Texas Women's Health Program Abortion Affiliate Rules

TITLE 25. HEALTH SERVICES PART 1. TEXAS DEPARTMENT OF STATE HEALTH SERVICES CHAPTER 39.
PRIMARY HEALTH CARE SERVICES PROGRAM SUBCHAPTER B. TEXAS WOMENS HEALTH PROGRAM New 39.31 - 39.45 Adoption Preamble The Executive Commissioner of the Texas Health and Human Services Commission (HHSC), on behalf of the Department of State Health Services (DSHS), adopts new 39.31 - 39.45 concerning the Texas Womens Health Program (TWHP). The following sections are adopted without changes to the proposed text as published in the July 6, 2012, issue of the Texas Register (37 TexReg 5074) and will not be republished: 39.31, Introduction; 39.32, Non-entitlement and Availability; 39.34, Client Eligibility; 39.36, Financial Eligibility Requirements; 39.37, Denial, Suspension, or Termination of Services; Client appeals; 39.39, Covered Services; 39.40, Non-covered Services; 39,42, Providers Request for Review of Claim Denial; 39.43, Confidentiality, and 39.44, Audits; Reports. The following sections are adopted with changes to the proposed text as published in the July 6, 2012, issue of the Texas Register (37 TexReg 5074) and will be republished: 39.33, Definitions; 39.35, Application Procedures; 39.38, Health-Care Providers; 39.41, Reimbursement; and 39.45, Severability. The changes respond to comments received and do not materially alter issues raised by a proposed rule. Accordingly, HHSC, on behalf of DSHS, may adopt the new text without republishing as a proposed rule. See Tex. Workers Comp. Commn v. Patient Advocates of Tex., 136 S.W.3d 643, 650 (Tex. 2003); Tex. Med. Assn v. Tex. Workers Comp. Commn, 137 S.W.3d 342, 355 (Tex. App.Austin 2004, no writ); State Bd. of Ins. v. Deffebach, 631 S.W.2d 794, 801 (Tex. App.Austin 1982, writ refd n.r.e.). Background and Justification In 2005, the Texas Legislature enacted Human Resources Code, 32.0248, which directed HHSC to seek a five-year Medicaid demonstration waiver to implement a project to expand access to preventive health and family planning services for non-pregnant, non-sterile women who were not eligible to receive Medicaid services but who, following pregnancy, would be presumptively eligible for Medicaid services along with their newborn infant(s). In accordance with the statutory directive, HHSC requested a waiver from the Secretary of Health and Human Services pursuant to section 1115 of the Social Security Act (42 U.S.C. 1315). The Secretary approved the request for a five-year period beginning December 21, 2006. Human Resources Code, 32.0248 expired by its terms on September 1, 2011. The 82nd Texas Legislature enacted two laws to govern the Medicaid Womens Health Program or a successor to that program following the expiration of Human Resources Code, 32.0248. The first was a contingency rider to the General Appropriations Act (Rider 62 to Article II) that instructs HHSC to continue providing Womens Health Program services contingent upon the
Adoption Preamble - 1
federal Centers for Medicare and Medicaid Services (CMS) granting a waiver. The second law was an amendment to Human Resources Code, 32.024, which requires HHSC to ensure that any funds spent for purposes of the Medicaid Womens Health Program or a similar successor program is not be used to perform or promote elective abortions, or to contract with entities that perform or promote elective abortions or affiliate with entities that perform or promote elective abortions. Tex. Hum. Res. Code 32.024(c-1). HHSC submitted a request to CMS to renew the demonstration project waiver in the fall of 2011. The waiver renewal notified CMS that HHSC intended to implement the requirements of state law in administering the program. Those requirements were codified in administrative rules that HHSC proposed in September 2011. The proposed rules established qualifications for providers to participate in the Medicaid Womens Health Program. The proposed rules disqualified a provider that performs or promotes elective abortions or that affiliates with another entity that performs or promotes elective abortions from participating in the program. CMS notified HHSC in December 2011 that it would not approve the waiver renewal application if HHSC adopted the proposed limitations on provider participation. CMS agreed to extend the waiver to permit CMS and HHSC to resolve CMS objection to HHSCs proposed policy. The Medicaid Womens Health Program is, as of the date of the order adopting these rules, still operating. HHSC adopted the proposed rules, effective March 14, 2012. On March 15, 2012, CMS denied HHSCs waiver renewal application and requested a plan to transition clients of the Medicaid Womens Health Program to other services, if available. Following the CMS denial, Governor Rick Perry directed the Executive Commissioner of HHSC to develop a plan to implement a program funded by state general revenue to replace the Medicaid Womens Health Program. That plan proposed placing the general revenue-funded program within the DSHS Preventive and Primary Care Units (PPCU) Primary Health Care Services Program. The Primary Health Care Services Program is operated in accordance with Health and Safety Code, Chapter 31, which authorizes DSHS to establish a primary health care services program to provide to eligible individuals primary health care services, including family planning services and health screenings. The new program was named the Texas Womens Health Program and will be funded by general revenue originally appropriated to HHSC consisting of (1) general revenue appropriated to fund the Medicaid Womens Health Program; (2) administrative savings resulting from unexpended appropriations for the completed Texas Integrated Eligibility and Redesign System (TIERS); (3) general revenue savings resulting from a targeted hiring freeze; and (4) the general revenue share of collections of Medicaid fraud, abuse, and waste. HHSC received approval of the Legislative Budget Board to transfer such funds for this purpose in May 2012. These rules are intended to transition the Medicaid Womens Health Program to the TWHP, operated by DSHS or its designee through the DSHS PPCU Primary Health Care Services Program. DSHS has determined that, in light of the federal governments denial of the States request to extend the Medicaid Womens Health Program waiver and its decision to terminate federal funding for this purpose, there is a need for the services that this program will provide
across the state, as directed by Health and Safety Code, 31.003(d). DSHS further has determined that the classes of women who will be served may be, without the establishment of the TWHP, unable to obtain the preventive health care, contraceptives, and screenings this program will provide. As a consequence, the State would require more funds to pay Medicaid costs for prenatal care, births, and health-care problems that might otherwise be averted or minimized. Comments DSHS and HHSC have reviewed and prepared responses to comments received regarding the proposed rules during the comment period and during the public hearing held on September 4, 2012. DSHS received comments in support of the proposed Texas Womens Health Program rules, either whole or in part, from the following entities: And Then There Were None; San Antonio Coalition for Life; Texas Alliance for Life; and Texas Right to Life DSHS received comments opposed to the proposed TWHP rules, either in whole or in part, from the following entities: Texas Planned Parenthood; American Civil Liberties Union of Texas; League of Women Voters of Texas; Texas Policy Evaluation Project; Legacy Community Health Services; National Council of Jewish Women, Austin Section; NARAL Pro-Choice of Texas; Texas Medical Association (TMA); Texas Association of Obstetricians and Gynecologists (TAOG); Texas Academy of Family Physicians (TAFP); American Congress of Obstetricians and Gynecologists (ACOG); Texas Pediatric Society (TPS); Center for Public Policy Priorities (CPPP); Healthy Futures Alliance; and Peoples Community Clinic. DSHS received comments from the following entities requesting changes to the proposed TWHP rules: Texas Association of Community Health Centers (TACHC) and Texas Hospital Association (THA). Numerous comments also were received from interested individuals. In general, the comments received related either to the sufficiency of the Preamble to the proposed rules or the substance of the rules itself. Comments Received on the Adoption Preamble Several comments suggest that the Preamble to the proposed rules did not fully comply with requirements in the Administrative Procedure Act, Government Code, Chapter 2001. Government Code, 2001.024(a) lists the items that must be included in an agencys notice of a proposed rule. Among other things, section 2001.024(a) requires: (3) a statement of the statutory or other authority under which the rule is proposed to be adopted, including:
(A) a concise explanation of the particular statutory or other provisions under which the rule is proposed; (4) a fiscal note stating for each year of the first five years that the rule will be in effect: (A) the additional estimated cost to the state and to local governments expected as a result of enforcing or administering the rule; (C) the estimated loss or increase in revenue to the state or to local governments as a result of enforcing or administering the rule; and (D) if applicable, that enforcing or administering the rule does not have foreseeable implications relating to cost or revenues of the state or local governments; (5) a note about public benefits and costs for each year of the first five years that the rule will be in effect. Adoption Preamble: Background and Justification Comment: A commenter stated that the Preamble is insufficient because it fails to indicate (1) that the rules governing the Medicaid Womens Health Program are the subject of a lawsuit; (2) that CMS denied the States request to extend the Medicaid Womens Health Program because, according to the commenter, the rules would exclude Planned Parenthood from participating; and (3) several other matters related to the pending litigation and the Medicaid Womens Health Program. Response: The comments refer to administrative rules codified at 1 TAC 354.1361-354.1364 that currently govern the Medicaid Womens Health Program administered by HHSC and not to the rules that are the subject of this adoption, which pertain to the TWHP. The specific deficiencies alleged by the commenter are not requirements of the notice provisions of the Administrative Procedure Act. Further, pending litigation involving another state agency is not an appropriate subject for a rule adoption. For these reasons, DSHS is unable to respond to these comments. Comment: A commenter suggested that the notice was insufficient because it failed to acknowledge that the rules would effectively violate Rider 52 of the DSHS portion of the General Appropriations Act for the 2012 - 2013 fiscal years. See General Appropriations Act, 82nd Leg., R.S., ch. 1355, art. II, rider 52, at II-64 to II-65 (Health and Human Services section, DSHS). Under that rider, an entity otherwise eligible to receive funds under the DSHS Strategy B.1.3, entitled Family Planning Services, will not be disqualified from receiving the funds because it affiliates with an entity that performs elective abortions if the affiliation complies with standards set out in the rider.
