Appeals & Grievances in Managed Long Term Care - CHANGES COMING MAY 1, 2018

Changes in federal Medicaid managed care regulations regarding GRIEVANCES AND APPEALS will be effective in NYS in MAY 2018.    The federal changes are in 42 CFR 438 SubPart F.  

Download this PowerPoint presentation by NYLAG EFLRP held on April 18, 2018. 

Download this Fact Sheet by NYLAG EFLRP.

I.   What is changing May 1, 2018 - Member Must Request Internal  "Plan Appeal" before request a Fair Hearing

After a Medicaid managed care or Managed Long Term Care (MLTC) plan makes an initial adverse determination to deny a request for services or to reduce or stop a service, the member has generally had the OPTION to either:


Only in one circumstance was the member REQUIRED to request a Fair Hearing immediately. That was if the plan's determination was to REDUCE or STOP a service.  Then in order to get Aid Continuing, the member HAD to request a fair hearing right away. 

Beginning May 1, 2018, the member MUST first request an Internal Appeal from the plan of an Initial Adverse Determination by the plan. Only after a decision on that internal appeal is made by the plan, called a "Final Adverse Determination" or "FAD," may the member request a FAIR HEARING.  This is true regardless of whether the plan's action is to reduce, terminate, or deny services.   And - there are new rules for when a provider or representative may request an appeal or hearing for an individual.  Click here.

AID CONTINUING -BEWARE!!!!!   If the PLAN'S action is to reduce or terminate services, then the member MUST request the internal appeal within 10 days of the date of the notice, or before the effective date of the notice, in order to be entitled to AID CONTINUING.  This is very new.  Before, the member had to request a Fair Hearing in order to receive AID CONTINUING. 

The rules apply to  APPEALS not to GRIEVANCES or COMPLAINTS. 

An Appeal is a request to review an action taken or an adverse determination made by a plan.  If your MLTC plan denies a new service or an increase in an existing service, or reduces or stops services that you already had, you have the right to appeal.   The plan's original determination is called an "Initial Adverse Determination."  For example, the plan reduces your personal care services from 12 to 8 hours/day, or denies your request to participate in the Consumer-Directed Personal Assistance Program (CDPAP), or denies your request to increase your hours of personal care services.

A grievance is a complaint you make directly with the MLTC plan about the quality of care, services or treatment you received or about communications with the plan.   A grievance is not about the scope, amount or type of service that was approved by the plan. EXAMPLES include the aide or transportation is late or doesn’t show, aide  isn’t trained well, you can’t reach your care coordinator by phone, you were treated rudely, or you disagree with the plan's decision to extend its time frame to decide your request for new or increased services.  42 CFR 438.404(c).  See more about the time frames for plan to approve or deny your request for new or increased services here.      See more about GRIEVANCES here.

II.  NYS Dept. of Health Webpages and Fact Sheets On the New Exhaustion Requirement - and NEW MODEL NOTICES

"Initial Adverse Determination" or IAD - The plan's initial decision, from which member must request an  internal "Plan Appeal."

"Final Adverse Determination" or FAD - The plan's final decision after the internal "Plan Appeal," from which member may request a Fair Hearing and/or an External Appeal)

Denial Notice - Denying or partially denying the appeal of the plan's initial denial of a new service or of an increase in a service

Extension Notice - Plan must send this notice if it extends its time to review the appeal for up to 14 additional days.  

See other notices on the State website.

III.    New "PLAN APPEAL" - Must request Internal Appeal First - and Wait for Decision - Before Requesting a Fair Hearing


If the plan's "Initial Adverse Determination"  is to REDUCE or STOP services, you must request the appeal within 10 days of the date of the notice, or before the EFFECTIVE DATE of the notice, which must be at least 10 days after the date of the notice.   Otherwise you will not receive AID CONTINUING.   

NOTE:  You are entitled to Aid Continuing even if the authorization period for the service has expired, or after you have transitioned to the plan from fee for service home care..  See this discussion

If the plan's "initial adverse determination"  is not a reduction, but denies a new service, or denies an increase in an existing service, or authorizes a service in less than the amount you requested, after April 1, 2018 the member will have 60 calendar days to request an internal appeal, from the date of the notice.  This is an increase from 45 days under the old rules before May 1, 2018.

You MAY request an internal appeal if the plan misses the deadline to decide your request for new services or for increased services.   Federal regulations specifically state that this constitutes a denial which can be appealed.  42 CF.R. 438.404(c)(5). These deadlines are explained in this article.


