in plans 

with feature 

and/or limitc

Percentage of 

covered workers 

in plans with feature 

and/or limitd

Separate cost sharing for inpatient 

hospital care, in addition to the overall 

plan deductible 21 56 79

Preventive services exempt from plan 

deductible 15 57 89

Separate prescription drug deductible for 

plans that cover prescription drugs 13 41 11

Required coinsurance for prescription 

drugs for plans that cover prescription 

drugs 26 76 NA

Out-of-pocket annual maximums that 

apply to cost sharing for prescription 

drugs for plans that cover prescription 

drugs 9 18 11

Thirty or less mental health outpatient 

visits covered in a year by plans that 

cover mental health benefits 13e

19 59f

Additional cost sharing for emergency 

room care 12 49 NA

Source: GAO data collection instrument administered to all 34 HRPs operational in 2008 and Kaiser Family Foundation and Health Research & Educational Trust, 

Employer Health Benefits: 2008 Annual Survey (Menlo Park, Calif., and Chicago, Ill.: 2008). 

Legend: NA = Not available 

a

This includes the most popular HRP plan—the plan with the most enrollees—in each of the 34 HRPs. The most popular plans 

had a total of 76,846 enrollees, accounting for 41 percent of total HRP enrollees in 2008. 

b

Information is for in-network services and individual (not family) coverage only. Supplemental insurance policies are excluded.

c

Information presented for HRP enrollees only—not dependents, with the exception of Texas where dependents are counted as 

enrollees because they hold their own policies. 

d

Preferred provider organization plan types. 

e

Such limits may apply to some mental health services only. For example, the New Mexico HRP reported that its mental health 

limits apply only to chemical dependency services. 

f

Information for mental health outpatient visits is for covered workers with outpatient mental health coverage and not specified

for in- or out-of-network coverage. 
Enclosure II 

 16 GAO-09-730R State High-Risk Health Insurance Pools

Table 10: Annual and Lifetime Dollar Limits Among Most Popular HRP Plans Compared to Employersponsored Plans, 2008 

Most popular HRP plansa,b

Employersponsored 

plans

Type of Limit Average limit Range in limits

Number of 

enrolleesc

who 

met limit

Number 

of plans 

with limit 

Percentage 

of plans 

with limit 

Percentage 

of 

employersponsored 

plans with 

limitd

Annual dollar limit $175,000 $75,000–300,000 10 5e15 10 

Lifetime dollar limit $1.6 million $500,000–5 million 16 30f88 56g

Source: GAO data collection instrument administered to all 34 HRPs operational in 2008 and Mercer, National Survey of Employer-Sponsored Health Plans, 2008. 

a

This includes the most popular HRP plan—the plan with the most enrollees—in each of the 34 HRPs. The most popular plans 

had a total of 76,846 enrollees, accounting for 41 percent of total HRP enrollees in 2008. 

b

Information is for in-network services and individual (not family) coverage only. Supplemental insurance policies are excluded.

c

Information presented for enrollees only—not dependents, with the exception of Texas where dependents are counted as 

enrollees because they hold their own policies. 

d

Among preferred provider organization and point-of-service plans offered by employers with 10 or more employees. 

e

The five HRPs that had annual limits were: California, Louisiana, Tennessee, Utah, and West Virginia. In addition, while some 

HRPs may not have had overall annual limits, they may have had annual limits on specific services. For example, Mississippi 

told us that while it did not have an overall annual limit in 2008, it had an annual pharmacy limit of $100,000 in 2008. Similarly, 

New Mexico had annual limits on acupuncture, diabetic education services, therapy/rehabilitation, and annual wellness 

preventive benefits. 

f

HRPs may have had lifetime limits on individual services. For example, New Mexico reported that while it did not have an 

overall lifetime limit, it had a $5 million lifetime limit on transplants and a $2,500 limit on diabetic education services. 