Response: DSHS respectfully disagrees. Rider 52 applies to funds that were appropriated to the DSHS under Strategy B.1.3. As noted previously, the funds that will be used to operate the TWHP are derived from appropriations to HHSC and will not be expended pursuant to DSHS Strategy B.1.3. It was therefore unnecessary to refer to Rider 52 in the notice for the TWHP rules. Comment: A commenter alleged that the Preamble is insufficient because DSHS has no statutory authority, under either the Health and Safety Code or the Human Resources Code, to abandon the federally subsidized Medicaid Womens Health Program. Response: This comment, too, refers to the Medicaid Womens Health Program, over which DSHS has no authority. Furthermore, the Administrative Procedure Act does not require a state agency, in either the proposal or adoption of an administrative rule, to explain another state agencys or the federal governments actions. As noted in the Background and Justification section above, the federal government, not the State, elected to terminate federal funding for the Medicaid Womens Health Program. The conditions prescribed by the federal government left the State with three choices: (1) operate the Program in contravention of state law (Human Resources Code, 32.024(c-1)); (2) discontinue the Program entirely; or (3) replace the Program with a wholly state-funded program that could be operated consistently with State law. And as the Preamble explains, the State elected to pursue the third option, and DSHS has sufficient authority under state law to operate a fully state-funded family planning program offering the services currently provided by the Medicaid Womens Health Program. The published Preamble for the proposed rules listed, as general authority, Health and Safety Code, 12.001 and 1001.071. Section 12.001 authorizes DSHS generally to supervise and control all matters relating to the health of the citizens of this state and HHSC, on behalf of DSHS, to adopt rules relating to the performance of DSHS statutory duties. Section 1001.071 designates DSHS as the agency responsible for administering public health programs, with authority to, among other things, implement its public health care delivery programs; provide health care services; provide for the prevention and control of communicable diseases; educate the public on health-related matters; and act as the lead agency to implement state policies and programs relating to the human immunodeficiency virus and acquired immunodeficiency syndrome. The published Preamble listed, as specific authority, Health and Safety Code. 31.002(a)(4)(C) and (H), 31.003, and 31.004. Taken together, these sections explicitly authorize DSHS to establish a program to provide primary health care services, including family planning, to eligible individuals and to adopt rules to govern and administer the program. These statutes plainly provide adequate authority for DSHS to establish the TWHP within its primary health care program. Comment: Similarly, a commenter stated that the Preamble is insufficient because the creation of a new, state-funded TWHP will violate Rider 62 of the HHSCs portion of article II of the current General Appropriations Act. See General Appropriations Act, 82nd Leg., R.S., ch 1355, art. II, rider 62, at II-95 (Health and Human Services section, HHSC). Rider 62 states that the
HHSC shall provide Womens Health Program services under Medicaid out of funds appropriated to the HHSC under Goal B, Medicaid, contingent upon receiving a waiver from the CMS under 1115 of the Social Security Act. Response: By its plain terms, Rider 62 does not apply to the TWHP. Rider 62 expressly applies to a womens health program that is funded through Medicaid (i.e., the current Medicaid Womens Health Program), but it does not apply to the TWHP, which is not funded through Medicaid and is not contingent upon the approval of the federal CMS. The comment, therefore, does not relate to the proposed rules, and it would be inappropriate for DSHS to presume that Rider 62 applies to the program established under the adopted rules. Comment: Other comments express disagreement with the policy behind the States decision to operate the TWHP as a fully state-funded program, outside the federally subsidized Medicaid program. Response: Because these comments are not directed to the rules per se, but to a decision of officials that are outside the scope of the adopted rules, it is inappropriate for DSHS to respond to these comments. Comment: A commenter stated that Texas law does not protect unborn life, and commented that redirecting money from protecting womens health to unborn life is not consistent with the Texas Constitution and statutes. Response: The commenter did not specify which provision of the Texas Constitution or Texas law the proposed rules allegedly violate. In the absence of such information, DSHS can only speculate that the commenter believes either that the proposed method of finance for the TWHP violates the state constitution or state law or that the purpose for which the supposed transfer of funds is illegal or unconstitutional. Article VIII, 6 of the Texas Constitution provides in pertinent part that, No money shall be drawn from the Treasury but in pursuance of specific appropriations made by law. As noted above, the funds for the TWHP will come from transfers from other HHSC programs. These transfers were requested and approved pursuant to the General Appropriations Act. The General Appropriations Act is a law for purposes of Article VIII, 6 of the Texas Constitution. Rider 12 to the HHSC appropriation provides, Transfers may not be made from appropriation items in Goal B to appropriation items in other goals without prior written approval from the Legislative Budget Board and the Governor. General Appropriations Act, 82nd Leg., R.S., ch. 1355 (H.B. 1), art. II, 12.a.(1) at II-85. Rider 35 to the HHSC appropriation conditions use of unexpended balances of general revenue appropriated for integrated eligibility and enrollment services on similar approvals. See id. Art. II, 35 at II-92. HHSC sought and received such approvals. See Letter from Thomas M. Suehs, Executive Commissioner, HHSC, to Jonathan Hurst, Director, Governors Office of Budget, Planning and Policy, and Ursula Parks, Acting Director, Legislative Budget Board, (May 3, 2012) (requesting approval of the proposed transfer of funds from HHSC to DSHS); Letter from Ursula Parks,
Acting Director, Legislative Budget Board, to Thomas Suehs, Executive Commissioner, HHSC, (May 31, 2012) (approving HHSCs request). Accordingly, the proposed method of finance for the TWHP on its face complies with statutory and constitutional requirements. Furthermore, DSHS believes that the proposed transfer of funds is for a bona fide statutory purpose-specifically, the delivery of primary and preventive health care services to non-pregnant women under Health and Safety Code, Chapter 31,in a manner that complies with the legislative mandate in Human Resources Code 32.024(c-1). Consequently, DSHS respectfully disagrees with the comment. Comment: A commenter suggested that the Preamble is insufficient because it fails to acknowledge that the Legislature has not appropriated any funds for the TWHP. Response: DSHS disagrees with the comment. DSHS is not aware of a legal principle that would prohibit a state administrative agency from adopting rules to regulate activities that are within the agencys authority but for which the Legislature has not directly appropriated funds. Neither is the department aware of an exception to notice and comment rulemaking for such programs. To the contrary, the department believes that Texas law requires the agency to conduct a rulemaking for the programs that the agency intends to administer, even if the Legislature has not appropriated funds directly to the agency for this purpose. For example, some programs are administered by a state agency without appropriated funds. See, e.g., 1 TAC 355.8070(e)(1) (supplemental Medicaid payments to private hospitals are limited to and obtained through funds transferred from a governmental entity to HHSC). Yet these programs are subject to the rulemaking requirements of the Administrative Procedure Act. Furthermore, the response to the previous comment demonstrates that the proposed method of finance for the TWHP complies with the requirements of the General Appropriations Act. Adoption Preamble: Fiscal Note Comment: Several comments focus on the Preambles Fiscal Note, which projected the fiscal impact of the rule for only three years, as opposed to the five years required by the Administrative Procedure Act. The Fiscal Note stated that the estimate of fiscal impact was premised on the assumption that TWHP clients would become eligible for Medicaid as a result of expanded Medicaid eligibility standards that are scheduled to take effect at the federal level in January 2014. July 6, 2012 issue of the Texas Register (37 TexReg 5074, 5076). The comments suggest that the Fiscal Note does not comply with the Administrative Procedure Act and are inconsistent with a decision by state leadership not to participate in the Medicaid expansion. Response: Section 2001 of the federal Patient Protection and Affordable Care Act of 2010 (PPACA) expands eligibility for Medicaid services beginning January 1, 2014, to individuals who currently are ineligible for coverage: specifically, persons under the age of 65 (ages 19-64) who are not eligible for a current Medicaid program and: - have incomes under 133 percent of the federal poverty limit (FPL)
- meet citizenship requirements - are not incarcerated, and - are not entitled to Medicare. 42 U.S.C. 1396a(a)(10)(A)(i)(VIII). Under the PPACA, the federal government will cover 100 percent of the costs of coverage for these newly eligible individuals for three years. In 2017, the federal government will pay 95 percent of the cost; in 2020, the percentage drops to 90 percent. DSHS submitted the proposed rules for publication to the Secretary of State on June 25, 2012, for publication in the July 6, 2012, issue of the Texas Register. Three days later, the United States Supreme Court issued its decision in National Federation of Independent Business v. Sibelius, 132 S.Ct. 2566 (2012). The Court determined, among other things, that a state could opt out of the expansion of the Medicaid program without jeopardizing federal participation in the states existing Medicaid program. See Natl Fedn of Indep. Bus. v. Sibelius, 132 S. Ct. 2566, 260107 (2012). Following that decision, but before the publication of the proposed TWHP rules in the Texas Register, Governor Perry announced the States intention to decline the Medicaid expansion. Consequently, at the time the TWHP proposed rules were approved for publication and submitted to the Texas Register, women who would be eligible for TWHP would have become eligible for Medicaid on January 1, 2014, and the federal government would have borne 100 percent of the costs of their care. The fiscal note to the proposed rules, therefore, correctly estimated the fiscal impact to the state for the five-year period beginning on the effective date of the rules. In light of the changed circumstances following the approval of the proposed rules for publication, the department has elected to revise the Fiscal Note to reflect maintenance of Medicaid eligibility at current levels. The revised Fiscal Note is supplied in the section headed Fiscal Note found in this preamble. Comment: A commenter stated that the Preamble is insufficient because it fails to address costs counties may have to incur to make up the loss of access to state-funded family planning. Response: As published, the Preamble to the Proposed Rules, as well as the revised Fiscal Note above, states that local governments will not incur additional costs in the enforcement or administration of the rules. Nothing in the rules requires a county to establish a family-planning program; thus, no discussion of required costs is warranted. In addition, the Administrative Procedure Act does not require that the Preamble discuss whether any county will opt to establish or supplement its own family-planning program, and the costs a county may incur if it does so. Comment: A commenter stated that the Preamble is insufficient because the funds necessary to implement the TWHP must be transferred from the HHSC to DSHS, which, according to the
commenter, is not allowed by Rider 12 to the HHSCs portion of article II of the General Appropriations Act. See General Appropriations Act, 82nd Leg., R.S., ch. 1355, art. II, rider 12, at II-79 to II-81 (Health and Human Services section, HHSC). Response: The commenters assumptions are incorrect. As already noted, the funds for the TWHP will come from transfers from other HHSC programs, and HHSC has received the approval of the Legislative Budget Board and Governor to make the transfers in accordance with the General Appropriations Act and, by extension, Article VIII of the Texas Constitution. See Letter from Thomas M. Suehs, Executive Commissioner, Texas HHSC, to Jonathan Hurst, Director, Governors Office of Budget, Planning and Policy, and Ursula Parks, Acting Director, Legislative Budget Board, (May 3, 2012); Letter from Ursula Parks, Acting Director, Legislative Budget Board, to Thomas Suehs, Executive Commissioner, HHSC, (May 31, 2012). Comment: A comment suggests that the Preambles Fiscal Note is insufficient because it fails to include increased costs to the State for prenatal care and births, which the commenter believes will increase if family planning services are difficult to access under the TWHP. Response: This comment requires DSHS to assume that the TWHP will fail to serve enough women to avoid an increase in births among women who might be eligible but who do not receive services from the program. DSHS is unaware of a requirement under the Administrative Procedure Act or other law that obligates a state agency to estimate the indirect costs to the state of underutilization of a state program. As indicated previously, DSHS believes the State will benefit in the long term from implementing the TWHP. Those savings are estimated in the Public Benefit statement, a revised version of which follows the revised Fiscal Note Section. Adoption Preamble: Public benefit Just as the Fiscal Note in the proposed Preamble was limited to a three-year forecast, so too was the statement of Public Benefit. The revised statement of Public Benefit is in the section headed Public Benefit, which follows the revised Fiscal Note Section. Adoption Preamble: Statutory Authority Comment: Commenters alleged that the Preamble is insufficient because it does not acknowledge that DSHS lacks authority to appropriate by rule the funds necessary to operate the TWHP from 2014 through 2018. Response: This comment appears to assume that an administrative agency must assure or effect an appropriation of funds that will enable future administration of an activity contemplated under proposed rules. This is incorrect. The appropriation of funds is a legislative matter, and the obligations of administrative agencies are contingent upon the exercise of legislative discretion to appropriate sufficient funds to enable the agency to administer its programs. See Hawkins v. Dallas County Hospital Dist., 150 S.W.2d 535, n. 10 (if the legislature did not provide the appropriate amount of funding to administer a program, the problem is that the legislature
created an "unfunded mandate," a grievance that is most appropriately brought to the legislature, not the courts), citing Socorro Indep. Sch. Dist. v. State Bd. of Educ., 968 S.W.2d 547, 553 (Tex.App.-Austin 1998, pet. denied); Mutchler v. Texas Dep't of Public Safety, 681 S.W.2d 282, 285 (Tex.App.-Austin 1984, no writ). As already noted, the Administrative Procedure Act requires the fiscal note for a proposed rule to forecast costs for the first five years the rule is effective. It is a given that, within any legislative session that occurs within the five-year period forecast in a preamble, the Legislature could otherwise direct the use of those funds. An administrative agency has only those powers that the Legislature has delegated to it. See State v. Jackson, 376 S.W.2d 341, 34445 (Tex. 1965) (citing Stauffer v. City of San Antonio, 344 S.W.2d 158, 160 (Tex. 1961); Brown v. Humble Oil and Refining Co., 83 S.W.2d 935, 94041 (Tex. 1935)). And the Legislature may withdraw powers it has delegated to any agency or may preempt an administrative agencys decision by enacting contrary legislation. See id. Comment: A commenter suggested that Preamble is insufficient because it does not explain how the statutory authority cited authorizes DSHS to adopt these rules. Response: The duty of a state agency to adopt administrative arises from the terms of the Administrative Procedure Act, which requires an administrative agency to adopt as an administrative rule a statement of general applicability that purports to implement law or prescribe procedure. See El Paso County Hosp. Dist. v. Texas Health and Human Service Commn, 247 S.W.3d 709, 714 (Tex. 2008). The Administrative Procedure Act, moreover, requires a preamble to a proposed rule to state the statutory authority that authorizes the adoption of a proposed rule, including a concise explanation of the statutory provisions and the statute affected by the rules. Tex. Govt Code 2001.024(a)(3). DSHS believes that the statutes cited in the Preamble and the explanation of those provisions are consistent with the Administrative Procedure Acts requirements. Comments Received Regarding the Proposed Rules Comment: With respect to the rules generally, commenters expressed concern that the rules would make the health services offered through the TWHP inaccessible to many women, which might in turn lead to an increase in the number of pregnancies. The commenters believe that the rules will render many providers in the Medicaid Womens Health Program unqualified to participate in TWHP and that the providers remaining in the program will be unable to handle a greatly increased number of TWHP clients in a timely manner. Some commenters suggested that, for this reason, rules restricting provider participation should not be adopted. Response: DSHS appreciates the comments; however, these concerns cannot authorize DSHS to operate the TWHP in a manner that violates Human Resources Code, 32.024(c-1) and allows unqualified providers to participate in the program. Further, the States efforts have been directed at ensuring womens access to covered services. While some women enrolled in the existing Medicaid Womens Health Program will have to switch providers, DSHS believes the women will find a new provider within a reasonable distance and geographic range. DSHS will assist all eligible women whose existing provider is not qualified to participate in the TWHP.
