The U.S. Supreme Court Decision on the Affordable Care Act

1. The U.S. Supreme Court Decision on the Affordable Care Act University of Oklahoma College of Law Faculty half-baked ideas summer luncheon series, Norman, Oklahoma, July 24, 2012 Professor Jon Forman, moderator

2. Affordable Care Act Coverage Provisions http://allhealth.org/briefingmaterials/MusumeciSlides-2326.pdf

3. Key Provisions • In 2010, Congress enacted the Patient Protection and Affordable Care Act (ACA). • The individual mandaterequires most Americans to maintain “minimum essential” health insurance coverage. 26 U. S. C. §5000A • Beginning in 2014, those who do not comply with the mandate must make a “[s]hared responsibility payment” to the Federal Government. • Payments are to be collected by the Internal Revenue Service • The Affordable Care Act expands the scope of the Medicaid program and increases the number of individuals the States must cover. • if a State does not comply with the Act’s new coverage requirements, it may lose not only the federal funding for those requirements, but all of its federal Medicaid funds. §1396c.

4. The Road to the Supreme Court • At least 26 cases filed in federal district courts: 2 struck down mandate, 24 have not • Decisions from 7 federal appeals courts: 1 struck down mandate, 6 did not • Fl. v. HHS accepted by the Supreme Court

5. What Was/Is At Stake? • Individual Mandate • Medicaid Eligibility Expansion • The entire Affordable Care Act, including: • Health insurance market reforms • Health insurance exchanges • Employer responsibility provisions • Tax subsidies for premiums and cost-sharing • Medicare benefits expansion, payment reductions • Delivery system reforms • Public Health and Prevention Fund • Health care workforce expansions • Transparency and program integrity provisions

6. Four Questions Reviewed • Does the Anti-Injunction Act preclude a decision at this point in time? • Is the individual mandate to have health insurance constitutional? • Is the mandated expansion of Medicaid constitutional? • Can any part of the ACA survive if the individual mandate is unconstitutional?

7. The Anti-Injunction Act • Question: Is the individual mandate’s monetary sanction a tax or a penalty? • Decision: The Anti-Injunction Act does not apply because the sanction for not complying is labeled a penalty under the Affordable Care Act and not a tax, 9-0.

8. The Individual Mandate • ACA requires individuals to have health insurance coverage beginning in 2014 • Question: Does Congress have the authority to mandate the purchase of insurance? • Commerce Clause • Necessary and Proper Clause • Authority to lay and collect taxes • Decision: The individual mandate is valid under Congress’s power to tax, 5-0

9. The Medicaid Expansion • Largest expansion of public health insurance coverage since 1965 • ACA requires participating states to cover nearly all people under age 65 at or below 133% FPL • Question: Is this a valid exercise of Congress’s spending power or coercion of states? • Decision: Federal government cannot terminate all funding for Medicaid if states don’t comply. Only new funding for expansion affected, 5-0.

10. Severability • Because the mandate is constitutional, the Court did not decide whether the mandate is severable • Four dissenting justices rejected the constitutionality of the mandate and would have invalidated the entire ACA

11. The Anti-Injunction Act • “No suit for the purpose of restraining the assessment or collection of any tax shall be maintained in any court by any person” 26 U. S. C. §7421(a), so those subject to a tax must first pay it and then sue for a refund. • ROBERTS: But Congress did not intend the payment to be treated as a “tax” for purposes of the Anti-Injunction Act. The Anti-Injunction Act and the ACA are creatures of Congress’s own creation. The ACA describes the payment as a “penalty,” not a “tax.” That label cannot control whether the payment is a tax for purposes of the Constitution, but it does determine the application of the Anti-Injunction Act. Therefore, the Anti-Injunction Act does not block this suit.

12. The Individual Mandate: Commerce Clause • The Constitution grants Congress the power to “regulate Commerce.” Art. I, §8, cl. 3 • ROBERTS: • The power to regulate commerce presupposes the existence of commercial activity to be regulated. Construing the Commerce Clause to permit Congress to regulate individuals precisely because they are doing nothing would open a new and potentially vast domain to congressional authority. • Nor can the individual mandate be sustained under the Necessary and Proper Clause as an integral part of the Affordable Care Act’s other reforms. • (The power to “make all Laws which shall be necessary and proper for carrying into Execution” the powers enumerated in the Constitution, Art. I, §8, cl. 18)

13. The Individual Mandate: Commerce Clause, dissenters • GINSBURG, SOTOMAYOR, BREYER, and KAGAN: • Aware that a national solution was required, Congress could have taken over the health-insurance market by establishing a tax-and-spend federal program like Social Security. • The decision to forgo insurance is hardly inconsequential or equivalent to “doing nothing.” Everyone will, at some point, consume health-care products and services. • Requiring individuals to obtain insurance unquestionably regulates the interstate health-insurance and health-care markets. • Reviewed with appropriate deference, the minimum coverage provision, allied to the guaranteed-issue and community-rating prescriptions, should survive measurement under the Commerce and Necessary and Proper Clauses.

