For decades, the federal government has attempted to address concerns
over the quality of nursing home care in the U.S. It was only recently,
though, that federal law included reporting requirements with sanctions
for crimes against the elderly.
Since 2010, federal law has required
nursing home providers to report the reasonable suspicion of a crime
against residents to police and state oversight agencies, which in
Pennsylvania includes the departments of Health, Aging and Adult
Protective Services.
Reports to the state Health Department are
confidential to encourage self-reporting. But a Reading Eagle review of
state inspections over the past three years found many suspected abuse
cases go unreported.
With 10,000 Americans turning 65 each day and studies
showing as many as 1 in 10 seniors nationally have been a victim, elder
abuse is a problem that is only expected to grow.
Advocates worry
unreported crimes will likely be repeated, putting nursing home
residents at greater risk. And industry leaders expressed concern that
police don't investigate when nursing homes do report suspected abuse to
law enforcement.
The pressing question then, is: Can anything be done about it?
Although
single solutions alone are unlikely to significantly improve reporting,
generally accepted strategies include greater oversight and
enforcement, police training and better state laws that make the entire
process more open and transparent.
But it all starts with nursing homes complying with federal law.
"If
facilities aren't reporting these events immediately, it ties the hands
of the police," said Sam Brooks, an attorney with Community Legal
Services in Philadelphia.
'Something terrible is going on'
The
penalties for not reporting are already stiff, with fines up to
$300,000 and exclusion from federal participation in health care
programs.
However, neither the Centers for Medicare and Medicaid Services, CMS, nor the state Health Department have penalized nursing homes for failing to report abuse.
The reason?
In
August, the U.S. Department of Health and Human Services' Office of the
Inspector General determined that CMS "has inadequate procedures to
ensure that incidents of potential abuse or neglect of Medicare
beneficiaries residing in (Skilled Nursing Facilities) are identified
and reported."
Advocates for the elderly found the report troubling and called into question the Health Department's oversight role.
"The magnitude of this report is just stunning," Brooks said. "CMS has done nothing to enforce it. This is scandalous."
The
Inspector General's report identified more than 100 incidents of
potential neglect and abuse nationally. To do so, auditors matched
emergency room data with Medicare reimbursements to find suspected
nursing home abuse cases hidden in medical payments.
Five cases
were flagged in Pennsylvania and referred to the state attorney
general's office. Joe Grace, spokesman for Attorney General Josh
Shapiro, did not respond to multiple calls and emails seeking comment
about the referred cases.
"They haven't taken any enforcement
actions because the DHHS secretary didn't delegate the authority yet,"
said Dave Lamir, a regional inspector general who worked the team of
auditors that produced the report. "They didn't identify anything
because they don't conduct a data match like we did."
The report
determined that CMS needs to beef up procedures that identify potential
abuse and neglect, specifically using a data match similar to the one
their auditors employed.
Because the entire process in
Pennsylvania - from the initial report through the investigation - is
undisclosed, it cannot be independently scrutinized to know whether the
system is protecting nursing home residents.
Researchers and
advocates alike said it was unconscionable that state regulations could
shield information on nursing home abuse from the public.
"They
don't want to release the data because it's going to be obvious when you
get the data that something terrible is going on," said Charlene
Harrington, a University of California at San Francisco professor
emeritus of sociology and nursing who has studied the industry for
decades.
Harrington added, "They're trying to hide the fact that they're not doing their job."
'A right to know'
While
state Health Department officials here worry that without
confidentiality nursing homes won't comply with federal law, California
has posted the outcomes of its substantiated investigations online since
2015.
The agency has not ever had "a concern that facilities would
stop self-reporting incidents" if made public, according to the
California Department of Public Health.
Many of the biggest
nursing home chains in Pennsylvania - Genesis Healthcare, ManorCare and
GoldenLiving - also operate in California, where this information is
released to the public.