Additionally, DSHS will monitor access issues and work to recruit new providers, particularly in those areas where access may be difficult. Comment: A commenter suggested, in the alternative, that DSHS delay implementing the rules while the rules governing the Medicaid Womens Health Program are challenged in court and while the State is appealing the CMS decision to deny the States request to extend the Medicaid Womens Health Program. Response: DSHS appreciates the comment; however, the agency is unable to delay adoption of the rules. In light of the CMS denial of the States request to extend the Medicaid Womens Health Program, and to avoid as much as possible any interruption in care to the women currently served by the program, the State has determined that it is necessary to continue to provide these vital services, even if it occurs exclusively at the States expense. As successor to the Medicaid Womens Health Program, DSHS must comply with the Legislatures direction to deliver services through providers that do not perform or promote elective abortions or affiliate with an entity that performs or promotes elective abortions. To ensure a seamless transition for clients from the Medicaid program to the TWHP, DSHS believes that it must move forward with the adoption of the rules. Comment: A commenter suggested that the rule should incorporate by reference or repeat the text of Government Code, 531.0025, which the Texas Legislature adopted in 2011 to limit the use of funds appropriated to the DSHS. See Act of June 27, 2011, 82nd Leg., 1st C.S., ch. 7, 1.19(a) (S.B. 7). Under the statute and [n]otwithstanding any other law, unless the Legislature has directed otherwise in the appropriations act, the DSHS generally must award money that has been appropriated to it for the purpose of providing family planning services to eligible entities in the following order of descending priority: first, to public entities that provide family planning services; second, to nonpublic entities that provide comprehensive primary and preventive care services, not just family planning services; and third, to nonpublic entities that provide family planning services but do not provide comprehensive primary and preventive care services. Tex. Govt Code, 531.0025(a). Response: DSHS appreciates the comment; however, by its terms, the statute does not apply to the TWHP because the funds that will be used to administer the TWHP were not appropriated to DSHS for the purpose of providing family planning services. DSHS believes that this is a matter that is more appropriately addressed to the Legislature. 39.31. Introduction. Comment: Commenters suggested that the list of objectives in 39.31(c) be modified to add, as an objective, the provision of accessible and comprehensive reproductive health care for lowincome women. One commenter suggests that the addition of such an objective will clarify the intent to provide continued access to preventive health care, contraceptives, and screenings. Response: DSHS declines to add the requested objective. Sections 39.39 and 39.40 of the adopted rules describe the scope of benefits under the program. Therefore, DSHS does not believe the suggested revision is necessary.
39.32. Non-entitlement and availability. DSHS received no comments on this section. 39.33. Definitions. (1) Affiliate Comment: A commenter suggested generally that the notice is insufficient because it does not identify the factual basis for the limits on affiliates and then, in light of the factual basis, clearly and logically demonstrate that the rule is a reasonable means of achieving a legitimate end. Response: DSHS disagrees with this comment. Barring providers that affiliate with entities that perform or promote elective abortions from claiming reimbursement from state funds for services provided through the TWHP is a legitimate end. The United States Supreme Court has recognized that a state may adopt public policies that favor childbirth and disfavor abortion and may allocate public funds accordingly. See Maher v. Roe, 432 U.S. 464, 474 (1977). Our Legislature repeatedly has expressed a very strong interest in barring from a womens health program any provider that performs or promotes elective abortions or affiliates with an entity that performs or promotes elective abortions. A state agency cannot question the factual basis on which the Texas Legislature based this prohibition. Neither is the agency required under the Administrative Procedure Act to describe the factual basis underlying the legislative act. Rather, the agency must describe the factual basis underlying its action. The preamble to the proposed rules and this preamble amply describe the factual and legal basis for the TWHP rules. Comment: More specifically, a commenter proposed revising the definition of the term affiliate in 39.33(1)(B) to avoid a construction that the commenter feels would prevent a physician from participating if another physician in the medical group performs or promotes elective abortions, as well as a physician who is affiliated with a medical school or hospital. The commenter makes four suggestions that it believes will resolve the issue. First, the commenter suggests limiting the list of written instruments that govern an impermissible affiliation to those documents expressly listed, by changing may include to are limited to. Second, in the alternative, the commenter suggests adding language at the end of subparagraph (B) that would expressly exclude an employment agreement. Third, the commenter suggests adding to the definition of affiliate a new subparagraph (C) that would state that a physician who is a member of a group practice is not considered an affiliate solely because another physician in the group practice performs or promotes elective abortions. And fourth, the commenter suggests a new subparagraph (D) that would state that a professor at a medical school is not considered an affiliate of the medical school or resident training program at which the professor teaches or provides instruction. Response: DSHS will respond to the four suggestions in order. First, with respect, DSHS declines to revise the rule to specifically limit the list of written instruments that demonstrate an affiliation. The term includes is a term of enlargement, as the commenter recognizes, and its use provides DSHS with a permissible degree of flexibility in examining relationships to
determine affiliations. Tex. Govt Code 311.005(13). On the other hand, the types of instruments that may be used to demonstrate an affiliate relationship do not constitute an unlimited class. Under the canon of construction known as ejusdem generis, an enumeration of specific items that follows a general term limits unlisted items to items similar in nature. Tex. Atty Gen. Op. No. JC-410 (2001) at 3. In this instance, DSHS believes that the rules specific list limits the type of instruments that will be considered evidence to those that evidence a legal relationship, usually between corporate entities, characterized by a degree of common control. DSHS believes that organizations and entities that share common ownership, control, or identification (names, logos, etc.) are also very likely to share the same purpose, goals, or mission and to support-financially or physically, directly or indirectly-the communication of the same message. Thus, DSHS believes that when the Legislature specifically directed HHSC to disqualify affiliates of entities that perform or promote abortions from the Medicaid Womens Health Program, it intended HHSC (and now DSHS) to ensure that funds expended to provide services to women under the Medicaid Womens Health Program or the TWHP as its successor do not directly or indirectly support legislatively disfavored abortion services or the communication of support for such services. DSHS believes this is so even if such support occurs through organizations that facially appear to be independent, but exhibit objective evidence of more than a simple arms length relationship. Indeed, DSHS believes that the risks of directly or indirectly supplying support to disfavored activities is greatest when one organization has the ability directly or indirectly to control, order, or significantly influence the policies and actions of the other. Thus, DSHS believes that the most reliable means of ensuring implementation of legislative intent is to focus on legal relationships that confirm or infer such power. And the agency believes that the best evidence of such power are the instruments that govern the legal relationship between the parties. Similarly, DSHS believes that the Legislature intended, through the administration of these programs and the expenditure of funds through these programs, to ensure that the States overarching message to disfavor such services is confirmed as much as possible. DSHS believes that an entity cannot simultaneously participate in a program whose purpose is to confirm the States general disapproval of abortion procedures and convey active support for such procedures, such as through advocacy or popularization of elective abortion (see discussion of 39.38(b) which follows after 39.37). And again, the agency believes the best evidence of this risk are the written instruments that legally govern the relationship between the parties. The indicia of affiliation described in the proposed rule are patterned, in large part, after criteria commonly employed by state and federal administrative agencies to determine eligibility for specific regulatory treatment, to regulate program integrity, or to guard against fraud and selfdealing. See, e.g., 47 U.S.C. 153(2) (defining affiliate for purposes of federal regulation of telecommunications to mean, inter alia, a person that (directly or indirectly) owns or controls, is owned or controlled by, or is under common ownership or control with, another person); 13 C.F.R. 121.103 (for purposes of determining eligibility of a business for small business treatment by the U.S. Small Business Administration, [c]oncerns and entities are affiliates of each other when one controls or has the power to control the other, or a third party or parties controls or has the power to control both. It does not matter whether control is exercised, so long
as the power to control exists); 42. C.F.R. 421.404 (for purposes of determining a Medicare Administrative Contractors ability to enroll and process claims for related providers or suppliers, common control exists when an individual, group of individuals, or an organization has the power, directly or indirectly, to significantly influence or direct the actions or policies of a group of suppliers or providers); 28 TAC 7.202(a)(2) (affiliate means affiliate of, or person affiliated with, a specific person, is a person that directly, or indirectly through one or more intermediaries, controls, or is controlled by, or is under common control with, the person specified). These regulations are aimed at piercing the common practice of establishing separate legal entities to avoid regulation or sanction. DSHS believes that the Legislature determined that organizations and entities that share common controls and purposes with an entity that performs or promotes elective abortion should be deemed unqualified to participate in the TWHP. DSHS believes that focusing on these relationships is a reasonable means of ensuring the TWHPs integrity and achievement of legislative intent. With these principles in mind, the agency can now address the other recommended changes to the definition of affiliate. Regarding the second recommended change, DSHS declines to revise subparagraph (B) to insert at the end but do not include an employment agreement. DSHS believes that employment contracts-at least as between an entity that performs or promotes abortion services and its employees-is objective evidence of common control that disqualifies the provider from participation in TWHP. The employment contract reasonably can be assumed to empower the employer to regulate or direct the actions of the employee. An organization that performs or promotes elective abortions can reasonably be assumed to have the authority to direct its employees to assist or implement these actions. The same reasoning, however, cannot be applied to individuals who have relationships with organizations that do not exhibit evidence of common ownership, control, or identity with an entity that performs or promotes elective abortions. In DSHS view, the Legislature did not intend to impute one individuals disfavored conduct to an entire group who (1) are associated only by virtue of each members common ownership of employment with an entity whose mission differs from that of an abortion performing or promoting entity; and (2) have little control over other members practices. Accordingly, DSHS believes it is reasonable to modify the proposed rules to assure that documentation of the relationship between a physician and a physician group is not considered evidence of a disqualifying affiliation. DSHS amends subparagraph (B) to exclude agreements related to a physicians participation in a physician group practice. This change ensures that physicians who engage in disfavored activities (either for pay or on a voluntary basis) are not admitted to the TWHP, but their peers who do not engage in those activities are not disqualified by virtue of their common ownership interest in or employment by a physician group. Excepting physicians in group practices that do not conduct disfavored activities from the definition of affiliate is, in our view, narrowly tailored and consistent with the legislative intent, yet allows a sufficient number of providers to qualify to provide TWHP services.
