Senate Special Committee on Aging Issues Testimony From Rush Center for Excellence in Aging Co-Director Tiburcio
Emery-Tiburcio is also an associate professor in psychiatry, behavioral sciences and geriatric medicine at
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Thank you so much for the opportunity to speak with you today about the mental health and substance use needs of older adults. My name is
The
Access to care
Allowing for market rate reimbursement for mental health and substance use services is critical to assure adequate provider enrollment. Medicare provides much needed coverage for older adults and those with disabilities. Unfortunately, reimbursement rates for both mental and physical health services are inadequate for engaging providers to enroll.1 In fact, psychiatrists are the most frequent providers to opt out,2 leaving older adults with little or no service. While the
Medicare Advantage plans must be required to allow for coordinated care by not separating contracts for health systems that also have behavioral health services. Optimal care for all adults coordinates mental and physical health care.8 This is particularly the case for older adults with disorders ranging from depression9 to serious mental illness8, 10, 11 to substance misuse.12
Unfortunately, Medicare Advantage plans have been allowed to split contracts for physical and behavioral services so that older adults cannot receive services in one coordinated setting. When I worked as a psychologist in primary care, we saw repeatedly that my primary care physician colleagues treated patients whose insurance did not cover mental health services at Rush, so they had to be referred out for mental health treatment. The mental health and substance use provider lists were very small, and reflected no training in working with older adults. Consistent with the literature on integrated care vs. community referrals,13,14 few of these older adults received needed mental health services.
Most providers neglect to screen older adults for substance use disorders due to the ageist beliefs that older adults don't use drugs, and that they stop drinking alcohol while taking high risk medications, despite SAMHSA recommendations for universal screening.15 This is particularly problematic since the start of the pandemic, as alcohol consumption among older adults has increased dramatically.16 In the limited cases that are detected (many apparent before the adult turned 65), the continuum of care offered to older adults is flawed, in that it offers inpatient and standard outpatient services, but not the critical stabilizing intensive outpatient programs that so many older adults need to be healthy, nor services provided in community-based settings. This disparity is due, in part, to the fact that the Mental Health Parity and Addiction Equity Act does not apply to state Medicaid or Medicare fee-for-service - while parity theoretically exists for younger adults, it does not exist at all for older adults. We strongly echo the
Coordination of Care
The
More than half (56%) of adults with complex physical health needs report anxiety, depression, substance misuse, or emotional or psychological problems resulting from their illness.17 Among people with serious illness, those reporting mental health issues were more likely to feel socially isolated, experience financial vulnerabilities, and experience problems with their medical care. Experiencing loneliness or isolation - certainly exacerbated by COVID-19 - has been associated with a 29% increased risk of heart disease and 32% increased risk of stroke.18 Further, older adults with bipolar disorder have an average of three to four medical conditions, 19 and individuals with schizophrenia are significantly more likely than others to die prematurely of cardiovascular and respiratory disease.20 Managing one illness at any age is challenging, but older adults with both medical and mental health or substance use issues, multiple medications, multiple health care providers, and often multiple systems providing services require assistance in coordinating care. In fact, a survey of recipients of long-term services and supports found that 81% reported unmet needs, including help with self-care or other daily activities (21.1%); services that meet needs and goals (30.0%); assistive technology (54.3%); home modifications (52.2%); and transportation (26.7%).21
Note that many of these services are not reimbursed by Medicaid or Medicare, yet these are exactly the services that allow older adults to remain in their homes with dignity, better quality of life and lower health care utilization. In fact, strong social support services, such as transportation and help for family caregivers can lead to lower health care use and costs.22 The "aging network" of community-based organizations, including Area Agencies on Aging (AAAs), local senior centers, and other community-based organizations, offer an array of services, including care management, home-based support services, home-delivered meals, socialization initiatives, and evidence-based health promotion workshops, along with education about a wide range of programs, services, and housing options. These services are funded through the Older Americans Act, though agencies struggle to provide services at the level needed by older adults with mental health and substance use issues, as most are not able to access payments via CMS. Further, communication between health systems and the aging network is rare, thus transitions of care from the hospital or clinic to the community is where older adults fall through the cracks - or rather, chasms. It is in these chasms where chronic medical and behavioral health issues are exacerbated by lack of care.23
Innovative, effective programs exist that coordinate services across health and social care and must be implemented broadly to meet the needs of older adults. For example, the Bridge Model of transitional care, initially developed in 2007 by my colleagues at Rush and disseminated to nearly 200 hospitals since, leverages master's prepared social workers to provide a comprehensive intervention to support patients and those that care for them after a hospitalization or rehabilitation stay.24 The biopsychosocial assessment completed by the transitional care social worker identifies individuals' immediate priorities, concerns with the care plan such as working with home health, and questions about ongoing care needs such as medication changes. The social worker intentionally collaborates with healthcare providers across the continuum but also with local social service providers - often engaging programs offered through the local
At the policy level, the "self-direction" movement,26 an alternative to traditionally delivered and managed services, is included in several states' Medicaid plans or waivers.27 In the traditional system, when people with disabilities and older adults needed help with activities of daily living and navigating their communities, they typically have little choice about who helps, when that support was delivered, or what the worker would or would not do. The self-direction movement offers Medicaid beneficiaries the option to select their own workers and create an individualized budget to help them live more independently. Making self-direction a standard option for Medicaid and infusing it across "dual eligible" plans are two ways the program could be impactful for more people, and offer significant savings over standard plans.26 For several years, many states incorporated self-direction principles as part of their implementation of the "Money Follows the Person" demonstration program. From 2007 to 2019, the program provided states with enhanced federal matching funds for services and supports needed to help older adults and people with disabilities transition from institutional care to community-based care. Forty-four states participated, impacting approximately 100,000 older adults and people with disabilities. "Money Follows the Person" helped many states establish programs to support transition from institutions to the community by enabling them to develop service and provider infrastructure.