g

Median lifetime limit was $2,000,000. 
Enclosure II 

17 GAO-09-730R State High-Risk Health Insurance Pools

Table 11a: HRP Average Monthly Premiums, by State HRP, 2004-2006 

2004 2005 2006 

HRP 

HRP 

premium 

rate as a 

percent of 

standard 

market 

ratea

Average 

monthly 

HRP 

premiumb

Average 

monthly HRP 

premium for 

50-year-old 

nonsmoking 

malec

HRP 

premium 

rate as a 

percent of 

standard 

market 

ratea

Average 

monthly 

HRP 

premiumb

Average 

monthly HRP 

premium for 

50-year-old 

nonsmoking 

malec

HRP 

premium 

rate as a 

percent of 

standard 

market 

ratea

Average 

monthly 

HRP 

premiumb

Average 

monthly HRP 

premium for 

50-year-old 

nonsmoking 

malec

AL 98 $448 $358 104 $486 $412 127 $539 $478

AK 137 462 580 142 494 580 145 511 614

AR 140 463 622 140 395 389 150 419 416

CA 125 519 666 125 444 683 125 435 736

CO 144 379 689 144 376 571 134 405 622

CT 150 651 658 150 712 567 150 623 651

FL 200 — — 200 — — 200 — —

ID 125 303 250 125 330 260 131 349 252

IL 138 496 610 138 517 623 137 523 660

IN 138 496 515 134 528 546 133 575 590

IA 150 681 860 150 457 329 150 471 360

KS 130 475 621 134 483 640 134 494 656

KY 130 400 324 130 424 357 130 480 369

LA 184 609 483 183 535 529 183 575 482

MD 147 272 267 131 306 273 121 283 273

MN 112 308 382 120 342 359 123 380 315

MS 150 356 316 150 375 322 150 400 366

MO 175 382 338 168 251 355 168 417 396

MT 117 349 311 134 395 358 138 426 383

NE 135 488 401 135 510 435 135 510 434

NH 140 459 458 136 477 505 125 424 498

NM — 420 625 — 374 407 147 250 407

ND 135 304 378 135 336 402 135 363 420

OK 150 497 674 150 418 674 150 545 848

OR 102 391 482 111 344 434 110 376 506

SC 200 734 — 200 835 665 200 878 737

SD 150 139 377 150 380 429 150 404 471

TN — — — — — — — — —

TX 200 479 397 200 489 420 200 510 456

UT 125 355 369 141 404 434 142 443 497

WA 120 416 582 120 524 777 113 514 791

WV — — — 148 830 474 140 595 512

WId140 — 360 140 442 417 144 474 437

WY 150 669 711 174 675 782 179 801 899
Enclosure II 

 18 GAO-09-730R State High-Risk Health Insurance Pools

2004 2005 2006 

HRP 

HRP 

premium 

rate as a 

percent of 

standard 

market 

ratea

Average 

monthly 

HRP 

premiumb

Average 

monthly HRP 

premium for 

50-year-old 

nonsmoking 

malec 

HRP 

premium 

rate as a 

percent of 

standard 

market 

ratea

Average 

monthly 

HRP 

premiumb

Average 

monthly HRP 

premium for 

50-year-old 

nonsmoking 

malec

HRP 

premium 

rate as a 

percent of 

standard 

market 

ratea

Average 

monthly 

HRP 

premiumb

Average 

monthly HRP 

premium for 

50-year-old 

nonsmoking 

malec

Average 

monthly 

premium 

across 

all HRPse

$424 $431 $450

Source: GAO data collection instrument administered to all 34 HRPs operational in 2008. 

Legend: — = response not provided 

a

In general, each HRP sets premiums as a percentage of a standard market rate, which is based on the premium rates charged by other private individual 

market health insurance carriers offering coverage in its state. 

b

HRPs calculated average premiums by dividing the total premium revenue in each year by the average number of enrollees for the year, with the exception of 

Texas which also included dependents in its calculation because they hold their own policies. The calculation excludes supplemental plans. 

c

Average premium is for a 50-year-old nonsmoking male with self-only coverage who is enrolled in that state’s most popular plan—the one with the most 

enrollees. 

d

Wisconsin does not set its premiums as a percent of the standard rate. 

e

Averages are weighted based on HRP enrollment. 
Enclosure II 

19 GAO-09-730R State High-Risk Health Insurance Pools

Table 11b: HRP Average Monthly Premiums, by State HRP, Continued, 2007-2008 

2007 2008 

HRP 

HRP premium 

rate as a 

percent of 

standard 

market ratea

Average 

monthly HRP 

premiumb

Average 

monthly HRP 

premium for 

50-year-old 

nonsmoking 

malec

HRP premium 

rate as a 

percent of 

standard 

market ratea

Average 

monthly HRP 

premiumb

Average 

monthly HRP 

premium for 

50-year-old 

nonsmoking 

malec

AL 126 $556 $502 123 $571 $540

AK 145 563 689 140 596 761

AR 150 445 450 150 447 462

CA 125 410 717 125 471 772

CO 130 329 478 128 351 524

CT 150 628 717 150 709 802

FL 200 455 — 200 — —

ID 125 350 247 125 367 275

IL 137 551 693 137 608 721

IN 130 598 613 129 629 613

IA 150 461 375 150 472 384

KS 134 531 681 134 589 521

KY 130 499 384 130 502 388

LA 182 527 441 180 562 482

MD 117 278 280 105 270 431

MN 119 385 325 120 410 375

MS 150 432 383 146 428 383

MO 170 453 437 150 474 450

MT 130 411 394 135 486 397

NE 135 539 564 135 502 546

NH 125 438 538 125 461 580

NM 138 245 407 137 240 407

ND 135 394 478 135 421 478

OK 150 534 848 150 552 848

OR 117 344 419 113 398 503

SC 200 836 693 200 926 792

SD 150 466 502 150 504 571

TN 150 670 649 150 672 649

TX 200 540 493 200 593 565

UT 137 448 542 134 444 569

WA 113 505 777 113 538 801

WV 140 608 538 130 585 466

WId 149 492 429 120 466 404

WY 200 855 811 166 752 811
Enclosure II 

 20 GAO-09-730R State High-Risk Health Insurance Pools

 2007 2008 

HRP 

HRP premium 

rate as a 

percent of 

standard 

market ratea

Average 

monthly HRP 

premiumb

Average 

monthly HRP 

premium for 

50-year-old 

nonsmoking 

malec

HRP premium 

rate as a 

percent of 

standard 

market ratea

Average 

monthly HRP 

premiumb

Average 

monthly HRP 

premium for 

50-year-old 

nonsmoking 

malec

Average 

monthly 

premium 

across all 

HRPse

$460 $485 

Source: GAO data collection instrument administered to all 34 HRPs operational in 2008. 