As adopted, subparagraph (B) reads as follows: 39.33(1)(B) - The written instruments referenced in subparagraph (A) of this paragraph may include a certificate of formation, a franchise agreement, standards of affiliation, bylaws, or a license, but do not include agreements related to a physicians participation in a physician group practice, such as a hospital group agreement, staffing agreement, management agreement, or collaborative practice agreement. Fourth, DSHS declines to add a new subparagraph that would except from the definition of affiliate a professor at a medical school. A professor at a medical school will be considered unqualified to participate in TWHP if the professor performs or promotes elective abortions or is an affiliate of an entity that performs or promotes elective abortions. And in the absence of evidence of common ownership, control, or identity with an elective abortion provider, members of the faculty of a medical school who do not perform or promote elective abortions will not be disqualified to participate as a TWHP provider. 39.33(8) Elective abortion. Comment: A commenter suggested that the definition of the term elective abortion be revised to reflect the medical emergency exception that Health and Safety Code, 285.202 sets out. As proposed, the definition excepts an abortion performed to terminate a pregnancy that resulted from rape or incest or an abortion performed to avert a threat to the mothers life. The commenters suggested definition would expand to also include the termination of a pregnancy in two circumstances: (1) where continued pregnancy places the mother at risk of substantial impairment of a major bodily function; and (2) where the fetus has a severe fetal abnormality. Response: Health and Safety Code, 285.202 applies to hospitals districts and prohibits the transfer of state funds to a hospital district that uses tax revenue to finance the performance of an abortion. The statute excepts financing of abortions performed due to a medical emergency as defined in the statute. The language proposed by the commenter is derived from this definition. Health and Safety Code, 285.202 was added by Senate Bill 7 of the first called session of the 82nd Legislature, the same bill that enacted Human Resources Code, 32.024(c-1). Thus, DSHS believes that the Legislature intended both provisions to be read in harmony and did not intend for a hospital that receives payment from a hospital district for the performance of an emergency abortion as defined in Health and Safety Code, 285.202 to be disqualified under Human Resources Code, 32.024(c-1). Accordingly, DSHS will revise the definition of elective abortion as the commenter suggests. As revised, the definition will provide as follows:
39.33(8) Elective abortion--The intentional termination of a pregnancy by an attending physician who knows that the female is pregnant, using any means that is reasonably likely to cause the death of the fetus. The term does not include the use of any such means:
(A) to terminate a pregnancy that resulted from an act of rape or incest; (B) in a case in which a woman suffers from a physical disorder, physical disability, or physical illness, including a life-endangering physical condition caused by or arising from the pregnancy, that would, as certified by a physician, place the woman in danger of death or risk of substantial impairment of a major bodily function unless an abortion is performed; or (C) in a case in which a fetus has a severe fetal abnormality, meaning a life-threatening physical condition that, in reasonable medical judgment, regardless of the provision of life-saving treatment, is incompatible with life outside the womb. 39.34. Client Eligibility. DSHS received no comments on this section. 39.35. Application Procedures. Comment: A commenter suggested that proposed paragraph (1) of subsection (a) be revised to delete a reference to a paper application and to add a new subparagraph (D) that would allow DSHS or its designee to approve other ways for women to obtain TWHP applications. Response: DSHS will make these changes because they will provide DSHS with flexibility to adopt new ways for individuals to obtain TWHP applications, making it easier for potential participants to apply for services. Comment: A commenter suggested that subsection (e) be modified to allow DSHS or its designee to request social security numbers from an applicants budget group members. Response: Section 39.35(e) as proposed authorizes DSHS or its designee to request, but not require, an applicants budget group members social security numbers. DSHS declines to amend the rule at this time as the commenter suggests but will monitor the situation and may amend the rule at a later date. 39.36. Financial Eligibility Requirements. DSHS received no comments on this section. 39.37. Denial, Suspension, or Termination of Services; Client Appeals DSHS received no comments on this section. 39.38 Health-Care providers Comment: A commenter stated that the Preamble is insufficient because it fails to mention that the proposed provider qualifications violate both the federal and state constitutions.
Response: The rules have been formulated to comply with the federal and state constitutions, using in particular the guidance of the United States Supreme Court as set out in Rust v. Sullivan. See Rust v. Sullivan, 500 U.S. 173 (1991). Particularly, the rules attempt to place reasonable controls on the use of TWHP to convey legislatively disfavored messages and to promote as much as possible the legislative policy favoring childbirth. Comment: A commenter suggested that DSHS lacks authority to limit the pool of providers that may participate in the TWHP, citing Human Resources Code, 32.001, 32.002, and 32.024(c-1), as well as Health and Safety Code, 32.005. Response: Human Resources Code, Chapter 32, cited by the commenter, pertains to the operation of the Medicaid program by the HHSC. See Tex. Hum. Res. Code 32.001. Nothing in Human Resources Code, Chapter 32-save for 32.024(c-1), which applies to any program that is the successor to the Medicaid Womens Health Program-applies to DSHS authority to administer a non-Medicaid program. Health and Safety Code, 32.005 prohibits DSHS, in the operation of a maternal and infant health improvement services program, from applying funds under that program to pay for any abortion unless the life of the mother is in danger. Because TWHP will not be administered within the maternal and infant health improvement services program, Health and Safety Code, 32.005 does not apply to the provision of services through the primary health care services program administered under Health and Safety Code, Chapter 31. The commenter seems to argue, however, that no other statutes provide DSHS with relevant authority to adopt rules with respect to TWHP. DSHS disagrees with the commenters argument: Health and Safety Code, 31.003 and 31.004 give DSHS broad authority to adopt rules for administering a primary health services program, including authority to adopt rules setting out the type of services to provided, the administrative structure, and the designation of public and private providers. This express authority encompasses authority to prescribe the qualifications of providers that participate in the TWHP. Comment: The commenter also suggested that limiting the provider pool is inconsistent with DSHS authority to administer family planning programs under Strategy B.1.3 of the General Appropriations Act. See General Appropriations Act, 82nd Leg., R.S., ch. 1355, art. II, Strategy B.1.3, at II-45 (Health and Human Services section, DSHS). Response: As noted previously, DSHS authority to administer the TWHP is not derivative of the authority to administer programs under Strategy B.1.3 because the TWHP is established under different authority and because funds for the TWHP were not appropriated under Strategy B.1.3. Comment: A commenter also stated that the Preamble is insufficient because, in the commenters view, it fails to note that the provider qualifications set forth in the TWHP rule will cause the number of providers that participate in the TWHP to be smaller than the number of providers that participate in the Medicaid Womens Health Program. According to the commenter, this will compound the loss of providers in the DSHS family planning programs and will make the recruiting of new participating providers challenging.
Response: DSHS appreciates the comment, but believes that the Administrative Procedure Act does not require the kind of comparative analysis the commenter suggests. DSHS agrees that access to services must take priority. To the extent that access becomes a problem, DSHS will work to recruit additional new qualified providers to the program. Comment: A commenter indicated that the Preamble is insufficient because it does not describe how the provider qualifications listed in 39.38(b)(1) differ from the provider qualifications that apply to the current Medicaid Womens Health Program. Response: The two programs are separate. Nothing in the Administrative Procedure Act requires a Preamble or an order adopting a rule to compare a new program to an old one. Comment: A commenter stated that the Preamble is insufficient because it fails to acknowledge the burdens 39.38 will impose on TWHP providers. Response: In the agencys view, such an acknowledgement would exceed the requirements of the Administrative Procedure Act. However, the burdens imposed by the TWHP are no greater than the burdens borne by providers currently enrolled in the Medicaid program. Comment: A commenter stated generally that the prohibition on the promotion of elective abortions in 39.38, together with the prohibition on affiliation with entities that perform or promote elective abortion and the definition of affiliate in 39.33(1), contravenes the first and fourteenth amendments to the United States Constitution and the decision of the United States Court of Appeals, Fifth Circuit, in Planned Parenthood v. Sanchez. See Planned Parenthood v. Sanchez, 403 F.3d 324 (5th Cir. 2005). Response: With respect, DSHS does not believe that the rules contravene these constitutional provisions. Under the United States Supreme Courts decision in Rust, the state has clear authority to regulate the conduct of a provider when the provider is performing services paid with public funds. See Rust, 500 U.S. at 19697. Nor does DSHS believe that Sanchez applies to an analysis of these rules. The Texas Attorney General has opined expressly that the decision in Sanchez does not apply outside the context of Title X of the federal Public Health Services Act. Tex. Atty Gen. Op. No. GA-0844 at 2 (2011). Consequently, DSHS believes it need not state a legitimate objective for adopting standards stricter than those set forth in Sanchez. Comment: The same commenter indicated that it has gone to considerable expense to comply with the standards articulated in Sanchez and that the imposition of stricter standards constitute a taking of property and do not serve a legitimate objective. Response: This argument presumes that the commenter is entitled to participate as a TWHP provider. Whether an entity has a property interest in a particular situation is a matter of state law. See Personal Care Products, Inc. v. Hawkins, 2009 WL 2406253, *7 (W.D. Tex. 2009). Even in the Medicaid context, a court has recognized that, depending on the terms of a particular states Medicaid statutes, a provider may have no property interest in or entitlement to participation as a Medicaid provider. See Kelly Kare, Ltd. v. ORourke, 930 F2d 170, 176 (2d Cir.), cert. denied, 502 U.S. 907 (1991) (stating that a home-health provider has no property
interest in continuing provider status under Medicaid); Shankar v. Bonta, 50 Fed. Appx. 840, 841 (9th Cir. 2002) (finding that a physician had no constitutionally protected property interest in enrolling as a Medi-Cal provider). The commenter fails to cite any state law that would create a property interest in providing purely state-funded services such as TWHP services, and DSHS is not aware of any such statute. And, as section 39.32(a) of the rules indicates, TWHP does not create an entitlement program. Consequently, in our view, the rules do not impinge upon any protected property interests. Comment: Commenters asserted that 39.38, together with the rules definitions, will restrict a TWHP providers conduct even outside TWHP. Response: DSHS views these rules principally as setting out the standards a provider must meet to be qualified to perform services in TWHP. The Legislature has specifically stated that, because this State places a priority on life, a provider that performs or promotes elective abortions is unqualified to participate as a provider in a successor program to the Medicaid Womens Health Program. Likewise, a provider that is affiliated with an entity that performs or promotes elective abortions is unqualified to provide services for TWHP. A health-care provider is free to perform or promote elective abortions or to affiliate with an entity that performs or promotes elective abortions, but that provider must know that that conduct renders it unqualified to participate in THWP. In addition, no TWHP provider may promote elective abortions by having available for TWHP clients any materials promoting elective abortions. In the States view, the Legislature intended for any successor program to the Medicaid Womens Health Program to forbid any type of message regarding elective abortions that may be accessible to or received by TWHP clients. DSHS believes that controlling the messages accessible to TWHP clients is consistent with the United States Supreme Courts conclusions in Rust, even if that has an impact on the material the provider has lying about the office for non-TWHP patients. See Rust, 500 U.S. 173, 198 (1991) (approving governmental regulation requiring separation between abortion-related activities and publicly funded program); Planned Parenthood Assn v. Suehs, No. 12-50377, slip op. at 89 (5th Cir. Aug. 21, 2012) (approving state regulation restricting the content of the Medicaid Womens Health Program). Comment: A commenter suggested that the provider qualifications will negatively impact a TWHP clients ability to receive services from the provider of her choice. Response: Nothing in the rules guarantees that a TWHP client may select from an unlimited universe of providers. Rather, a provider must be qualified, as the State defines qualified, and must be willing to provide services through TWHP. Analogously, even in Medicaid, a clients choice is not unbridled. Under 1902(a)(23) of the Social Security Act, a client may choose from only those providers that are qualified and who undertake to provide Medicaid services. See OBannon v. Town Court Nursing Ctr., 447 U.S. 773, 785 (1980). Comment: A commenter proposed amending 39.38(b) by deleting paragraph (1), which requires a TWHP provider to ensure that the provider does not perform or promote elective abortions outside the scope of TWHP and is not an affiliate of an entity that does so. The
commenter suggests, in the alternative, deleting the phrases or promote and and is not an affiliate of an entity that performs or promotes elective abortions. In the commenters view, what a TWHP provider does outside the scope of TWHP is irrelevant to the program. However, according to the commenter, the alternative would allow the state to exclude providers that perform elective abortions but not exclude entire group practices solely because some members of the group practice perform elective abortions. Further, the alternative would avoid what the commenter believes are violations of the First Amendment to the United States Constitution. Response: DSHS respectfully declines either to delete 39.38(b)(1) or to revise it as suggested by the commenter. DSHS disagrees that a providers conduct outside the TWHP is irrelevant to the providers qualification to participate in the TWHP. The Texas Legislature repeatedly has directed that a health-care provider that performs or promotes elective abortions is unqualified to participate in a program that provides family-planning services to women as a successor to the Medicaid Womens Health Program. The state may not disregard the Legislatures directive unless a court finds the directive to be unconstitutional. No court has held that a states determination that entities that perform elective abortions are unqualified to provide publicly funded family planning services is unconstitutional, and, in our view, determining provider qualifications for a state-funded program is within the states authority. Indeed, the Fifth Circuit's ruling in Planned Parenthood v. Suehs holds that the Constitution permits the State to exclude abortion-promoting entities from the Medicaid Women's Health Program.
