Network adequacy
Is the ghost-network problem worse for mental health, and is it a parity gap rather than just a coverage gap?
A network that looks adequate on paper often is not. A 2023 US Senate study found only 18% of calls to in-network mental-health listings led to a possible appointment and 33% of the listings were inaccurate or unreachable, the so-called ghost-network problem. Standards vary widely by state and coverage type.
The problem
The managed-care landscape often reports broad coverage while patients experience narrow or unusable networks, especially in behavioral health. For hospitals, clinicians, and regulators, the operating issue is that directory presence, appointment availability, out-of-network use, and parity compliance are not governed as one access system.
The recommendation
Treat network adequacy as an enforceable access-performance program, not a filing requirement. The recommended model is to audit directory accuracy, measure appointment availability by service line, compare behavioral health against medical-surgical access, and escalate penalties where plans repeatedly fail parity or usable-network standards.
The gap that patients hit
What happens when you try to use an in-network directory, and why mental health fails worse than physical health.
Ghost networks: what secret shoppers found
Three distinct measures of the gap between a directory that looks adequate and one that delivers care.
Read it this way All three measures land far from what a working directory should show: only 18% of calls reached an appointment, a third of listings were simply wrong, and a separate California study found 73% of calls failed to secure an appointment. These come from two different studies and geographies, so read them as three separate pieces of evidence for the same pattern rather than one consistent measurement. Use this chart to see whether the network problem is administrative, clinical, or parity-related, and why the recommendation focuses on audited access performance instead of nominal provider counts.
⊞ data table⬇ CSV
| Measure | Value (%) | Year |
|---|---|---|
| In-network mental-health calls that led to a possible appointment (Senate Finance) | 18 | 2023 |
| Directory listings inaccurate, non-working, or unreturned (Senate Finance) | 33 | 2023 |
| Calls unable to secure an appointment (California directory study) | 73 | 2023 |
US Senate Committee on Finance Ghost Network Secret Shopper Study, and California directory study via KFF · 2023 · source
Out-of-network use: behavioral health vs medical and surgical, by setting
Milliman 2017 data. Behavioral-health care is used out-of-network far more often than medical or surgical care, a sign of thin in-network behavioral panels.
Read it this way In every setting the behavioral-health bar is several times taller than its medical or surgical comparator, most sharply in outpatient facility care (31.6% vs 5.5%). As the caveat notes, out-of-network use is a proxy for thin behavioral-health networks rather than a direct denial count, so the direction of the gap is more reliable than its exact size. Use this chart to see whether the network problem is administrative, clinical, or parity-related, and why the recommendation focuses on audited access performance instead of nominal provider counts.
Caveat Out-of-network utilization is the standard proxy in parity research because comparable claims-level denial data is not published. Figures are 2017.
⊞ data table⬇ CSV
| Setting | Behavioral health OON (%) | Comparator OON (%) |
|---|---|---|
| Outpatient facility | 31.6 | 5.5 |
| Office visit vs primary care | 17.2 | 3.2 |
| Office visit vs specialist | 17.2 | 4.3 |
Milliman, Addiction and Mental Health vs Physical Health: Widening Disparities in Network Use · 2019 · source
Days to a new appointment: psychiatry vs primary care
Two separate surveys, not a matched sample. Psychiatry waits from a 5-state simulated-patient study (2022), primary-care wait from a 15-metro survey (2022).
Read it this way In-person psychiatry waits more than three times as long as primary care (67 vs 20.6 days), and telepsychiatry cuts that gap roughly in half (43 days) without closing it. As the caveat notes, the figures come from two separate studies with different methods and geographies, so read the gap as directional rather than a precise multiple. Use this chart to see whether the network problem is administrative, clinical, or parity-related, and why the recommendation focuses on audited access performance instead of nominal provider counts.
Caveat The psychiatry and primary-care figures come from different studies with different methods and geographies, so treat the gap as directional.
