But Medicare and Medicaid couldn't agree on which one would pay for an aide to bathe him and help him use the toilet, nor on whether he qualified for such services at all, he says. As each program tried pushing him to the other, Mr. Maceyra remained at a live-in rehabilitation center for six months after his shoulder healed, at government cost.
Federal officials and health-care professionals say it isn't uncommon for Medicare and Medicaid to try to dump patient costs on one another, which can raise the total cost for everyone. A recent federal report said the dual system's incentive structure contributes to hundreds of thousands of annual hospitalizations that could be avoided.
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The federal government foots the bill for Medicare, and splits it with states for Medicaid, picking up 57% of the tab on average.
From the beginning, small numbers of Americans qualified for both programs. Their numbers have grown—up 30% in a decade. Meanwhile, the programs have added services, including overlapping ones such as in-home health assistance.
Health officials did little to ensure the programs cooperated well. "The best metaphor I can think of here is a dysfunctional joint-custody arrangement," said Lisa Clemans-Cope, who researches the issue at the Urban Institute, a social-policy think tank.
A report last year by the Medicare Payment Advisory Commission, an independent congressional agency, concluded that a slew of conflicting incentives between Medicare and Medicaid leads health-care providers to avoid costs they are responsible for rather than coordinate care.
The problem is evident in nursing homes, which can have a financial incentive to send people back to hospitals because of payment arrangements.
When a Medicare patient goes from a hospital to a nursing home, Medicare pays the nursing home at an average rate of $422 a day for 100 days.
After that, if the patient is a dual eligible, the nursing home is paid by Medicaid. It reimburses at just $172 a day, on average.
The result is an incentive for the nursing home to send the patient back to the hospital, because if the patient later returns, the higher daily rate will start again.
That setup helps fuel many expensive but avoidable hospital readmissions each year, according to research commissioned by the Centers for Medicare and Medicaid Services.
People eligible for both programs had 958,837 hospital admissions in 2005, the report last year said. It added that 382,846 of these, about 40%, were potentially avoidable either because the condition might have been prevented or because it might have been treated in a lower-level-care setting.