Comment: The commenter also suggested revising paragraph (2) of 39.38(b) by deleting subparagraph (A), which relates to the promotion of elective abortion within the scope of TWHP. The commenter indicates that this subparagraph, if left in, would be inconsistent with a physicians obligation to provide a patient with medically appropriate information. Additionally, the commenter avers, a physician may be subject to liability for medical malpractice and to discipline by the state licensing board from violating principles of medical ethics. Response: DSHS does not agree that the proposed rules imposed constraints on physician-patient communications that differ markedly from other publicly funded family planning programs. See, e.g., 42 C.F.R. 59.5 (for family planning services funded pursuant to Title X of the Social Security Act, a family planning provider must provide information concerning specified options, including termination of a pregnancy upon a patients request except with respect to any option(s) about which the pregnant woman indicates she does not wish to receive such information and counseling). Such restrictions presumably apply even if the physician believes information and counseling that the patient rejects is medically appropriate. DSHS does recognize, however, that treatment of health care conditions is most effective when the provider and patient maintain a trusting relationship that facilitates candid discussion of the patients health care needs and options. DSHS also believes that such discussions need not-and in the case of TWHP must notslip into advocacy for illegal or (again in the case of TWHP) legislatively disfavored elective procedures. As discussed below, DSHS will amend the definition of promote (paragraph (1) of subsection (c) of this section) to facilitate and tailor the provision of factual information and nondirective counseling in a manner intended to fulfill legislative intent.
Comment: A commenter suggested that the separation requirements set out in 39.38(b)(2)(B), (C) surpass those agreed to under Planned Parenthood v. Sanchez. See Planned Parenthood v. Sanchez, 280 F. Supp. 2d 590 (W.D. Tex. 2003). The commenter further suggests that the Preamble is insufficient because it fails to justify the separation requirements. Response: DSHS disagrees on both points. The Texas Attorney General has indicated that Sanchez applies only in the context of Title X of the Public Health Act. See Tex. Atty Gen. Op. No. GA-0844 at 2 (2011). Consequently, its holding does not apply to these rules. Additionally, DSHS believes that the notice complies with the standards set out in the Administrative Procedure Act. See Tex. Govt Code 2001.024(a). With respect to a program that succeeds the Medicaid Womens Health Program, Human Resources Code 32.024(c-1) prohibits contracts with any entity that performs or promotes elective abortions or that is an affiliate of such an entity. While an administrative agency may not adopt a rule that is inconsistent with the statutes the agency is authorized to effectuate, see R.R. Commn of Tex. v. Lone Star Gas Co., 844 S.W.2d 679, 685 (Tex. 1992), the agency may adopt rules that reasonably define statutory terms or fill in details not specified by statute. See Tex. Atty Gen. Op. Nos. GA-0845 at 2 (2012); GA0708 at 7 (2009). Comment: Another commenter suggested replacing the text of the proposed 39.38(b)(2)(B) with more specific requirements regarding the necessary physical and financial separation of TWHP providers and physicians or entities that perform or promote elective abortions. Among other things, the commenter suggests a requirement that all TWHP services be located at least 100 yards from the location of any elective abortion activities and that all employees, volunteers, and governing boards of a TWHP provider be totally separate from an entity that performs or promotes elective abortions. The commenter also suggests revisions empowering the Executive Commissioner of the HHSC to determine a TWHP providers objective integrity and independence based upon factors such as the presence of accounting records that are separate from those of an entity that performs or promotes elective abortions; the degree of physical separation between facilities used to provide TWHP services and those used in connection with the performance or promotion of elective abortion; the existence of separate personnel; and the extent to which materials promoting abortion are available at the TWHP providers location and on the TWHP providers public electronic communications. The commenter describes the proposed revisions as necessary to adequately ensure that TWHP activities are truly separated from the performance and promotion of elective abortion. Response: DSHS agrees that more specific standards would assist TWHP providers in knowing exactly the degree of separation that is required. More importantly, DSHS believes that the standards proposed by the commenter are consistent with the Legislatures intent that, in a successor program to the Medicaid Womens Health Program, no money be used to contract with an entity that performs or promotes elective abortions or that affiliates with an entity that performs or promotes elective abortions. DSHS will alter the commenters proposal in two respects, however. First, as submitted, the commenters proposal would empower the HHSC Executive Commissioner to determine a TWHP providers objective integrity and independence. Because
TWHP will be a DSHS program, the language will be changed to house the authority with DSHS or its designee. Second, DSHS believes that the initial requirement that TWHP services have an objective integrity and independence from elective abortion and its promotion would be clarified by adding a cross-reference to clause (ii). As revised, 39.38(b)(2)(B) will require that a TWHP provider must ensure that, in offering or performing a TWHP service, the provider: (B) maintains physical and financial separation between its TWHP activities and any elective abortion-performing or abortion-promoting activity, as evidenced by the following: (i) physical separation of TWHP services from any elective abortion activities, no matter what entity is responsible for the activities; (ii) a governing board or other body that controls the TWHP health care provider has no board members who are also members of the governing board of an entity that performs or promotes elective abortions; (iii) accounting records that confirm that none of the funds used to pay for TWHP services directly or indirectly support the performance or promotion of elective abortions by an affiliate; and (iv) display of signs and other media that identify TWHP and the absence of signs or materials promoting elective abortion in the providers location or in the providers public electronic communications; and Comment: A commenter stated generally that 39.38(b)(2)(C), which prohibits the use of any type of registered identification mark in the offering or performance of any TWHP service, deprives the commenter of its property in violation of the federal and state constitutions. Response: DSHS disagrees with the commenter. The United States Court of Appeals for the Fifth Circuit recently has affirmed the States authority to prohibit the expenditure of public funds for services provided by an organization that promotes abortion through identifying marks. See Planned Parenthood v. Suehs, No. 12-50377, slip op. at 10 (5th Cir. Aug. 21, 2012). According to the Court, Texass authority to directly regulate the content of its own program necessarily includes the power to limit the identifying marks that program grantees are authorized to use. Id. at 9. Comment: A commenter suggested that 38.39(c)s description of activities that promote elective abortion interfere with a TWHP providers relationship with TWHP clients. Response: With respect, DSHS believes that Rust provides sufficient authority for DSHS to regulate a TWHP providers relationship with a TWHP client. See Rust, 500 U.S. at 198. Furthermore, as discussed below, subsection (c) is revised to accommodate the communication of neutral, factual information upon a TWHP clients request, provided such communication does not involve taking affirmative steps to secure abortion services for a TWHP client.
Comment: A commenter stated that the introductory heading Defining promote is incorrect, because what follows is not a definition but a list of items included within the term promote. Response: DSHS agrees, but believes that the revised subsection (c) will remedy the problem. Comment: A commenter stated that subsection (c) is unclear as to what is prohibited and what is permitted and that this lack of clarity makes comment on any possible constitutional implications impossible. Response: Although DSHS does not find subsection (c) unclear, it will revise the lead-in sentence to read as follows: (c) Defining promote. For purposes of subsection (b) of this section, the term promote means advancing, furthering, advocating, or popularizing elective abortion, by, for example:. Comment: A commenter suggested replacing the whole of subsection (c) with the definition of promotes used in the rules governing the current Medicaid Womens Health Program, so that it would read, For purpose of this section, the term promotes means advocates or popularizes by, for example, advertising or publicity. Cf. 1 Tex. Admin. Code 354.1362(6). Response: DSHS believes that the subsection (c), as revised,will resolve this issue. Comment: With respect to the list of activities that constitute the promotion of elective abortion set out in 39.38(c), a commenter advocated the deletion of the phrase but is not necessarily limited to after the term includes. The commenter believes the language is overly broad and provides insufficient guidance to physicians trying to determine whether particular activity constitutes the promotion of elective abortions. Response: DSHS believes that the revision of subsection (c) resolves this issue by more clearly defining the scope of allowable and unallowable communication between a TWHP client and her provider. DSHS believes that, as revised, subsection (c) will reduce uncertainty about the limits of providers communications and will facilitate greater participation by the provider community. Comment: A commenter suggested deleting 39.38(c)(1), which includes within the scope of promotion the provision of client counseling concerning the use of abortion as a method of family planning or within the continuum of family planning services. Response: DSHS agrees that the phrase is not appropriately included within the rules and, considering the revisions to paragraphs (c)(1) and (c)(2), is not necessary to include in the final rule. As revised, 39.38(c)(1) will read as follows:
(1) taking affirmative action to secure elective abortion services for a TWHP client (such as making an appointment, obtaining consent for the elective abortion, arranging for transportation, negotiating a reduction in an elective abortion provider fee, or arranging or scheduling an elective abortion procedure; however, the term does not include providing upon the patients request neutral, factual information and nondirective counseling, including the name, address, telephone number, and other relevant information about a family planning provider. The proposed paragraph (c)(2) will be deleted, and the remaining paragraphs will be renumbered accordingly. Comment: A commenter advocated replacing subsection (c)(1) of 9.38 with the following: The term [promotes] does not include confidential communications that occur between patients and physicians pursuant to an examination or treatment. Response: DSHS believes that the revision of paragraphs (c)(1) and (c)(2) will resolve this issue. Comment: A commenter suggested modifying the phrase TWHP client in paragraphs (c)(1) (c)(3) with the adjective current, to read current TWHP client. Response: DSHS believes inserting the adjective current is unnecessary. Once a TWHP client stops participating in TWHP, she is no longer a TWHP client, and a reference to a TWHP client would not apply to her. Similarly, referring to a woman who is receiving TWHP services as a current TWHP client is redundant. Comment: A commenter suggested that DSHS insert before the term abortion in paragraphs (c)(1) and (c)(3) the term elective. Response: DSHS agrees to add the term in paragraph (3), making the phrase elective abortion. This will make use of the phrase consistent throughout the rules. In addition, Human Resources Code, 32.024(c-1) is concerned solely with elective abortions, showing that the Legislature did not intend to impinge upon the performance or promotion on those abortions that are not elective. Comment: A commenter suggested deleting from paragraphs (c)(1) and (c) (2) the phrase as a method of family planning or within the continuum of family planning services. In the commenters view, this phrase undermines the intent of the rules, which the commenter otherwise favors. In the commenters view, a TWHP provider must refrain from promoting, referring, or recommending abortion to any client regardless of the context of the discussion, family planning or otherwise. Response: DSHS believes that the revision of paragraphs (c)(1) and (c)(2) resolves this issue. Comment: A commenter suggested deleting the acronym TWHP from paragraphs (c)(1) (c)(3) so that the phrase TWHP client would read client.