You may either:

       Call the member services phone number of your plan.  The federal regulations require you to confirm an ORAL request in WRITING unless you request that your appeal be "expedited" (Fast Track).  See more about Fast Track appeals in #3 below.  42 C.F.R. 438.406(b)(3) The date of the oral appeal must be considered the filing date of the appeal for purposes of Aid Continuing and the statute of limitations.  Id. 

       FAX the request -  fax number should be on the NOTICE received from the plan.  Use the Appeal Request Form that should be part of the NOTICE from the plan (part of this PDF).   

       E-mail the request -- the e-mail address should be on the NOTICE received from the plan.  Attach the Appeal Request Form form that should be part  of the NOTICE from the plan (part of this PDF).

        Write to your plan.  Write to Member Services return receipt requested and write APPEAL REQUEST on the envelope and on the letter.  Make sure you include your Member ID number, name, address, Medicaid number, phone number, and the reasons for your appeal.  The Appeal Request Form that should be attached to the plan's notice contains all of this information.

We will post fax numbers, e-mails, telephone numbers, and addresses as soon as they are available for each plan in this article.  They are not available as of January 30, 2018.  State DOH  is requiring plans to provide fax and phone numbers and mailing address.  They suggest but are not requiring plans to provide email addresses or an online portal. 

IF YOU NEED HELP REQUESTING APPEAL - The plan must give enrollees "any reasonable assistance in completing forms and taking other procedural steps relating to a grievance or appeal.  This includes, but is not limited to, auxiliary aids and services upon request, such as providing interpreter services and toll-free numbers that have TTY/TTD and interpreter capability.  42 CFR 438.406(a). 

C.   Who May Request the Internal Appeal for the Member?

The federal regulation  says,  "If State law permits and with the written consent of the enrollee, a provider or an authorized representative may request an appeal or file a grievance, or request a State fair hearing, on behalf of an enrollee."    § 438.402(c)(1)(ii).  Arguably, this language requires the member to give written consent for a representative to file an appeal request, which could delay filing a request with disastrous consequences -- the client could miss the deadline to request Aid Continuing

To prevent problems, we recommend having a member pre-designate a person or organization to request appeals when needed.  See this suggested form and read tips about using it

In  the preamble to the regulations, CMS states,   “…we defer to state determinations regarding the design of their grievance and appeal system; state law could vary regarding who the state recognizes as an authorized representative.”  81 Fed. Reg. at 27510.  New York has always been expansive in permitting family or representatives to request the appeal, thus ensuring that the right to appeal is not unduly restricted.  For example, the OTDA  fair hearing request form allows a person requesting the hearing to  indicate whether  they are the “requester” or the “representative.”  NYS DOH's templates for model MLTC notices issued  In March 2015  state, “You can have someone you trust ask for an Internal Appeal for you.”  

ADVOCACY TIP:  Have Member Sign Form To Designate a Family Member or Representative to Request an Appeal - and Submit Form to Plan Now, BEFORE the plan takes adverse action.   

In the Model Appeal and Hearing Request Forms that the State is requiring all plans to use (Requests forms are attached in the same PDF after the model notices), the form allows someone to request the appeal on the member's behalf, without requiring the member to sign the request form,  if the member has authorized the person with the plan before.  Here is a suggested authorization form, developed by NYLAG EFLRP, by which a member may pre-designate a family member, lawyer, social worker, or ICAN to act on her behalf - or to authorize someone to act.  We suggest that these be completed, signed and provided to the care manager for the client's file, so that in the event the plan later takes an adverse action, the designated person, attorney, etc. may request the appeal without being delayed by the need to get the client's signature.  

TIPS on completing the managed care authorization form:

D.    Right to Request Expedited or "Fast Track" Appeal

You or your provider have the right to request an expedited or "Fast Track"  appeal.   The plan must expedite its appeal decision if it determines (for an appeal request made by the member) or if the provider indicates (if the provider is requesting the appeal on the enrollee's behalf or supporting the enrollee's appeal)  that "taking the time for a standard resolution could seriously jeopardize the Enrollee’s life, physical or mental health or ability to attain, maintain or regain maximum function."   42 CFR 438.410.

The Appeal Request Form that plans should send with adverse notices has a check-off for requesting a Fast Track Appeal.  