Legend: — = response not provided 

a

In general, each HRP sets premiums as a percentage of a standard market rate, which is based on the premium rates charged 

by other private individual health insurance carriers offering coverage in its state. 

b

HRPs calculated average premiums by dividing the total premium revenue in each year by the average number of enrollees 

for the year, with the exception of Texas which also included dependents in its calculation because they hold their own policies. 

The calculation excludes supplemental plans. 

c

Average premium is for a 50-year-old nonsmoking male with self-only coverage who is enrolled in that state’s most popular 

plan—the one with the most enrollees. 

d

Wisconsin does not set its premiums as a percent of the standard market rate. 

e

Averages are weighted based on HRP enrollment. 
Enclosure II 

 21 GAO-09-730R State High-Risk Health Insurance Pools

Table 12: Change in Average Monthly Premiums for all HRPs Compared to Private Health Insurance 

Market Premiums, 2004 to 2008 

2004 through 2006 2007 through 2008 2004 through 2008

2004 2006

Percentage 

change 2007 2008

Percentage 

change 

Percentage 

change

Employer-sponsored 

market 

$308 $354 15 $373 $392 5 27

Individual marketa $189 $218b 15 NA NA NA NA

HRPc,d $424 $450 6 $460 $485 6 14

Sources: GAO data collection instrument administered to all 34 HRPs operational in 2008; America’s Health Insurance Plans (AHIP) Center for Policy and Research, 

Individual Health Insurance: A Comprehensive Survey of Affordability, Access, and Benefits, August 2005, (Washington, D.C.: 2005), and Individual Health Insurance 

2006-2007: A Comprehensive Survey of Premiums, Availability, and Benefits (Washington, D.C.: 2007); Kaiser Family Foundation and Health Research & Educational 

Trust, Employer Health Benefits: 2004, 2006, 2007, and 2008 Annual Surveys (Menlo Park, Calif., and Chicago, Ill.: 2004, 2006, 2007, and 2008 respectively). 

Legend: NA = Not available 

a

According to model legislation prescribed by the National Association of Insurance Commissioners, an HRP should consider 

basing premiums on the standard market rates charged in the individual market in its state. 

b

AHIP individual market premium data are mostly as of December 2006 and January 2007. 

c

HRPs calculated average premiums by dividing the total premium revenue in each year by the average number of enrollees 

for the year, with the exception of Texas which also included dependents in its calculation because they hold their own policies. 

The calculation excludes supplemental plans. In addition, monthly averages were weighted by the number of enrollees across 

all plans that responded. 

d

Table shows rounded numbers for average monthly HRP premiums. However, percentage change numbers were calculated 

using non-rounded numbers. 
Enclosure II 

 22 GAO-09-730R State High-Risk Health Insurance Pools

Table 13: Income-based Premium Subsidies Offered by HRPs, 2008 

HRP 

Subsidy 

recipients

Maximum 

household 

income eligible 

for a subsidy 

as percentage 

of FPLa

Average 

discount as a 

percentage of 

monthly 

premium

Average 

monthly 

discount 

Maximum 

discount 

available as a 

percentage of 

monthly 

premium

CO 3,232 481 30 $111 31

IN 238 200 40 348 45

MD 4,614 300 55 191 63

MNb2,390 220 — — —

MT 336 150 45 266 45

NM 2,637 399 67 239 75

OR 4,729 185 — 397 95

TN 3,342 350 63 436 90

UT 795 300 37 168 50

WA 11 300 18 168 21

WIc 3,299 — 33 169 43

WY 92 250 30 — 33

Across all HRPs 25,715d 285% 49%e $261e 66e

Source: GAO data collection instrument administered to all 34 HRPs operational in 2008. 

Legend: — = response not provided 

Note: Information presented for the 12 HRPs that reported that they provided income-based premium subsidies. Other HRPs 

may also offer income-based subsidies that are not related to premiums. 

a

Federal Poverty Level (FPL). 

b

Minnesota’s subsidy program is not tied directly to the amount of premium or percent of premium an enrollee pays; rather, it is

a program that provides a subsidy once a year. If enrollees qualify at 220 percent of the FPL based on household size, they 

receive one check per enrollee and dependent. They are not required to use these funds toward premium payment. For 

example, funds can be used for other purposes such as paying coinsurance, or deductible amounts due to providers. The 

program includes enrollees and dependents on all plans including Medicare. 

c

The income limit for Wisconsin’s subsidy program was not expressed relative to the FPL, but to a level of household income. 

In calendar year 2008, the maximum income eligible was $25,000. 

d

Fourteen percent of all HRP enrollees were receiving income-based premium subsidies. 

e

Average is weighted by number of subsidy recipients. 
Enclosure II 

 23 GAO-09-730R State High-Risk Health Insurance Pools

Table 14: Income-based Premium Subsidy Recipients by Deductible Level, 2008 

Deductible level Number of subsidy recipients enrolled

No deductible 229 

$1 – $499 2,218 

$500 – $999 9,186 

$1,000 – $1,999 5,851 

$2,000 – $2,999 3,348 

$3,000 – $4,999 909 

$5,000 or more 1,538

Source: GAO data collection instrument administered to all 34 HRPs operational in 2008. 