Response: DSHS declines to delete TWHP as the adjective before client. The United States Supreme Court indicated in Rust that a governmental entity could regulate the conduct of a provider of publicly funded health care services with respect to that program, but left open the extent to which the government may regulate the providers conduct outside the program. See Rust, 500 U.S. at 198. It is therefore appropriate to impose some restrictions that apply only to a providers conduct within the context of the TWHP program. Comment: A commenter suggested that paragraph (c)(1) be revised to insert the phrase including nondirective counseling after providing to a TWHP client counseling. Response: DSHS believes that the revision of paragraphs (c)(1) and (c)(2) resolves this issue. Comment: A commenter alleged that paragraph (c)(4) of the proposed is unclear with respect to how it differs from the requirements governing the current Medicaid Womens Health Program. In particular, the commenter asks whether, if a provider completely removes from its signage, employee badges, paperwork, etc, any registered identification mark, it may be said to be operating under the identification mark. Response: Paragraph (c)(4) of the proposed rules appears as paragraph (c)(3) in the final rule. DSHS does not find the phrase unclear. Furthermore, the definition of affiliate in 39.33 confirms that a provider is also disqualified by virtue of the legal relationship it maintains with an entity that performs or promotes elective abortion. Removing identifying marks or symbols does not negate that relationship. So, the provider could not affiliate with an entity that performs or promotes elective abortions, regardless of the presence of visible or accessible identification marks or promotional materials. Comment: A commenter suggested that subsections (b) and (c) of this section together, because they are (in the commenters view) burdensome for providers, will reduce the number of providers who will participate in TWHP. Another commenter suggested that, because the number of providers will be reduced, TWHP clients may have significant problems finding transportation to the providers. Response: DSHS respectfully disagrees with the comment. Analyses performed by HHSC, on behalf of DSHS, suggests that TWHP clients will have sufficient access to a qualified TWHP provider and that the distance to such a provider will not substantially differ. Additionally, DSHS or its designee will monitor access issues and will seek to recruit providers to participate in the program. Comment: A commenter suggested adding a new subsection (d) to expressly except client counseling from the term promote. As suggested, the new subsection would read: (d) Client counseling excepted. Notwithstanding subsection (c) of this section, the term promote does not include confidential communications that occur between patients and physicians pursuant to an examination or treatment. Response: DSHS believes that the revision of paragraphs (1) and (2) of subsection (c) resolves this issue.
Comment: A commenter suggested that a new subsection be added to 39.38 to make clear that DSHS must comply with restrictions in Government Code, 531.0025 as well as the restrictions in these rules. Government Code section 531.0025 establishes priorities for awards of money appropriated to DSHS for the purpose of providing family planning services. Response: DSHS appreciates the comment but does not believe Government Code, 531.0025 applies to the use of funds in TWHP. First, DSHS understands Government Code, 531.0025s plain language to apply to funds directly appropriated to DSHS, and the allusion to family planning services suggests that the funds would be appropriated under what is numbered Strategy B.1.3 in the current General Appropriations Act. See General Appropriations Act, 82nd Leg., R.S., ch.1355, art. II, Strategy B.1.3, at II-45 (Family Planning Services). Section 531.0025 parallels rider 77 to the DSHS appropriation, which also applies to funds appropriated in Strategy B.1.3, Family Planning Services. See id. rider 77, at II-71. Second, the term award in Government Code, 531.0025 is typically associated with the award of grants, which is how DSHS distributes the funds appropriated to it for family planning services under Strategy B.1.3. TWHP providers are not awarded contracts in the same sense, either legally or administratively. Rather, TWHP providers are enrolled to participate in the program, subject to satisfying any eligibility requirements applicable to the provider. See 1 TAC 391.103(1) (a health and human services agency may enlist or enroll service providers under a method that is open to all such providers who meet qualification criteria established by the purchasing agency). Third, subsection (b) of Government Code, 531.0025 requires DSHS to ensure that funds are distributed in accordance with federal law. But TWHP is a totally state-funded program, and federal law presumably does not apply. In sum, because Government Code, 531.0025 does not apply to TWHP, DSHS declines to make the suggested change. Comment: A commenter suggested deleting subsection (d), which requires a TWHP provider to produce all information DSHS or its designee requests to determine whether the provider has complied with 39.38. In the alternative, the commenter suggests limiting a possible request to produce information to information obtained or maintained pursuant to TWHP within one calendar year before the request to produce; that the request to produce information be based on an allegation or evidence that the provider has violated 39.38; and guaranteeing the provider 45 days to comply with the request. The commenter feels that, as proposed, subsection (d) imposes onerous burdens on TWHP providers. Response: DSHS declines to revise 39.38 either to delete subsection (d) or to add the language the commenter suggests as an alternative. The State must be able to audit a TWHP providers compliance with program requirements, and either of the suggested changes would frustrate the States ability to do so. In addition, with respect to the suggested 45-day period for a provider to produce requested information, DSHS is not aware of any legal requirement that would mandate such a policy.
39.39. Covered Services. Comment: A commenter suggested several services that the commenter believes should be added to the list of covered services: a follow-up visit after an abnormal Pap test; treatment of all sexually transmitted infections (STIs); mammography and diagnostic services for breast cancer; and referrals for diagnosis and treatment of any identified health conditions that require followup. The commenter believes these additional services would be consistent with DSHS authority in the Primary Health Care Services Program under Health and Safety Code, Chapter 31. See Tex. Health and Safety Code 31.003(e). Response: Health and Safety Code, Chapter 31 establishes initial services priorities for the Primary Health Care Services Program, diagnosis and treatment; emergency services; family planning services; preventive health services; health education; and laboratory, X-ray, nuclear medicine, or other appropriate diagnostic services. Even if Health and Safety Code, Chapter 31 can be read to say that DSHS must, through its Primary Health Care Services Program, provide all of these services, it cannot be read to say that TWHP, a component of the larger Primary Health Care Services Program, must provide all of the services. Additionally, as a successor program to the Medicaid Womens Health Program, a primary goal of the TWHP is to allow women to space their pregnancies and thereby to improve their health and the health of their babies. Breast and cervical cancer screenings and STI testing and treatment are incidental benefits. Furthermore, adding to the list of covered services as suggested would incur substantial costs. HHSC does not have LBB approval to create additional program costs by adding any services other than the treatment of certain STIs. Comment: Another commenter suggested revising paragraph (3) of 39.39 to exclude from the covered service of counseling on specific methods and use of contraceptives drugs and devices whose primary method of birth control is to prevent implantation. Response: DSHS declines to make this revision. The TWHP service array is based upon requirements outlined at Human Resources Code, 32.0248 (expired). Although this section of the Code has expired, we believe the legislative directive to administer a successor program indicates that the service array should be substantially similar to that provided in the original Medicaid Womens Health Program. More importantly, Human Resources Code, 32.0248 expressly authorized the provision of contraceptives, except for the provision of emergency contraceptives. Because the contraceptives the commenter describes are not considered emergency contraceptives, they were available under the Medicaid Womens Health Program. And we find no evidence of a legislative intent to exclude any type of contraceptive other than emergency contraceptives. See Tex. Atty Gen. Op. No. JC-0183 (2000) at 3 (articulating the doctrine of statutory construction that the express mention of one thing is equivalent to the express exclusion of all other things). 39.40. Non-covered Services.
Comment: Corresponding to the proposed additions to the list of covered services in 39.39, the same commenter suggested deleting the same services from the list of non-covered services. This would delete paragraphs (2), (5), and (6) in their entirety and revise paragraph (3). Response: DSHS is not revising the covered services listed in 39.39, as explained previously. To maintain the agreement between 39.39 and 39.40, DSHS declines to revise 39.40 as the commenter suggests. Comment: Another commenter suggested revising paragraph (7) to expressly include among the non-covered services counseling on and provision of drugs and devices whose primary method of birth control is to prevent implantation. Response: For the reasons cited in response to a similar comment on 39.39, DSHS declines to make this revision. 39.41. Reimbursement. Comment: A commenter suggested that subsection (a), which provides for reimbursing TWHP claims on a fee-for-service basis, be revised to permit the payment of claims through a reimbursement methodology appropriate for the provider type, including prospective payment system reimbursement for federally qualified health centers (FQHCs). The commenter points out that an FQHC is not paid on a fee-for-service basis and that a rule that limits reimbursement to that paid on a fee-for-service basis will impact FQHCs participation. Response: DSHS understands the commenters concern. In the Medicaid Womens Health Program, a TWHP provider is paid on the basis of a prospective-payment system or an alternative-prospective-payment system. DSHS accordingly will revise subsection (a) to remove references to fee-for-service reimbursement and to instead refer more broadly to reimbursement under 1 TAC Chapter 355 Chapter 355 sets out methodologies for reimbursing Medicaid providers and includes methodologies for calculating fee-for-service reimbursement as well prospective-payment-system and alternative-prospective-system reimbursement paid to FQHCs. As revised and adopted, subsection (a) will read: (a) Reimbursement. Services provided through TWHP will be reimbursed in accordance with 1 TAC Chapter 355 (relating to Reimbursement Rates). Comment: A commenter suggested that subsection (c), which prohibits a TWHP provider from using any funds received as reimbursement for services provided through the TWHP to pay the direct or indirect costs (including overhead, rent, phones, equipment, and utilities) of elective abortions, is contrary to Rider 17 to the DSHS portion of article II of the current General Appropriations Act. General Appropriations Act, 82nd Leg., R.S., ch. 1355, art. II, rider 17, at II57 (Health and Human Services section, DSHS). Rider 17(a) expresses the Legislatures intent that DSHS use no funds to pay the direct or indirect costs (including overhead, rent, phones[,] and utilities) of abortion procedures performed by DSHS contractors. Id. rider 17(a). Rider 17(b) further expresses the Legislatures intent to prohibit DSHS from distributing any funds
appropriated under Strategy B.1.3 to an individual or entity that performs elective abortion procedures or that contracts with or funds an individual or entity for the performance of elective abortion procedures. Id. rider 17(b). The commenter specifically argues, first, that Rider 52 to the DSHS portion of article II, not Rider 17, applies; second, that family planning contractors that contract with DSHS to provide services under Strategy B.1.3 of the General Appropriations Act do not perform abortions; and third, that Rider 17 does not speak in terms of promoting abortion. Response: DSHS believes that 39.41(c) is consistent with and effectuates Rider 17(a), which expresses the Legislatures intent that no funds be sued to pay the direct or indirect costs (including overhead, rent, phones and utilities) of abortion procedures provided by DSHS contractors. By its terms, Rider 17(a) is not limited in scope to funds appropriated under Strategy B.1.3. By contrast, Rider 52 applies expressly to funds distributed under Strategy B.1.3. See General Appropriations Act, 82d Leg., R.S. ch. 1355, art. II, rider 52, at II-64 (Health and Human Services section, DSHS). Thus, Rider 52 does not apply to funds distributed through TWHP, but Rider 17(a) does apply to TWHP funds. Rider 17(b) does not apply to the TWHP because it applies expressly to funds appropriated under Strategy B.1.3, and TWHP is not funded under that strategy. In addition, although Rider 17(a) does not use the term promote, it prohibits the use of funds to pay indirect costs of abortion procedures performed by contractors. The term indirect is undefined, and the parenthetical provides an inclusive, not an exclusive, list of indirect costs. See Tex. Govt Code 311.005(13) (defining the word includes as a term of enlargement that does not denote an exclusive enumeration). DSHS believes the costs of promotion are indirect costs related to the performance of elective abortions. Comment: A commenter asked that subsection (c) be deleted because it is, in the commenters view, overly broad, burdensome, and an invasion of physician privacy. Response: DSHS declines to delete subsection (c). As explained above, DSHS believes subsection (c) is consistent with the expression of legislative intent in Rider 17. Comment: In the alternative, the same commenter asks that, if DSHS elects to keep subsection (c), references to indirect costs and the inclusive parenthetical be deleted. The commenter believes the term indirect is overly broad and could encompass a physicians donation or to a teaching institution or charity that performs or promotes abortions. Response: Again, DSHS declines to modify subsection (c) because it effectuates Rider 17. 39.42. Providers Request for Review of Claim Denial. DSHS received no comments on this section. 39.43. Confidentiality. DSHS received no comments on this section. 39.44. Audits; Reports.