⊞ data table⬇ CSV
| Visit type | Median or average wait (days) |
|---|---|
| New psychiatry visit (in person) | 67 |
| New psychiatry visit (telepsychiatry) | 43 |
| Primary care (family medicine) | 20.6 |
General Hospital Psychiatry (2023), and AMN Healthcare 2022 Survey of Physician Appointment Wait Times · 2023 · source
The rules and whether they're enforced
The standards on paper, how strong they are by provider type and state, and whether enforcement is intensifying.
Federal maximum appointment-wait standards by provider type
ACA Marketplace (QHP) standards effective plan year 2025. Issuers must meet them at least 90% of the time.
Read it this way Behavioral health actually carries the strictest federal wait standard on paper, 10 business days, of the three provider types shown. This chart is only the rule, not whether plans actually meet it, so it can't be read alongside the ghost-network findings as proof the standard is being honored. Use this chart to see whether the network problem is administrative, clinical, or parity-related, and why the recommendation focuses on audited access performance instead of nominal provider counts.
⊞ data table⬇ CSV
| Provider type | Maximum wait (business days) |
|---|---|
| Behavioral health | 10 |
| Routine primary care | 15 |
| Non-urgent specialty care | 30 |
CMS, Network Adequacy QHP Certification (2025 Payment Notice) · 2025 · source
State primary-care adequacy standards: enrollees per provider
Maximum enrollees a plan may assign per primary-care provider. Lower is a stricter standard. Illustrative examples, only three states carried in the source.
Read it this way Tennessee allows five times as many enrollees per primary-care provider as Michigan, showing how much weaker a 'reasonable access' standard can be from state to state. Only three states are shown here, so this can't be read as a national ranking or a representative sample of state strength. Use this chart to see whether the network problem is administrative, clinical, or parity-related, and why the recommendation focuses on audited access performance instead of nominal provider counts.
⊞ data table⬇ CSV
| State | Enrollees per primary-care provider |
|---|---|
| Michigan | 500 |
| California | 2000 |
| Tennessee | 2500 |
KFF, Network Adequacy Standards and Enforcement · 2023 · source
DOL mental-health-parity violations cited, FY2019 to FY2023
DOL EBSA mental-health-parity (MHPAEA) violations cited per fiscal year. Enforcement rose sharply in FY2023.
Read it this way Violations cited hold roughly steady from FY2019 to FY2022 before nearly doubling in FY2023 (18 to 31), a sharp break from the earlier pattern. This counts violations DOL chose to cite, so the jump could reflect worsening plan behavior, intensifying enforcement, or both, and the chart alone can't separate the two. Use this chart to see whether the network problem is administrative, clinical, or parity-related, and why the recommendation focuses on audited access performance instead of nominal provider counts.
⊞ data table⬇ CSV
| Fiscal year | MHPAEA violations cited |
|---|---|
| FY2019 | 12 |
| FY2020 | 8 |
| FY2021 | 15 |
| FY2022 | 18 |
| FY2023 | 31 |
US DOL Employee Benefits Security Administration, MHPAEA Enforcement Fact Sheets FY2019 to FY2023 · 2023 · source
Parity analyses found insufficient on first submission
Share of mental-health-parity comparative analyses found insufficient on first submission. The 2023 figure is 138 insufficiency letters across 182 plans.
Read it this way Both reporting cycles found the large majority of comparative analyses insufficient on first submission, easing only from 100% to 76%, so most plans are still failing on their first try. As the caveat notes, the 2023 figure is a reconstructed ratio of 138 insufficiency letters to 182 plans reviewed, not a rate the report itself publishes. Use this chart to see whether the network problem is administrative, clinical, or parity-related, and why the recommendation focuses on audited access performance instead of nominal provider counts.
Caveat The 76% figure is the DOL ratio of 138 insufficiency letters to 182 plans reviewed. The 2023 report does not print a single top-line percentage.