Note: Information presented for the 12 HRPs that reported that they provided income-based premium subsidies. Deductible 

information was not provided for all subsidy recipients. 
Enclosure III 

24 GAO-09-730R State High-Risk Health Insurance Pools

HRP Governance, Expenditures, and Funding 

Table 15: Composition of HRP Boards of Directors Across All 34 HRPs, 2008 

Group 

Voting members as a 

percentage of total

Nonvoting members as a 

percentage of total

Employers 3 5

Enrollees 7 0

Insurance carriers 41 2

Medical providers 9 15

State government 13 54

Othera27 24

Source: GAO data collection instrument administered to all 34 HRPs operational in 2008. 

a

Other members of HRP boards of directors include members of insurance and medical representative associations, the 

general public, and disability agents, among others. 
Enclosure III 

25 GAO-09-730R State High-Risk Health Insurance Pools

Table 16: Composition of Boards of Directors by State HRP, 2008 

Employers Enrollees Insurance carriers Medical providers State government Othera

HRP Voting Nonvoting Voting Nonvoting Voting Nonvoting Voting Nonvoting Voting Nonvoting Voting Nonvoting

AL 2 3 1

AK 5 2

AR 1 4 1 1

CA 5 3

CO 2 4 1 3

CT 9

FL 1 1 1 

ID 4 3 4

IL 3 4 10

IN 2 4 1 2

IA 7 1 3 3

KS 1 6 1 3

KY 1 1

LA 1 1 1 2 3 5

MD 1 1 4 3

MN 1 2 6 2

MS 3 1 2 3

MO 3 2 1 4 3

MT 1 7

NE 1 4 2

NH 1 6 1 1 2

NM 4 1 1 5

ND 3 5 

OK 1 5 1 2

OR 5 1 1 2 1

SC 5 3

SD 2 1 1 1 6 5 2 3

TN 2 2 2 5 2

TX 2 2 2 3

UT 1 1 2 1 2 5

WA 2 2 4 1 1 1

WV 2 1 3

WI 1 2 4 4 1 2

WY 3 1 3

Source: GAO data collection instrument administered to all 34 HRPs operational in 2008. 

a

Other members of HRP boards of directors include members of insurance and medical representative associations, the general public, and disability agents, 

among others. 
Enclosure III 

26 GAO-09-730R State High-Risk Health Insurance Pools

Table 17: Expenditures by State HRP, 2003 and 2008 (dollars in thousands) 