Many participating states also developed housing-related services and hired housing specialists to help beneficiaries locate affordable accessible housing, a common barrier to aging in the community and avoiding institutional care. These services are critical for older adults with serious mental illness and/or substance use disorders, particularly those with limited resources that make them "dual eligibles." As we have seen during the recent COVID-19 pandemic, expanded access to services furnished via telehealth helped bridge traditional gaps in access to mental health services. Audioonly telehealth, in particular, served as a vital tool to extend services to individuals who either lacked the technological familiarity with telehealth platforms or who lived in areas lacking access to broadband internet services. As the mental health impact of the pandemic will be with us long after the end of the actual pandemic, I ask the Committee to support a longer-term extension of the current telehealth coverage flexibilities, as well as equal coverage and reimbursement for mental health services furnished via telehealth.34 Again, we are grateful to
Each of these program innovations have made significant progress in bridging the chasms inherent in the American health care system and community services. Policies that support such care coordination, housing assistance, and transitions of care must be implemented. Behavioral Health Workforce As the
While the behavioral health workforce is vastly understaffed for all ages, by 2030, it is estimated that we will only have 27% of needed psychiatrists, 9% of needed social workers, and 5% of needed psychologists with specialized training in working with older adults.28,29 The need may be even greater as trends are showing more than 10% decline in psychiatrists from 2003 - 2013./30 As of 2018, the national average was 2.6 geriatric psychiatrists for every 100,000 adults over age 65,31 and there are currently only 65 board certified geropsychologists in the entire US.32 We will never have enough geriatric specialists, so it is critical to assure that all health care providers and the community-based organizations who provide support services have basic competency in meeting the needs of older adults.
Funding mechanisms exist to support the training of health care providers and community-based organizations in working with older adults, though a greater focus on mental health is needed. We are very grateful to
In September of 2020, SAMHSA funded Centers of Excellence for Behavioral Health Disparities in Aging, African Americans, and LGBTQ individuals.
We have been honored to host our current policy academy in
They have also highlighted the challenges of being unable to provide continuous services to adults with substance use disorders as they turn 65, as most substance use disorder counselors are not eligible to bill Medicare. As described above, a lack of mental health and substance use clinicians enrolled as Medicare providers is a significant barrier to service provision in
SAMHSA has funded similar centers in the past, but more consistent funding would ensure educational efforts maintain momentum over time. As the older adult population is growing in the US with improvements in medical, public health, and social efforts, legislation to mandate the inclusion of older adults in SAMHSA priorities is desperately needed. While the visit rate for older adults in primary care is more than double that of children age 1-17,33 multiple pieces of legislation seeking to boost funding for targeted populations often exclude older adults. Leaving older adults out of such legislation leaves primary care providers - and every health services professional - ill-equipped to provide effective services across the lifespan, exacerbating the problem of inequitable care for older adults.
An additional barrier to effective training of health care providers in meeting the needs of older adults is a pipeline problem. Given limited exposure of students to older adults early in their educational careers, along with few training opportunities due to Medicare restrictions on billing for trainees, there are few mental health providers entering geriatrics as a specialty. While consideration must be given to allowing "incident to" billing for mental health trainees under the direct supervision of qualified licensed mental health clinicians, increased funding for training and incentives for entering geriatrics is also critical. Examples include expanding the HRSA-funded Graduate Psychology Education (GPE) and Teaching Health Center Graduate Medical Education (THCGME) programs directed toward training in geriatrics, along with increasing focus on loan repayment programs for working with underserved older adults.