F.   WHEN and with what NOTICE Must Plan Decide INTERNAL APPEAL?

  1.  STANDARD APPEAL  -The plan must decide a standard appeal within 30 calendar days of receipt of the appeal request, subject to extension by up to 14 days on the enrollee's request or if the plan shows the State, upon request, that additional information is needed and how the delay is in the enrollee's request.  42 CFR 438.408(b)(2), (c)

  2.  FAST TRACK or EXPEDITED APPEAL - The Plan must decide an expedited appeal within  72 hours after the plan receives the appeal, subject to same extension of up to 14 days as for standard appeals, above.  42 CFR 438.408(b)(3).  Plan must make a reasonable effort to give oral notice for expedited appeals and must send written notice within 2 business days of decision for all appeals

If the plan has extended the time for it to decide an appeal, -- see  Extension Notice -- it must make reasonable efforts to give the enrollee prompt oral notice of the delay, and within 2 calendar delays give the enrollee writeen notice of the reason for the delay and of the right to file a grievance about the delay.  The plan must resolve the appeal "as expeditiously as the enrollee's health condition requires and no later than the date the extension expires."  42 CFR 438.408(c)(2). 

NEW MODEL NOTICE -- Final Adverse Determination - State DOH is requiring plans to use this template for its Internal Appeal decision  wholly or partially affirming an Initial Adverse Determination that reduces services.  Notice includes a Fair Hearing Request Form and information about the right to request an External Appeal. .

IV.  "DEEMED EXHAUSTION" - Member May Request a Fair Hearing without Internal Appeal if Plan Failed to Meet Notice and Timing Requirements

The regulations provide for an exception to the "exhaustion" requirement.  Where the managed care plan “fails to adhere to the notice and timing requirements of sec. 438.408, the enrollee is deemed to have exhausted the [managed care plan'] … appeals process.  The enrollee may initiate a State fair hearing.”  42 CFR 438.402(c)(1)(A).

This regulation requires the State  to establish policies for defining where deemed exhaustion applies.  Both state agencies -- OTDA and DOH  - must revise their procedures and forms to elicit facts that demonstrate whether deemed exhaustion applies. 

Consumers contend that deemed exhaustion should be defined to apply in cases including but not limited to:

V.    RIGHT TO REQUEST FAIR HEARING after Adverse Internal Appeal Decision  ("Final Adverse Determination")

If the plan wholly or partly denies the Internal Appeal, the plan will issue a "Final Adverse Determination" notice.  See the NEW MODEL NOTICE -- Final Adverse Determination - State DOH is requiring plans to use this template for its Internal Appeal decision  wholly or partially affirming an Initial Adverse Determination that reduces services.  Notice includes a Fair Hearing Request Form and information about the right to request an External Appeal.

AID CONTINUING ALERT - If the plan's Initial Adverse Determination was a proposed reduction of services, and the plan denied the appeal - in whole or in part - then the member has the right to request a Fair Hearing with Aid Continuing.  Again, the member must meet the short deadline to request the Fair hearing within 10 days of the date of the Final Adverse Determination notice  or before the effective date of that notice.  Otherwise the member will not receive AID CONTINUING - even if the member obtain aid continuing on the internal appeal requested with the plan.

AID CONTINUING rights apply even if plan reduces services:

MLTC Policy 14.05: Aid-continuing

MLTC Policy 14.05(a): Proper Handling of Enrollees´ Request for Fair Hearing 

NEW 120-DAY TIME LIMIT TO REQUEST FAIR HEARING - the new federal regulations allow 120 calendar days to request a fair hearing., from the date of the Final Adverse Determination (the plan's internal appeal decision).  This is longer than the previous limit of 60 days.  42 CFR 438.408

How to request a Fair Hearing  - See this link to OTDA website.   Fax requests are recommended since you can keep proof of fax.  IF there is an Aid Continuing deadline, phone call or fax is recommended.

See WNYLC website on NY Fair Hearings

VI.  OPTIONAL External Appeal  -- After Internal Appeal - Instead of or in addition to Fair Hearing

The plan’s notice denying your Internal Appeal will explain your right to request an External Appeal, if the reason for the denial is because they determine the service is not medically necessary or is experimental or investigational.   You may request an External Appeal even if you also request a Fair Hearing.   External Appeals are reviewed by a different State agency than Fair Hearings.  If you request both an External Appeal and a Fair Hearing, the decision from your Fair Hearing will be the one that is followed by your plan.  NY Public Health Law 4910


How to Request a Complaint

You or someone you have authorized on your behalf can file a complaint with the plan in writing, over the phone or in person.   Your member handbook or member services representative should explain how to file the complaint.