Paid claims 

HRP Year Medical 

Mental 

health 

servicesa

Prescription 

drugs 

Total 

claims

Administrative 

expensesb

Other 

expenditures

Total 

expendituresc

AL 2003 $23,991 — — $23,991 $263 $19 $24,272

2008 21,225 — — 21,225 363 24 21,612

AK 2003 5,749 — $909 6,658 416 95 7,168

2008 4,558 $54 780 5,392 352 163 5,906

AR 2003 21,375 — — 21,375 2,149 27 23,551

2008 19,635 — — 19,635 2,386 — 22,021

CA 2003 97,565 — — 97,565 4,850 — 102,415

2008 39,201 — — 39,201 2,507 — 41,708

CO 2003 24,876 — 5,568 30,444 3,007 — 33,451

2008 51,401 — 11,227 62,628 5,302 — 67,930

CT 2003 22,391 — — 22,391 725 1,164 24,281

2008 28,108 — 7,543 35,651 521 1,098 37,270

FL 2003 4,371 — 0 4,371 552 — 4,923

2008 2,812 — 865 3,676 630 — 4,306

ID 2003 5,715 0 0 5,715 143 32 5,889

2008 12,578 0 0 12,578 1,360 141 14,079

IL 2003 81,814 — 25,245 107,059 6,131 — 113,191

2008 115,607 — 40,521 156,128 8,883 — 165,011

IN 2003 90,429 0 18,617 109,046 4,538 596 114,180

2008 57,100 0 39,810 96,910 3,991 587 101,488

IA 2003 — — — 1,795 365 — 2,160

2008 25,760 307 5,392 31,459 1,442 201 33,101

KS 2003 11,488 — 1,485 12,974 318 137 13,429

2008 19,334 — 2,930 22,264 322 852 23,438

KY 2003 10,697 91 3,802 14,591 1,281 41 15,914

2008 31,091 527 15,654 47,272 3,122 39 50,433

LA 2003 12,174 0 1,570 13,744 746 338 14,828

2008 7,785 0 1,791 9,576 1,137 381 11,094

MD 2003d0 0 0 0 96 169 266

2008 75,829 1,817 28,866 106,511 6,568 800 113,880

MN 2003 — — — 175,049 9,079 0 184,128

2008 195,904 — 49,869 245,773 10,207 1,559 257,540

MS 2003 17,956 277 5,524 23,757 1,371 0 25,129

2008 16,260 132 6,625 23,018 1,597 0 24,615

MO 2003 11,666 — 5,062 16,728 2,114 0 18,842

2008 16,407 — 8,387 24,794 2,849 0 27,644

MT 2003 10,369 — 3,481 13,850 1,085 112 15,047

2008 20,968 — 4,539 25,507 1,165 209 26,882
Enclosure III 

 27 GAO-09-730R State High-Risk Health Insurance Pools

 Paid claims 

HRP Year Medical 

Mental 

health 

servicesa

Prescription 

drugs 

Total 

claims

Administrative 

expensesb

Other 

expenditures

Total 

expendituresc

NE 2003 32,214 0 12,657 44,871 2,891 93 47,856

2008 39,092 0 15,827 54,920 2,982 675 58,576

NH 2003 1,499 — 60 1,559 323 42 1,925

2008 10,997 83 1,103 12,183 702 142 13,027

NM 2003 7,136 — 2,924 10,060 425 225 10,710

2008 46,283 381 14,189 60,853 2,454 975 64,282

ND 2003 — — — 8,090 281 — 8,370

2008 — — — 10,343 379 — 10,722

OK 2003 16,368 0 6,993 23,361 1,227 0 24,587

2008 16,013 0 8,320 24,333 1,239 0 25,571

OR 2003 45,624 1,508 13,961 61,092 3,976 0 65,069

2008 125,324 7,252 30,453 163,029 7,982 0 171,011

SC 2003 18,973 — — 18,973 1,405 275 20,652

2008 26,630 — — 26,630 1,737 66 28,433

SD 2003 — — — — — — —

2008 3,707 — 1,518 5,225 389 0 5,614

TN 2003 0 0 0 0 0 0 0

2008 20,443 0 4,675 25,118 2,359 0 27,477

TX 2003 124,682 — 52,696 177,378 14,284 0 191,662

2008 182,337 — 80,210 262,547 13,715 0 276,262

UT 2003 12,275 — 3,808 16,083 1,340 — 17,424

2008 21,021 — 4,975 25,996 1,782 — 27,778

WA 2003 — — — 37,493 1,746 0 39,239

2008 30,880 838 23,490 55,208 3,567 0 58,775

WV 2003 0 — 0 0 0 0 0

2008 1,957 — 722 2,679 387 0 3,066

WI 2003 — — — 110,444 4,574 0 115,018

2008 123,458 — 33,364 156,822 6,530 0 163,352

WY 2003 4,568 — — 4,568 51 112 4,731

2008 7,511 — — 7,511 74 314 7,899

Total 2003 715,965 1,876 164,364 1,215,075 71,752 3,479 1,290,306

2008 1,417,216 11,391 443,646 1,882,595 100,982 8,226 1,991,803

Percent 

changee

 

+99 +170 +55 +41 +136 +54

Source: GAO data collection instrument administered to all 34 HRPs operational in 2008. 

Legend: — = response not provided 

a

Where mental health services claims are not provided, they are included in the medical claims. 

b

May include third-party administrative fees, actuarial fees, legal fees, agent fees, etc. 

c

Totals may not add due to rounding. 

d

The Maryland HRP did not begin providing health insurance coverage until fiscal year 2004. 

e

While this table presents expenditure figures in rounded numbers (thousands), the percentage change numbers were calculated 

based on non-rounded expenditure numbers. 
Enclosure III 

28 GAO-09-730R State High-Risk Health Insurance Pools

Table 18: Average Claims per Enrolled Individual, by State HRP, 2003 and 2008 

HRP 2003 2008

AL $6,114 $8,807

AK 13,755 11,496

AR 6,485 6,377

CA 12,609 5,572

CO 6,251 7,323

CT 9,778 15,262

FL 8,406 12,590

ID 4,369 9,407

IL 6,668 9,720

IN 11,355 13,864

IA 13,806 11,515

KS 7,618 11,951

KY 5,939 10,857

LA 10,047 8,573

MD 0a7,250

MN 5,194 8,974

MS 5,603 6,637

MO 6,856 8,224

MT 4,553 8,457

NE 7,274 10,714

NH 9,868 11,137

NM 8,383 10,108

ND 4,479 7,070

OK 8,211 10,691

OR 6,180 10,643

SC 10,546 11,434

SD —b7,810

TN —c 6,666

TX 7,189 9,757

UT 5,661 7,179

WA 14,138 16,252

WV —d4,109

WI 6,330 9,630

WY 7,016 10,490

Across all HRPs $ 6,795e$9,437e

Source: GAO data collection instrument administered to all 34 HRPs operational in 2008 and GAO analysis of data from the National Association of State Comprehensive 

Health Insurance Plans, Comprehensive Health Insurance for High-Risk Individuals: A State-by-State Analysis, 2008/2009. 

Legend: — = response not provided 

Note: GAO calculated average claims based on an analysis of total claims and total enrollment—including dependents—for all 

state HRPs except for Indiana, which directly provided us average claims data. 

a

Maryland’s HRP was first established in 2003. 

b

South Dakota’s HRP was first established in 2003. 

c

Tennessee’s HRP did not exist in 2003. 
Enclosure III 

 29 GAO-09-730R State High-Risk Health Insurance Pools

d

West Virginia’s HRP did not exist in 2003. 

e

Averages weighted by total enrollment. 