I am grateful for this Committee's attention to the three key issues to address equity for older adults: access to care related to Medicare policies, the need for coordination of care across the continuum of health care and community-based organizations for older adults who experience the most complex health issues, and the critical need for expanding the behavioral health workforce trained to work with older adults. I am also grateful to the
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Footnotes:
1. Bodenheimer, T., & Pham, H. H. (2010). Primary care: current problems and proposed solutions. Health affairs (Project Hope), 29(5), 799-805. https://doi.org/10.1377/hlthaff.2010.0026
2. Bishop, T. F., Press, M. J., Keyhani, S., & Pincus, H. A. (2014). Acceptance of insurance by psychiatrists and the implications for access to mental health care. JAMA psychiatry, 71(2), 176-181. https://doi.org/10.1001/jamapsychiatry.2013.2862
3. Mitchell, J. B., & Haber, S. G. (2004). State payment limitations on Medicare cost-sharing: impact on dually eligible beneficiaries. Inquire: a journal of medical care organization, provision and financing, 41(4), 391-400. https://doi.org/10.5034/inquiryjrnl_41.4.391
4. Haber, S., Zheng, N.T.,
5.
6.
7. Luoma,
8. Druss, B. G.,
9. Unutzer, J., Katon, W., Callahan, C. M.,
10. Vanderlip, E. R., Henwood, B. F., Hrouda, D. R.,
11. Vanderlip, E. R.,
12. Englander, H., Dobbertin, K., Lind, B. K., Nicolaidis, C., Graven, P., Dorfman, C., & Korthuis, P. T. (2019). Inpatient Addiction Medicine Consultation and Post-Hospital Substance Use Disorder Treatment Engagement: a Propensity-Matched Analysis. Journal of general internal medicine, 34(12), 2796-2803. https://doi.org/10.1007/s11606-01905251-9
13. Leung, L. B., Yoon, J., Rubenstein, L. V., Post, E. P., Metzger, M. E., Wells, K. B., Sugar, C. A., & Escarce, J. J. (2018). Changing Patterns of Mental Health Care Use: The Role of
14. Wray, L. O., Szymanski, B. R.,
15.
16. Rao, R., Mueller, C. & Broadbent, M. (2022). Risky alcohol consumption in older people before and during the COVID-19 pandemic in the
17. Schneider, E., Abrams, M., Shah, A., Lewis, C., & Shah, T. (2018). Health care in America: The experience of people with serious illness.
18. Valtorta, N. K., Kanaan, M., Gilbody, S., Ronzi, S., & Hanratty, B. (2016). Loneliness and social isolation as risk factors for coronary heart disease and stroke: systematic review and meta-analysis of longitudinal observational studies. Heart, 102(13), 10091016.
19. Lala, S. V., & Sajatovic, M. (2012). Medical and psychiatric comorbidities among elderly individuals with bipolar disorder: a literature review. Journal of geriatric psychiatry and neurology, 25(1), 20-25. https://doi.org/10.1177/0891988712436683
20. Olfson, M., Gerhard, T., Huang, C., Crystal, S., & Stroup, T. S. (2015). Premature Mortality Among Adults With Schizophrenia in
21. Chong, N., Akobirshoev, I.,
22. Shier, G., Ginsburg, M.,
23. Abdi, S., Spann, A., Borilovic, J., de Witte, L., & Hawley, M. (2019). Understanding the care and support needs of older people: a scoping review and categorisation using the WHO international classification of functioning, disability and health framework (ICF). BMC geriatrics, 19(1), 195. https://doi.org/10.1186/s12877-019-1189-9
24. Altfeld, S., Pavle, K., Rosenberg, W., & Shure, I. (2012). Integrating care across settings: The
25. Ewald, B. (2022). Implementation and Impact Findings.
26.
27. Medicaid (n.d). Self-Directed Services. Retrieved
28. Committee on the Mental Health Workforce for Geriatric Populations; Board on Health Care Services;
29. Jeste, D. V., Alexopoulos, G. S., Bartels, S. J.,
30. Bishop, T. F., Seirup, J. K., Pincus, H. A., & Ross, J. S. (2016). Population Of US Practicing Psychiatrists Declined, 2003-13, Which May Help Explain Poor Access To Mental Health Care. Health affairs (Project Hope), 35(7), 1271-1277. https://doi.org/10.1377/hlthaff.2015.1643
31.
32. American
33.
34. Clay, R. A. (2022, January). Telehealth proves its worth. Monitor on Psychology, 53(1). https://www.apa.org/monitor/2022/01/special-telehealth-worth
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Original text here: https://www.aging.senate.gov/imo/media/doc/testimony_emery_tiburcio_0519.22.pdf


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