⊞ data table⬇ CSV
| Reporting cycle | Found insufficient (%) |
|---|---|
| 2022 report (first cycle) | 100 |
| 2023 report (DOL, 138 of 182 plans) | 76 |
DOL, HHS, and Treasury, MHPAEA Comparative Analysis Reports to Congress (2022 and 2023) · 2023 · source
Few states set a strong quantitative adequacy standard
Only a handful of states set stronger quantitative standards. Most fall back to vague reasonable-access language with no numeric threshold.
Read it this way Only about 10 of 50 states set a numeric provider-to-enrollee standard at all, and fewer still, about 4, closely adopt the NAIC model act, so most states rely on vague reasonable-access language with no number attached. As the caveat notes, these are the only quantifiable counts available and are approximate, not an authoritative 50-state tally. Use this chart to see whether the network problem is administrative, clinical, or parity-related, and why the recommendation focuses on audited access performance instead of nominal provider counts.
Caveat These are the only quantifiable adoption counts in the source and are approximate. No authoritative 50-state tally of network-adequacy standard strength exists.
⊞ data table⬇ CSV
| Stronger standard | States (approximate) |
|---|---|
| Provider-to-enrollee ratios | about 10 |
| Full or close NAIC Model Act #74 adoption | about 4 |
KFF Network Adequacy Standards and Enforcement, and NAIC Model Act #74 · 2023 · source
Geography
The same question, state by state and then county by county. Pick a state in the filter above to drill into its counties.
Primary-care physicians per 100k
County · direct countEach tile is a state. Pick a state in the Scope control above to drill into its counties.
HRSA Area Health Resources File · 2023 · source
Hospital beds per 1,000
County · direct countEach tile is a state. Pick a state in the Scope control above to drill into its counties.
HRSA Area Health Resources File · 2023 · source
Why this matters
The regulatory patchwork does not match the severity of the problem: behavioral health actually carries the strictest federal wait-time standard on paper, 10 business days versus 30 for non-urgent specialty care, yet only about 10 of 50 states set any numeric provider-to-enrollee ratio at all, and only about 4 closely adopt the NAIC model act. Enforcement is only recently intensifying, with DOL mental-health-parity violations cited nearly doubling in FY2023 (18 to 31) after holding roughly steady for three prior years, and 76% of comparative parity analyses were still found insufficient on first submission in 2023. Leadership should care because the paper standard already exists. What's missing is verification that plans meet it.
Recommended actions
- Target annual secret-shopper directory audits as the primary enforcement mechanism, since it is the method that surfaced the 18% appointment-success rate.
- Prioritize behavioral-health directories specifically, given the sixfold out-of-network usage gap versus medical and surgical care in outpatient facility settings.
- Monitor the FY2023 jump in DOL MHPAEA violations (18 to 31) to determine whether it reflects worsening plan behavior or intensifying enforcement before drawing conclusions.
- Push states without any numeric provider-to-enrollee standard, roughly 40 of 50, toward adopting one, using Michigan's 1-per-500 standard as a reference point rather than Tennessee's 1-per-2,500.
- Track the parity-analysis insufficiency rate, 76% in 2023, each reporting cycle as the KPI for whether comparative-analysis enforcement is closing the gap.
The recommendation
Therefore, treat network adequacy as an enforceable access-performance program, not a filing requirement. The recommended model is to audit directory accuracy, measure appointment availability by service line, compare behavioral health against medical-surgical access, and escalate penalties where plans repeatedly fail parity or usable-network standards.
Demographic slice none, state Department of Insurance filings carry no patient demographic field.
Sources
- US Senate Committee on Finance, Ghost Network Secret Shopper Study Report · 2023
- KFF, Network Adequacy Standards and Enforcement · 2023
- CMS, Network Adequacy QHP Certification (2025 Payment Notice) · 2025
- NAIC, Health Benefit Plan Network Access and Adequacy Model Act (#74) · 2015
- DOL, HHS, and Treasury, MHPAEA Comparative Analysis Reports to Congress (2022 and 2023) · 2023
- Milliman, Addiction and Mental Health vs Physical Health: Widening Disparities in Network Use · 2019