Table 19: Sources of HRP Funding Nationwide, 2003 and 2008 (in thousands) 

2003 2008 

Type of funding ($)

Percentage of total 

funding ($) 

Percentage of total 

funding

Premiums 763,850 57.4 981,882 54.0

Assessments on health 

insurance carriers 

428,288 32.2 422,815 23.2

Other assessments 28,137 2.1 135,073 7.4

State general revenues 16,683 1.3 93,426 5.1

State tobacco tax 40,000 3.0 39,771 2.2

Federal grantsa1,844 0.1 31,487 1.7

Other 52,248 3.9 115,063 6.3

Total 1,331,050 100 1,819,517 100b

Source: GAO data collection instrument administered to all 34 HRPs operational in 2008. 

a

Federal grants were awarded by the Centers for Medicare & Medicaid Services. 

b

Totals do not sum to 100 percent due to rounding. 
Enclosure III 

 30 GAO-09-730R State High-Risk Health Insurance Pools

Table 20: Sources of Funding by State HRP, 2003 and 2008 

Percentage of total funding 

HRP Year Premiums 

Assessments 

on carriers

Other 

assessments 

State 

general 

revenue

State 

tobacco 

tax

Federal 

grantsa

Other 

Total funding 

for state HRP 

(in thousands)

AL 2003 65.5 33.9 0 0 0 0 0.6 $28,683

2008 72.4 20.3 0 0 0 6.3 1.0 23,071

AK 2003 43.5 56.4 — — — — 0.1 5,939

2008 52.3 38.9 — — — 8 0.7 6,420

AR 2003 61.9 38.1 0 0 0 0 0.1 26,462

2008 76.7 21.6 0 0 0 0.1 1.6 20,963

CA 2003 63.4 0 0 0 36.6 0 0 109,285

2008 45.0 0 11.2 0 43.8 0 0 88,927

CO 2003 67.1 11.9 0 0 0 0 21.0 30,640

2008 44.8 0 0 0 0 2.5 52.7 73,399

CT 2003 62.8 31.3 — — — 5.9 — 25,489

2008 59.5 37.3 — — — 3.3 — 36,205

FL 2003 44.1 55.9 0 0 0 0 0 4,909

2008 51.4 44.0 0 0 0 4.6 0 3,273

ID 2003 73.4 — — 26.0 0 0 0.6 5,889

2008 43.2 — — 43.5 0 6.9 6.5 14,079

IL 2003 77.2 20.6 0 0 0 0 2.2 95,167

2008 73.3 12.9 0 12.5 0 0 1.3 154,297

IN 2003 39.2 60.7 0 0 0 0 0.1 129,245

2008 53.3 11.1 0 33.5 0 1.8 0.4 94,616

IA 2003 27.5 72.3 — — — — 0.2 4,135

2008 57.1 38.8 — — — 2.6 1.4 27,031

KS 2003 76.0 23.3 0 0 0 0 0.6 13,049

2008 49.5 43.7 0 0 0 4.2 2.6 23,754

KY 2003 23.9 21.6 0 0 0 0 54.4 40,249

2008 42.1 21.2 0 0 0 2.7 34.1 60,431

LA 2003 50.6 31.4 4.2 11.6 0 0 2.3 17,219

2008 48.7 10.6 3.6 12.9 0 5.6 18.6 15,512

MD 2003 0 0 72.3 0 0 0 27.7 1,723

2008 31.4 0 61.6 0 0 1.1 5.9 133,878

MN 2003 50.7 48.9 0 0 0 0 0.3 184,128

2008 — — 0 0 0 74.0 26.0 4,651

MS 2003 75.1 24.1 0 0 0 0 0.8 21,623

2008 63.8 29.5 0 0 0 3.2 3.5 28,573

MO 2003 77.2 22.7 0 0 0 0 0.1 15,809

2008 82.1 12.6 0 0 0 3.6 1.6 25,848

MT 2003 65.6 31.6 0 0 0 2.0 0.8 16,756

2008 65.0 29.7 0 0 3.3 0.6 1.3 25,035
Enclosure III 

 31 GAO-09-730R State High-Risk Health Insurance Pools

 Percentage of total funding 

HRP Year Premiums 

Assessments 

on carriers

Other 

assessments 

State 

general 

revenue

State 

tobacco 

tax

Federal 

grantsa

Other 

Total funding 

for state HRP 

(in thousands)

NE 2003 64.7 0 0 0 0 0 35.3 48,900

2008 52.6 0 0 0 0 2.0 45.4 58,781

NH 2003 10.2 88.4 0 0 0 0 1.4 4,794

2008 46.1 47.4 0 0 0 4.5 2.0 13,298

NM 2003 50.6 49.1 0.1 0 0 0 0.2 11,144

2008 23.7 74.1 0 0 0 1.4 0.8 66,210

ND 2003 66.9 33.1 0 0 0 0 0 9,050

2008 62.7 33.9 0 0 0 3.4 0 11,797

OK 2003 56.1 43.9 0 0 0 0 0 27,759

2008 59.8 40.2 0 0 0 0 0 25,202

OR 2003 60.0 38.5 0 0 0 0 1.5 66,864

2008 48.9 47.2 0 0 0 1.5 2.4 167,452

SC 2003 81.4 18.5 0 0 0 0 0.1 16,929

2008 84.5 14.1 0 0 0 0 1.3 29,719

SD 2003 — — — — — — — —

2008 70.3 14.5 0 11.9 0 0 3.3 5,930

TN 2003 — — — — — — — 0

2008 26.4 0 0 72.5 0 1.1 0 30,255

TX 2003 63.8 36.0 0 0 0 0 0.2 191,662

2008 70.5 27.7 0 0 0 1.3 0.6 276,262

UT 2003 74.4 0 0 23.3 0 0 2.2 12,498

2008 55.6 0 0 34.9 0 4.9 4.7 30,982

WA 2003 41.3 58.7 0 0 0 0 0 31,065

2008 30.9 66.0 0 0 0 2.6 0.5 61,664

WV 2003 — — — — — — — 0

2008 60.1 0 35.3 0 0 0 4.6 5,862

WI 2003 51.4 20.1 20.3 7.9 0 0 0.3 129,118

2008 52.5 23.1 23.5 0 0 0 0.8 169,766

WY 2003 66.9 30.8 0 0 0 0 2.3 4,869

2008 62.8 18.8 0 15.3 0 0 3.1 6,377

Source: GAO data collection instrument administered to all 34 HRPs operational in 2008. 