For most plans, one requests a complaint or appeal by calling the member services telephone line.  A consumer must be assertive in requesting that they be referred to file a Grievance or Appeal, and know the difference.  Otherwise, the call may never be routed correctly.

TIMING:  The plan must decide your grievance within 90 days after receiving the grievance. 42 CFR 438.408(b).  . 

If you are not satisfied with how your grievance is handled, or it is an emergency, you can also call the State Department of Health MLTC Complaint Hotline at 1-866-712-7197.



MLTC Policy 13.01 REVISED: Transition of Care for Fee for Services Participants in Mandatory Counties dated Feb. 6, 2013 --  further clarifies a previous  Jan. 17, 2013 Directive  -

Both the Jan. 17th and Feb. 6th directives remind MLTC plans that they are required to continue previously authorized long-term care services unchanged for 60 days when a consumer initially transfers into MLTC plans. This is called the Transition Period, required in the CMS Special Terms and Conditions approving the MLTC Waiver. p. 17 par. 28(d).  These directives remind plans of their obligation to provide notice before reducing services at the end of the 60-day transition period.  They must continue services unchanged during the internal appeal and until a hearing is decided, known as “Aid Continuing,” when a member appeals the plan's proposed reduction e or terminate a service.  

The directive states: 

This means that, for any individual receiving fee for service Medicaid community based long term
services and supports and enrolling under any circumstance, the plan must provide 60 days of continuity
of care. Further, if there is an appeal or fair hearing as a result of any proposed Plan reduction,
suspension, denial or termination of previously authorized services, the Plan must comply with the aid
to continue requirement identified above. In particular, if the enrollee requests a State fair hearing to
review a Plan adverse determination, aid-to-continue is to be provided until the fair hearing decision is
The revised directive of Feb. 6th clarifies that the requirement to continue past services unchanged for the first 60 days of MLTC enrollment applies to these services: 


Federal  Regulations - 42 CFR Part 438 Subpart F

NYS DOH Model Contract -Partial Capitation Plans - Appendix K


NYS Public Health Law § 4403, 4403-f

CMS Special Terms and Conditions approving the MLTC Waiver (amended Sept. 2012) 

NYS DOH MLTC Policy 13.01 REVISED: Transition of Care for Fee for Services Participants in Mandatory Counties dated Feb. 6, 2013

MLTC Policy 16.06: Guidance on Notices Proposing to Reduce or Discontinue Personal Care Services or Consumer Directed Personal Assistance Services


Government Hotlines

NYS Department of Health MLTC Complaint Hotline      
(866) 712-7197
New York Medicaid Choice (for enrollment problems)                 
(888) 401-6582
Fair Hearing Requests (must wait until after internal appeal decision)
(800) 342-3334


 ICAN - Statewide Ombudsprogram for MLTC and Managed Care
(844) 614-8800 
 Legal Aid Society Health Law Helpline NYC                                   
(212) 577-3575
      Outside NYC   
(888) 500-2544
Empire Justice Center
(585) 454-6500
Find other organizations throughout NYS (by zip code or population)

ADVOCATES for New York City Only

New York Legal Assistance Group                                                                          
(212) 613-7310 
Cardozo Bet Tzedek Legal Services                                                                         
(212) 790-0240
CIDNY - Center for Independence of the Disabled NY                            
(212) 674-1300
Services for people Age 60+ by Borough:
                Legal Aid Society Brooklyn Office for the Aging   
(718) 645-3111
                JASA/ Queens Legal Services for the Elderly            
(718) 286-1500
                Bronx Legal Services
(718) 928-3700
                Manhattan Legal Aid for Seniors Project - Above 110th Street
(212) 822-8300
                                                        Senior Intake Line -  Below 110th Street            
(212) 417-3880
                Staten Island                                                                                                          
(718) 233-6480

NOTE:  Some of the organizations listed above give only advice, not legal representation.


There are other organizations who can provide non-legal advocacy assistance, such as independent living centers.  For a list of local centers, visit

Article ID: 184
Last updated: 25 Apr, 2018
Revision: 34
Medicaid -> Appeals & Grievances in Managed Long Term Care - CHANGES COMING MAY 1, 2018