Comment: A commenter suggested that subsection (b) be deleted. This subsection requires a TWHP provider to produce all information DSHS or its designee requests to determine whether the provider has complied with 39.38. In the alternative, the commenter suggests limiting a possible request to produce information to information obtained or maintained pursuant to TWHP within one calendar year before the request to produce; that the request to produce information be based on an allegation or evidence that the provider has violated section 39.38; and guaranteeing the provider 45 days to comply with the request. The commenters reasoning mirrored that of a similar comment to 39.38(d). Response: DSHS declines to revise 39.44 either to delete subsection (b) or to add the language the commenter suggests as an alternative. Either change would frustrate the States ability to audit compliance with the regulatory requirements. In addition, with respect to the suggested 45day period for a provider to produce requested information, DSHS is not aware of any legal requirement that would mandate such a policy. 39.45. Severability. Comment: A commenter suggested that the severability provision be amended to clarify which rules are severable, rather than leave the decision within DSHS discretion. Response: DSHS agrees that clarification would aid in the implementation and enforcement of the rules and will ensure the TWHP program is operated strictly in accordance with legislative intent. Specifically, DSHS believes that the rule must be clarified to assure that the program cannot be employed to fund providers that the Legislature expressly found to be unqualified to participate. Accordingly, DSHS will amend 39.45 to read as follows: (a) The Texas Legislature, in enacting Human Resources Code, 32.024(c-1), confirmed its intent that the Texas Womens Health Program, as successor to the Medicaid Womens Health Program, must be operated only in a manner that ensures: (1) that no funds spent under the program are spent to perform or promote elective abortions; and (2) compliance with the conditions specified in former Human Resources Code, 32.0248, which prohibited contracts with entities that perform or promote elective abortions and affiliates of such entities. (b) The department, as the agency responsible for administering the TWHP, is subject to the conditions specified in Human Resources Code, 32.024(c-1). Its authority to operate the program is thus strictly limited, and the department has no authority to operate the TWHP except in compliance with such conditions. (c) Sections 39.33(1) and 39.38 of this title are necessary and integral to the implementation of the requirements of Human Resources Code, 32.024(c-1), the fulfillment of legislative intent, and the achievement of the objectives of the TWHP. As such, the department regards the
provisions and application of these sections as essential aspects of the departments compliance with state law and therefore not severable from the other provisions of this subchapter. (d) Accordingly, to the extent that 39.33(1), 39.38, or this section is determined by a court of competent jurisdiction to be unconstitutional or unenforceable, or to the degree an official or employee of DSHS, the HHSC, or the State of Texas is enjoined from enforcing these sections, the department shall regard this entire subchapter as invalid and unenforceable and shall cease operation of the program. (e) To the extent that any part of this subchapter other than 39.33(1), 39.38, or this section are enjoined, DSHS or its designee may enforce the parts of the subchapter not affected by such injunctive relief to the extent that DSHS or its designee determines it can do so consistently with the legislative intent and the objectives of this subchapter. Fiscal Note Greta Rymal, Deputy Executive Commissioner for Financial Services, has determined that during the first five fiscal years this rule will be in effect, there will be a fiscal impact to state government as a result of enforcing or administering the sections as proposed. The effect on state government is an estimated cost to general revenue of $36,281,185 for state fiscal year (SFY) 2013; $43,160,381 for SFY 2014; $44,602,380 for SFY 2015; $46,090,348 for SFY 2016; and $47,649,725 for SFY 2017. The proposed new rules will not result in any fiscal implications for local health and human services agencies. Local governments will not incur additional costs as a result of enforcing or administering the sections as proposed. Public Benefit HHSC has determined that for each of the five years these new rules are in effect, the public will benefit from the adoption of these rules. The anticipated public benefit of adopting the proposed new rules will be continued access to essential women's health services. In addition, maintaining a state-funded Womens Health Program would generate cost avoidance in the Medicaid program, resulting in a projected savings to general revenue of $0 for SFY 2013; ($46,857,177) for SFY 2014; ($47,888,035) for SFY 2015; ($48,941,572) for SFY 2016; and ($49,736,854) for SFY 2017. Legal Certification The Department of State Health Services General Counsel, Lisa Hernandez, certifies that the rules, as adopted, have been reviewed by legal counsel and found to be a valid exercise of the agencies legal authority. Statutory Authority
The new sections are authorized generally by Health and Safety Code 12.001 and 1001.071, and more specifically by Health and Safety Code 31.002(a)(4)(C) and (H), 31.003, and 31.004, under which DSHS may establish a program providing primary health care services, including family planning services and health screenings, and to adopt rules governing the type of services to be provided, the eligibility of recipients, and administration of the program. In addition, Government Code 531.0055 authorizes the Executive Commissioner of the Health and Human Services Commission to adopt rules for the operation and provision of health and human services by the health and human services agencies.
TITLE 25 PART 1 CHAPTER 39 SUBCHAPTER B 39.31. Introduction.
HEALTH SERVICES DEPARTMENT OF STATE HEALTH SERVICES PRIMARY HEALTH CARE SERVICES PROGRAM TEXAS WOMENS HEALTH PROGRAM
(a) Governing rules. Notwithstanding any contrary provision in subchapter A of this chapter, this subchapter sets out rules governing the administration of the Texas Womens Health Program (TWHP) within the departments Primary Health Care Services program. (b) Authority. This subchapter is authorized generally by Health and Safety Code 12.001 and 1001.071, and more specifically by Health and Safety Code 31.002(a)(4)(C) and (H), 31.003, and 31.004, under which DSHS may establish a program providing primary health care services, including family planning services and health screenings, and to adopt rules governing the type of services to be provided, the eligibility of recipients, and administration of the program. (c) Objectives. As reflected in several enactments of the Texas Legislature (including, but not limited to, 32.024(c-1), Human Resources Code), the TWHP is established to achieve the following overarching objectives: (1) To implement the state policy to favor childbirth and family planning services that do not include elective abortion or the promotion of elective abortion within the continuum of care or services; (2) To ensure the efficient and effective use of state funds in support of these objectives and to avoid the direct or indirect use of state funds to promote or support elective abortion; (3) To reduce the overall cost of publicly-funded health care (including federally-funded health care) by providing low-income Texans access to safe, effective services that are consistent with these objectives; and (4) To the extent permitted by the Constitution of the United States and in addition to the restrictions imposed by this subchapter, to enforce 32.024(c-1), Human Resources Code, and any other state law that regulates delivery of non-federally funded family planning services. 39.32. Non-entitlement and Availability. (a) No entitlement. This subchapter does not establish an entitlement to the services described in this subchapter. (b) Fund availability. The services described in this subchapter are subject to the availability of appropriated funds.
39.33. Definitions. The following terms, when used in this subchapter, have the following meanings unless the context clearly indicates otherwise. (1) Affiliate-(A) An individual or entity that has a legal relationship with another entity, which relationship is created or governed by at least one written instrument that demonstrates: (i) common ownership, management, or control; (ii) a franchise; or (iii) the granting or extension of a license or other agreement that authorizes the affiliate to use the other entity's brand name, trademark, service mark, or other registered identification mark. (B) The written instruments referenced in subparagraph (A) of this paragraph may include a certificate of formation, a franchise agreement, standards of affiliation, bylaws, or a license, but do not include agreements related to a physicians participation in a physician group practice, such as a hospital group agreement, staffing agreement, management agreement, or collaborative practice agreement. (2) Applicant--A woman applying to receive services under TWHP, including a current recipient who is applying to renew. (3) Budget group--Members of a household whose needs, income, resources, and expenses are considered in determining eligibility. (4) Client--A woman who receives services through TWHP. (5) Corporate entity--A foreign or domestic non-natural person, including a for-profit or nonprofit corporation, a partnership, and a sole proprietorship. (6) Covered service--A medical procedure for which TWHP will reimburse an enrolled health-care provider, as listed in 39.39 of this title (relating to Covered Services). (7) DSHS--The Department of State Health Services. (8) Elective abortion--The intentional termination of a pregnancy by an attending physician who knows that the female is pregnant, using any means that is reasonably likely to cause the death of the fetus. The term does not include the use of any such means: (A) to terminate a pregnancy that resulted from an act of rape or incest; (B) in a case in which a woman suffers from a physical disorder, physical disability, or physical illness, including a life-endangering physical condition caused by or arising from the
pregnancy, that would, as certified by a physician, place the woman in danger of death or risk of substantial impairment of a major bodily function unless an abortion is performed; or (C) in a case in which a fetus has a severe fetal abnormality, meaning a life-threatening physical condition that, in reasonable medical judgment, regardless of the provision of lifesaving treatment, is incompatible with life outside the womb. (9) Family planning services--Educational or comprehensive medical activities that enable individuals to determine freely the number and spacing of their children and to select the means by which this may be achieved. (10) Health-care provider--A physician, physician assistant, nurse practitioner, clinical nurse specialist, certified nurse midwife, federally qualified health center, family planning agency, health clinic, ambulatory surgical center, hospital ambulatory surgical center, laboratory, or rural health center. (11) Health clinic--A corporate entity that provides comprehensive preventive and primary health care services to outpatient clients, which must include both family planning services and diagnosis and treatment of both acute and chronic illnesses and conditions in three or more organ systems. The term does not include a clinic specializing in family planning services. (12) TWHP--Texas Women's Health Program. (13) TWHP provider--A health-care provider that performs covered services. 39.34. Client Eligibility. (a) Criteria. A woman is eligible to receive services through TWHP if she: (1) is 18 through 44 years of age, inclusive; (2) is not pregnant; (3) is not sterile, infertile, or unable to get pregnant because of medical reasons; (4) has countable income (as calculated under 39.36 of this title (relating to Financial Eligibility Requirements)) that does not exceed 185 percent of the Federal Poverty Level, as published annually in the Federal Register by the United States Department of Health and Human Services; (5) is a United States citizen, a United States national, or an alien who qualifies under 39.35(h) of this title (relating to Application Procedures); (6) resides in Texas;
(7) does not currently receive benefits through a Medicaid program, Childrens Health Insurance Program, or Medicare Part A or B; (8) does not have creditable health coverage that covers the services TWHP provides, except as specified in subsection (d) of this section; (9) is not a patient at a State mental hospital as defined in Health and Safety Code, 571.003(21); and (10) is not incarcerated in any penal facility maintained under governmental authority. The term incarcerated means the involuntary physical restraint of a woman who has been arrested for or convicted of a crime. (b) Age. For purposes of subsection (a)(1) of this section, an applicant is considered 18 years of age the month of her 18th birthday and 44 years of age through the month of her 45th birthday. A woman is ineligible for TWHP if her application is received the month before her 18th birthday or the month after she turns 45 years of age. (c) Resources. DSHS or its designee does not request or verify resources for TWHP. (d) Third-party resources. An applicant with creditable health coverage that would pay for all or part of the costs of covered services may be eligible to receive covered services if she affirms, in a manner satisfactory to DSHS or its designee, her belief that a liable third party may retaliate against her or cause physical or emotional harm if she assists DSHS or its designee (by providing information or by any other means) in pursuing claims against that third party. An applicant with such creditable health coverage who does not comply with this requirement is ineligible to receive TWHP benefits. (e) Period of eligibility. A client is deemed eligible to receive covered services for 12 continuous months after her application is approved, unless: (1) the client dies; (2) the client voluntarily withdraws; (3) the client no longer satisfies criteria set out in subsection (a) of this section; (4) state law no longer allows the woman to be covered; or (5) DSHS or its designee determines the client provided information affecting her eligibility that was false at the time of application. (f) Transfer of eligibility. A woman who, when these rules becomes effective, receives services through the Medicaid Womens Health Program is automatically enrolled as a TWHP client and is eligible to receive covered services for as long as she would have been eligible for the Medicaid Womens Health Program.