Legend: — = response not provided 

a

Federal grants were awarded by the Centers for Medicare & Medicaid Services (CMS). Percentages are based on awards 

available but may not reflect funds actually drawn down in that year. For example, according to the Minnesota HRP, it was 

awarded $1,984,248 in federal grants in 2003; however, these funds were not drawn down until 2004. 
Enclosure III 

 32 GAO-09-730R State High-Risk Health Insurance Pools

Table 21: Total Federal HRP Grants Awarded, 2003-2008 

Type of 

federal 

grant 2003 2004 2005 2006 2007a

2008 Total

Operational $38,538,311 $40,164,646 $74,989,091 $50,000,001 $0 32,669,455 $236,361,504

BonusbN/A N/A N/A 25,000,000 $0 16,457,045 41,457,045

Seedc4,202,618 0 0 2,450,000 1,450,000 0 8,102,618

Total $42,740,929 $40,164,646 $74,989,091 $77,450,001 $1,450,000 $49,126,500 $285,921,167

Source: Centers for Medicare & Medicaid Services (CMS). 

Legend: N/A = Not applicable 

a

Only seed grants were awarded in 2007. 

b

Bonus grants were not available prior to 2006. 

c

Seed grants were awarded in 2003, 2006, and 2007. 
Enclosure III 

 33 GAO-09-730R State High-Risk Health Insurance Pools

Table 22: Cumulative Federal HRP Grants Awarded, by State HRP, 2003-2008 

Type of federal grant 

HRP Operational Bonus SeedaTotal federal grants

Alabama $6,571,156 $500,000 $0 $7,071,156

Alaska 4,002,711 1,065,640 0 5,068,351

Arkansas 7,195,953 145,420 0 7,341,373

California 0 0 150,000 150,000

Colorado 12,288,357 2,084,917 0 14,373,274

Connecticut 6,828,693 1,125,000 0 7,953,693

District of Columbia 0 0 150,000 150,000

Idaho 2,520,108 350,000 0 2,870,108

Illinois 24,553,892 2,397,444 0 26,951,336

Indiana 12,597,329 1,442,000 0 14,039,329

Iowa 4,157,835 0 0 4,157,835

Florida 0 0 150,000 150,000

Georgia 0 0 150,000 150,000

Kansas 4,475,963 695,000 0 5,170,963

Kentucky 9,505,610 1,725,000 0 11,230,610

Louisiana 4,562,054 1,542,713 0 6,104,767

Maryland 9,421,081 2,025,000 1,000,000 12,446,081

Massachusetts 1,704,415 0 0 1,704,415

Minnesota 15,456,436 3,250,000 0 18,706,436

Mississippi 8,206,031 974,202 0 9,180,233

Missouri 4,735,438 1,550,000 0 6,285,438

Montana 4,860,622 1,104,875 0 5,965,497

Nebraska 5,911,145 1,327,816 0 7,238,961

New Hampshire 3,732,650 1,107,644 1,000,000 5,840,294

New Mexico 7,850,167 1,500,000 0 9,350,167

New York 0 0 150,000 150,000

North Carolina 0 0 1,000,000 1,000,000

North Dakota 2,894,342 178,440 0 3,072,782

Ohio 0 0 150,000 150,000

Oklahoma 10,282,089 1,525,000 0 11,807,089

Oregon 7,958,345 2,450,000 0 10,408,345

Rhode Island 0 0 150,000 150,000

South Carolina 4,128,780 1,250,000 0 5,378,780

South Dakota 2,384,720 521,451 1,000,000 3,906,171

Tennessee 0 0 1,000,000 1,000,000

Texas 21,023,993 3,620,691 0 24,644,684

Utah 5,769,821 1,825,000 52,618 7,647,439

Vermont 0 0 1,000,000 1,000,000

Washington 4,987,098 1,466,892 0 6,453,990

West Virginia 0 0 1,000,000 1,000,000

Wisconsin 13,400,216 2,706,900 0 16,107,116
Enclosure III 

 34 GAO-09-730R State High-Risk Health Insurance Pools

Type of federal grant 

HRP Operational Bonus Seeda Total federal grants

Wyoming 2,394,454 0 0 2,394,454

Total $236,361,504 $41,457,045 $8,102,618 $285,921,167

Source: GAO analysis of Centers for Medicare & Medicaid Services (CMS) data. 

a

Certain operating HRPs were awarded seed grants. For example, Utah’s HRP, which became operational in 1991, was 

awarded a seed grant in 2003 for program modification. 