14. The Individual Mandate: Power to lay and collect Taxes • Congress has the power to “lay and collect Taxes.” Art. I, §8, cl. 1. • The Affordable Care Act describes the “[s]hared responsibility payment” as a “penalty,” not a “tax.” That label is fatal to the application of the Anti-Injunction Act. It does not, however, control whether an exaction is within Congress’s power to tax. In answering that constitutional question, this Court follows a functional approach, “disregarding the designation of the exaction, and viewing its substance and application.” • The duck test: If it walks like a duck and quacks like a duck, it’s a duck!

15. The Individual Mandate: Direct Tax Clause • Even if the mandate may reasonably be characterized as a tax, it must still comply with the Direct Tax Clause, which provides: “No Capitation, or other direct, Tax shall be laid, unless in Proportion to the Census or Enumeration herein before directed to be taken.” Art. I, §9, cl. 4. • A tax on going without health insurance is not like a capitation or other direct tax under this Court’s precedents. It therefore need not be apportioned so that each State pays in proportion to its population.

16. The Individual Mandate: Power to lay and collect Taxes, Dissenters • SCALIA, KENNEDY, THOMAS, and ALITO • Eighteen times in §5000A itself and else- where throughout the Act, Congress called the exaction in§5000A(b) a “penalty.” • Against the mountain of evidence that the minimum coverage requirement is what the statute calls it—a requirement—and that the penalty for its violation is what the statute calls it—a penalty—the Government brings forward the flimsiest of indications to the contrary. • The mandate is a penalty not a tax.

17. The Medicaid Expansion • ROBERTS, BREYER, and KAGANconcluded that the Medicaid expansion violates the Constitution by threatening States with the loss of their existing Medicaid funding if they decline to comply with the expansion. • The Spending Clause grants Congress the power “to pay the Debts and provide for the . . . general Welfare of the United States.” Art. I, §8, cl. 1. • Congress may use this power to establish cooperative state-federal Spending Clause programs. The legitimacy of Spending Clause legislation, however, depends on whether a State voluntarily and knowingly accepts the terms of such programs.

18. The Medicaid Expansion, cont. • Section 1396c gives the Secretary of Health and Human Services the authority to penalize States that choose not to participate in the Medicaid expansion by taking away all of their existing Medicaid funding. 42 U. S. C. §1396c. • But the expansion accomplishes a shift in kind, not merely degree. When pressure turns into compulsion, the legislation runs counter to our system of federalism. • The constitutional violation is fully remedied by precluding the Secretary from applying §1396c to withdraw existing Medicaid funds for failure to comply with the requirements set out in the expansion. See §1303. • The other provisions of the Affordable Care Act are not affected. Congress would have wanted the rest of the Act to stand, had it known that States would have a genuine choice whether to participate in the Medicaid expansion.

19. The Medicaid Expansion, cont. • GINSBURG & SOTOMAYOR believe that the Spending Clause does not preclude the Secretary from withholding all Medicaid funds based on a State’s refusal to comply with the expanded Medicaid program. But given the majority view, they agrees with ROBERTS’ conclusion as to the appropriate remedy.

20. Implementation Issues Going Forward • Will states be ready to establish exchanges by 2014? • Will states accept the enhanced federal funding available to comply with the Medicaid Expansion? • What coverage options will exist for uninsured adults in states that do not comply with the Medicaid expansion? • What guidance on implementing the ACA will the Administration provide in light of the Court’s decision? • Will Congress act to amend the ACA? http://allhealth.org/briefingmaterials/MusumeciSlides-2326.pdf

21. Some New Taxes • In 2013: • 3.8% Surtax on Investment Income • Hike in Medicare Payroll Tax • 2.3% Excise Tax on Medical Device Manufacturers • Higher Floor for Medical Bill Deduction • $2,500 Flexible Spending Account Cap • Elimination of tax deduction for employer-provided retirement Rx drug coverage in coordination with Medicare Part D • $500,000 Annual Executive Compensation Limit for Health Insurance Executives • In 2014: • Individual Mandate Excise • Tax Employer Mandate Tax • Tax on Health Insurers