39.35. Application Procedures. (a) Application. A woman, or an individual acting on the womans behalf, may apply for TWHP services by completing an application form and providing documentation as required by DSHS or its designee. (1) An applicant may obtain an application in the following ways: (A) from a local benefits office of the Health and Human Services Commission, a TWHP providers office, or any other location that makes TWHP applications available; (B) from the TWHP website; (C) by calling 2-1-1; or (D) by any other means approved by DSHS or its designee. (2) DSHS or its designee accepts and processes every application received through the following means: (A) in person at a local benefits office of the Health and Human Services Commission; (B) by fax; or (C) through the mail. (b) Processing timeline. DSHS or its designee processes a TWHP application by the 45th day after the date DSHS or its designee receives the application. (c) Start of coverage. Program coverage begins on the first day of the month in which DSHS or its designee receives a valid application. A valid application has, at a minimum, the applicants name, address, and signature. (d) Exclusive application. The TWHP application form may not be used to apply for any other programs. (e) Social security number (SSN) required. In accordance with 42 U.S.C. 405(c)(2)(C)(i), DSHS or its designee requires an applicant to provide or apply for a social security number. DSHS or its designee requests, but does not require, budget group members who are not applying for TWHP to provide or apply for an SSN. (f) Face-to-face interviews. In general, DSHS or its designee does not require an applicant to attend a face-to-face interview unless DSHS or its designee has received conflicting information related to the household membership or income that affects eligibility. An applicant may, however, request a face-to-face or telephone interview for an initial or a renewal application.
(g) Identity. An applicant must verify her identity the first time she applies to receive covered services. (h) Citizenship. If an applicant is a citizen, she must provide proof of citizenship. If the applicant, who is otherwise eligible to receive TWHP services, is not a citizen, DSHS or its designee determines her eligibility in accordance with 1 TAC 366.513 (relating to Citizenship). 39.36. Financial Eligibility Requirements. (a) Calculating countable income. Unless an applicant is adjunctively eligible as described in subsection (b) of this section, DSHS or its designee determines an applicants financial eligibility by calculating the applicants countable income. To determine countable income, DSHS or its designee adds the incomes listed in paragraph (1) of this subsection, less any deductions listed in paragraph (2) of this subsection, and exempting any amounts listed in paragraph (3) of this subsection. (1) DSHS or its designee determines countable income in accordance with 1 TAC 366.531(a) (relating to Determining Whose Income Counts). (2) In determining countable income, DSHS or its designee deducts the items set forth in 1 TAC 366.533 (relating to Allowable Income Deductions). (3) DSHS or its designee exempts from the determination of countable income the items set out in 1 TAC 366.535 (relating to Exempt Income). (b) Adjunctive eligibility. An applicant or client is considered adjunctively eligible at an initial or renewal application, and therefore financially eligible, if: (1) a member in her budget group receives benefits under the Women, Infants, and Children (WIC) supplemental nutrition program; (2) she is a member of a certified SNAP household; (3) she is in a Childrens Medicaid budget group for someone receiving Medicaid; or (4) she is receiving TANF cash or is in a TANF budget group for someone receiving TANF cash. 39.37. Denial, Suspension, or Termination of Services; Client appeals. (a) Notice and opportunity for hearing. DSHS or its designee may deny, suspend, or terminate services to an applicant or client if it determines that the applicant or client is ineligible to participate.
(b) Notice and opportunity for a fair hearing. Before DSHS or its designee finalizes the denial, suspension, or termination under subsection (a) of this section, the applicant or client will be notified and provided an opportunity for a fair hearing. (c) Appeal procedures. An applicant or client who is aggrieved by the denial, suspension, or termination of services under subsection (a) of this section may appeal the decision in accordance with Chapter 1, Subchapter C of this title (relating to Fair Hearing Procedures). An applicant or client may not appeal a decision to deny, suspend, or terminate services if the decision is the result of a decision by the State to reduce or stop funding the program. 39.38. Health-Care Providers. (a) Procedures. A TWHP provider must comply with the requirements set out in 1 TAC Chapter 354, Subchapter A, Division 1 (relating to Medicaid Procedures for Providers). (b) Qualifications. A TWHP provider must ensure that: (1) the provider does not perform or promote elective abortions outside the scope of the TWHP and is not an affiliate of an entity that performs or promotes elective abortions; and (2) in offering or performing a TWHP service, the provider: (A) does not promote elective abortion within the scope of the TWHP; (B) maintains physical and financial separation between its TWHP activities and any elective abortion-performing or abortion-promoting activity, as evidenced by the following: (i) physical separation of TWHP services from any elective abortion activities, no matter what entity is responsible for the activities; (ii) a governing board or other body that controls the TWHP health care provider has no board members who are also members of the governing board of an entity that performs or promotes elective abortions; (iii) accounting records that confirm that none of the funds used to pay for TWHP services directly or indirectly support the performance or promotion of elective abortions by an affiliate; and (iv) display of signs and other media that identify TWHP and the absence of signs or materials promoting elective abortion in the providers location or in the providers public electronic communications; and (C) does not use, display, or operate under a brand name, trademark, service mark, or registered identification mark of an organization that performs or promotes elective abortions.
(c) Defining promote. For purposes of subsection (b) of this section, the term promote means advancing, furthering, advocating, or popularizing elective abortion by, for example: (1) taking affirmative action to secure elective abortion services for a TWHP client (such as making an appointment, obtaining consent for the elective abortion, arranging for transportation, negotiating a reduction in an elective abortion provider fee, or arranging or scheduling an elective abortion procedure); however, the term does not include providing upon the patients request neutral, factual information and nondirective counseling, including the name, address, telephone number, and other relevant information about a provider; (2) furnishing or displaying to a TWHP client information that publicizes or advertises an elective abortion service or provider; or (3) using, displaying, or operating under a brand name, trademark, service mark, or registered identification mark of an organization that performs or promotes elective abortions. (d) Compliance information. Upon request, a TWHP provider must provide DSHS or its designee with all information DSHS or its designee requires to determine the provider's compliance with this section. (e) Provider disqualification. If, after the effective date of this section, DSHS or its designee determines that a TWHP provider fails to comply with subsection (b) of this section, DSHS or its designee will disqualify the provider from TWHP. (f) Client assistance and recoupment. If a TWHP provider is disqualified, DSHS or its designee will take appropriate action to: (1) assist a TWHP client to find an alternate provider; and (2) recoup any funds paid to a disqualified provider for TWHP services performed during the period of disqualification. (g) Certification. Upon initial application for enrollment in the TWHP, a provider must certify its compliance with subsection (b) of this section and any other requirement specified by DSHS or its designee. Each provider enrolled in TWHP must annually certify that the provider complies with subsection (b) of this section. (h) Exemption from initial certification. The initial application requirement of subsection (g) of this section does not apply to a provider that certified and was determined to be in compliance with the requirements of the Womens Health Program administered by the Health and Human Services Commission pursuant to 32.024(c-1), Human Resources Code. 39.39. Covered Services. A client may receive the following services through TWHP: (1) annual family planning exam and Pap test;
(2) follow-up visits related to the chosen contraceptive method; (3) counseling on specific methods and use of contraception (as part of evaluation and management services), including natural family planning and excluding emergency contraception; (4) female sterilization; (5) follow-up visits related to sterilization, including procedures to confirm sterilization; (6) family-planning services as listed in the Texas Medicaid Provider Procedures Manual, including: (A) pregnancy tests; (B) sexually transmitted infection (STI) screenings; (C) treatment of certain STIs; (D) contraceptive methods; and (7) lab services related to a service listed in paragraphs (1) - (6) of this section. 39.40. Non-covered Services. TWHP does not cover: (1) counseling on and provision of abortion services; (2) mammography and diagnostic services for breast cancer; (3) treatment for any condition diagnosed during a TWHP visit, other than a sexually transmitted infection for which treatment is a covered service; (4) a visit for a pregnancy test only; (5) a visit for a sexually transmitted infection test only; (6) a follow-up after an abnormal Pap test; (7) counseling on and provision of emergency contraceptives; or (8) other visits that cannot be appropriately billed with a permissible procedure code. 39.41. Reimbursement.
(a) Reimbursement. Services provided through TWHP will be reimbursed in accordance with Title 1, Texas Administrative Code (TAC), Chapter 355 (relating to Reimbursement Rates). (b) Claims procedures. A TWHP provider must comply with 1 TAC Chapter 354, Subchapter A, Division 1 (relating to Medicaid Procedures for Providers) and Division 5 (relating to Physician and Physician Assistant Services). (c) Improper use of reimbursement. A TWHP provider may not use any funds received for providing a covered service to pay the direct or indirect costs (including overhead, rent, phones, equipment, and utilities) of elective abortions. 39.42. Providers Request for Review of Claim Denial. (a) Review of denied claim. A TWHP provider may request a review of a denied claim. The request must be submitted as an administrative appeal under Title 1, Texas Administrative Code (TAC), 354.2217 (relating to Provider Appeals and Reviews). (b) Appeal procedures. The administrative appeal will be subject to the timelines and procedures set out in 1 TAC 354.2217 and all other procedures and timelines applicable to a providers appeal of a Medicaid claim denial. 39.43. Confidentiality. (a) Confidentiality required. A TWHP provider must maintain all family planning information as confidential to the extent required by law. (b) Written release authorization. Before a TWHP provider may release any information that might identify a client, the client must authorize the release in writing. (c) Confidentiality training. A TWHP providers staff (paid and unpaid) must be informed during orientation of the importance of keeping client information confidential. (d) Records monitoring. A TWHP provider must monitor client records to ensure that only appropriate staff and DSHS or its designee may access the records. (e) Assurance of confidentiality. A TWHP provider verbally must assure each client that her records are confidential and must explain the meaning of confidentiality. 39.44. Audits; Reports. (a) Compliance audits. DSHS or the Health and Human Services Commissions Office of Inspector General may audit any TWHP provider to verify compliance with any applicable law or regulation. (b) Reporting duties. A TWHP provider must submit information to DSHS or its designee as DSHS or its designee requires.
39.45. Severability. (a) The Texas Legislature, in enacting Human Resources Code 32.024(c-1), confirmed its intent that the Texas Womens Health Program, as successor to the Medicaid Womens Health Program, must be operated only in a manner that ensures: (1) that no funds spent under the program are spent to perform or promote elective abortions; and (2) compliance with the conditions specified in former Human Resources Code, 32.0248, which prohibit contracts with entities that perform or promote elective abortions and affiliates of such entities. (b) The department, as the agency responsible for administering the TWHP, is subject to the conditions specified in 32.024(c-1). Its authority to operate the program is thus strictly limited, and the department has no authority to operate the TWHP except in compliance with such conditions. (c) Sections 39.33(1) of this title (relating to Definitions) and 39.38 of this title (relating to Health Care Providers) are necessary and integral to the implementation of the requirements of 32.024(c-1), the fulfillment of legislative intent, and the achievement of the objectives of the TWHP. As such, the department regards the provisions and application of these sections as essential aspects of the departments compliance with state law and therefore not severable from the other provisions of this title. (d) Accordingly, to the extent that 39.33(1) of this title, 39.38 of this title, or this section is determined by a court of competent jurisdiction to be unconstitutional or unenforceable, or to the degree an official or employee of DSHS, the Health and Human Services Commission, or the State of Texas is enjoined from enforcing these sections, the department shall regard this entire subchapter as invalid and unenforceable and shall cease operation of the program. (e) To the extent that any part of this title other than 39.33(1) of this title, 39.38 of this title, or this section are enjoined, DSHS or its designee may enforce the parts of the subchapter not affected by such injunctive relief to the extent that DSHS or its designee determines it can do so consistently with the legislative intent and the objectives of this subchapter.

Texas Women's Health Program Abortion Affiliate Rules

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TITLE 25. HEALTH SERVICES PART 1. TEXAS DEPARTMENT OF STATE HEALTH SERVICES CHAPTER 39.

TITLE 25 PART 1 CHAPTER 39 SUBCHAPTER B 39.31. Introduction.

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Texas Women&#39;s Health Program Abortion Affiliate Rules

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TITLE 25. HEALTH SERVICES PART 1. TEXAS DEPARTMENT OF STATE HEALTH SERVICES CHAPTER 39.

TITLE 25 PART 1 CHAPTER 39 SUBCHAPTER B 39.31. Introduction.

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Texas Women's Health Program Abortion Affiliate Rules

Texas Women's Health Program Abortion Affiliate Rules