Table 23: Use of Federal HRP Operational and Bonus Grants Awarded in 2006 

2006 Grants 

Type of federal grant 

Operational Bonus 

Grant use 

Number 

of HRPs Amount

Number 

of HRPs Amount Total 

Percentage 

of total 

operational 

and bonus 

federal grants

Covering operational 

losses 

30 $41,300,050 N/A N/A $41,300,050 55.1

Reducing premiumsa5 6,027,017 7 6,575,952 12,602,969 16.8

Income-based 

premium subsidyb,c

1 2,672,935 6 7,550,000 10,222,935 13.6

Reduction in cost 

sharing 

N/A N/A 1 1,500,000 1,500,000 2.0

Disease 

managementc

N/A N/A 9 5,015,126 5,015,126 6.7

Otherc,d N/A N/A 7 4,358,923 4,358,923 5.8

Totalse$50,000,000 $25,000,000 $75,000,000 

Source: GAO analysis of Centers for Medicare & Medicaid Services (CMS) data. 

Legend: N/A = Not applicable 

HRPs may use a certain type of grant for more than one purpose. For example, an HRP that was awarded a bonus grant may 

use it to reduce premiums and to expand disease management programs. 

a

According to CMS, five states—Louisiana, Missouri, South Carolina, Texas, and Wyoming—had a standard market rate for 

individual coverage (SRR) over 150 percent; therefore, they were required to spend 50 percent of their operational grant to 

reduce premiums. 

b

Wisconsin spent all of its operational grants on income-based subsidies. 

c

Oklahoma and Montana spent $1 million and $729,875 respectively on premium subsidies and disease management 

programs. Because we could not obtain dollar amounts separately for these two grant uses, we included them in the “other” 

category. 

d

Other uses include increased benefit coverage, marketing, and outreach, among others. 

e

Totals may not add due to rounding. 
Enclosure III 

 35 GAO-09-730R State High-Risk Health Insurance Pools

Table 24: Use of Federal HRP Operational and Bonus Grants, Awarded in 2006, by State HRP 

Grant uses 

HRP 

Covering 

operational 

losses 

Premium 

reduction 

Income-based 

premium 

subsidy 

Reduction in 

cost sharing 

Disease 

management Othera

Alabama ●

Alaska ● ●

Arkansas ● ●

Colorado ● ●

Connecticut ● ●

Idaho ●

Illinois ● ●

Indiana ● ● ●

Iowa ●

Kansas ● ●

Kentucky ● ●

Louisiana ● ● ● ●

Maryland ● ●

Massachusetts ●

Minnesota ● ●

Mississippi ● ●

Missouri ● ●

Montana ● ● ●

Nebraska ● ●

New Hampshire ● ● ● ●

New Mexico ● ●

North Dakota ●

Oklahoma ● ● ●

Oregon ● ●

South Carolina ● ●

South Dakota ● ●

Texas ● ●

Utah ● ●

Washington ● ●

Wisconsinb ●

Wyoming ●

Total 30 7 6 1 11 7 

Source: GAO analysis of Centers for Medicare & Medicaid Services (CMS) data. 

Legend: ● = grant use 

Note: HRPs may use a certain type of grant for more than one purpose. For example, an HRP that was awarded a bonus grant 

may use it to reduce premiums and to expand disease management programs. 

a

Other uses included increased benefit coverage, marketing, and outreach, among others. 

b

Wisconsin spent all of its operational grants on income-based subsidies. 
Enclosure III 

 36 GAO-09-730R State High-Risk Health Insurance Pools

Table 25: Planned Use of Federal Operational and Bonus HRP Grants Awarded in 2008, by State HRP 

Grant uses 

HRP 

Covering 

operational 

losses 

Reducing 

premiums 

Income-based 

premium 

subsidy 

Reduction 

in cost 

sharing 

Disease 

management Other 

Alabama ● ● ●

Alaska ● ●

Arkansas ● ●

Colorado ● ●

Connecticut ● ●

Idaho ● ●

Illinois ● ●

Indianaa

● ●

Iowa ●

Kansas ● ● ●

Kentucky ● ●

Louisiana ● ● ● ●

Maryland ● ●

Minnesota ● ●

Mississippi ● ●

Missouri ● ●

Montana ● ● ●

Nebraska ● ●

New Hampshire ● ● ● ● ●

New Mexico ● ●

North Dakota ● ●

Oklahoma ● ●

Oregon ● ● ●

South Carolina ● ●

South Dakota ● ●

Texas ● ●

Utah ● ●

Washington ● ● ●

Wisconsinb● ● ●

Wyoming ● ●

Total 29 10 10 1 13 7 

Source: GAO analysis of Centers for Medicare & Medicaid Services (CMS) data. 

Legend: ● = grant use

a

According to an Indiana HRP official, Indiana also used 2008 grant funds to reduce premiums and for disease management. 

b

Wisconsin planned to spend its operational grant on premium reduction. 
Enclosure IV 

37 GAO-09-730R State High-Risk Health Insurance Pools

Comments from the Department of Health and Human Services 
Enclosure IV 

 38 GAO-09-730R State High-Risk Health Insurance Pools
Enclosure V 

39 GAO-09-730R State High-Risk Health Insurance Pools

GAO Contact and Staff Acknowledgements 

GAO Contact 

John E. Dicken, Director, Health Care 

(202) 512-7114 or dickenj@gao.gov 

Acknowledgements 

In addition to the contact named above, Randy Dirosa (Assistant Director), Nick Bartine, 

Laura Brogan, Jawaria Gilani, Shirin Hormozi, Martha Kelly, and Pauline Seretakis were 

major contributors to this report. 

(290724) 
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