Retired California state Sen. Elaine
Alquist sponsored much of the legislation that overhauled nursing home
oversight in the Golden State, including the creation of a system for
timely reporting, stiffer penalties and public access.
"In the
law, there needs to be a more defined link between nursing home abuse
and public safety," Alquist said. "The public needs to know who the bad
apples are."
In Pennsylvania, state law doesn't permit releasing
information on abuse reports - even aggregated tallies - effectively
leaving the public in the dark about what nursing homes are and are not
doing to protect residents.
For Alquist, statewide aggregated report totals aren't enough.
"You
need actionable information," Alquist said. "The public has a right to
know. We're talking about an extremely vulnerable population."
Neither
Acting Pennsylvania Health Secretary Rachel Levine nor Aging Secretary
Teresa Osborne would comment for this story on whether they favored
greater transparency and supported changes in state law.
In
speaking for both agencies, Health Department spokeswoman April
Hutcheson, though, said in statement to the newspaper that they support
the General Assembly updating laws that better protect seniors.
"Wholesale
culture change begins with education, enforcement of regulations and
evaluating our current regulations, all which is underway," Hutcheson
said in an email to the Eagle. "Legislation and regulation alone will
not improve nursing homes, but working together will."
Last year,
the nursing home task force and auditor general both recommended
revising current regulations, which haven't been updated in nearly four
decades. Despite being pressed on its status, Hutcheson declined to
elaborate.
State Sens. Judy Schwank of Ruscombmanor Township and
Art Haywood of Montgomery County, both Democrats who sit on the state
Senate Health and Human Services Committee, said the reporting and
transparency issues the Eagle has raised deserve further investigation.
State
Rep. Mark M. Gillen, who is a co-sponsor of a House bill this session
that would amend the statute addressing neglect of a care-dependent
person, said any reform effort would require collaboration and resources
for more effective deterrence, reporting and prosecution.
"Pennsylvania
is graying," the Robeson Township Republican said. "I think we're long
overdue for a more surgical examination of our caregiver facilities so
that the tragedies of yesteryear don't repeat themselves."
'Shake the trees'
When
it comes to protecting elders from abuse, there are a number of
impediments at each step in the process, but none more frustrating than
police inaction.
"The police don't do anything when we call," said
Eric Kiehl, a spokesman for the Pennsylvania Health Care Association, a
statewide member organization for nursing homes. "We can't do the
investigation."
Although the Berks County district attorney's
office does not have a designated elder abuse unit, per se, it does have
two detectives and an assistant DA working these cases.
Fewer
than 10 cases a year in Berks stem from elder abuse investigations. Most
referrals, Berks DA John T. Adams said, come through the Berks County
Area Agency on Aging.
The reason more are not prosecuted -
advocates and those in law enforcement agree - are the inherent
challenges that come with elder abuse cases.
"Many times we're
dealing with individuals who may have been found not to be competent or
have a guardian appointed," Adams said. "Those are very difficult
cases."
Because the district attorney's office is not the
responding agency, mounting a prosecution hinges on the decisions made
by local law enforcement, some of which are not 24-7 responders, let
alone trained in how to handle elder abuse cases.
The San Diego
County district attorney tapped Paul Greenwood, now a nationally
recognized expert and in-demand speaker on elder abuse, to head up an
elder abuse unit in 1996. He started first by talking to police officers
and sheriff's deputies, asking why they didn't refer any cases for
prosecution.
Before long, a familiar refrain emerged: the elderly just don't make good witnesses.
After
two decades and 500 felony prosecutions, Greenwood blames police
reluctance on a lack of training and laziness. Police and prosecutors
often find other cases more attractive.
"I think this is where the
elected district attorneys of Pennsylvania need to become much more
proactive and not just expect these cases to fall in their lap, because
they don't," Greenwood said.
The way Greenwood sees it, combating this requires prosecutors to take the initiative."We've got to be the ones to shake the trees," he said.
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Failing Care: Ensuring crimes against nursing home residents are reported