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The “free mammogram” gets bigger: plans must cover follow–up imaging, pathology, and cancer navigation

The “free mammogram” gets bigger: plans must cover follow–up imaging, pathology, and cancer navigation

Rule Changes
By Newzino Staff | |

HRSA’s women’s preventive updates start binding for plan years beginning on/after Dec. 20, 2025—quietly shifting bills away from patients.

December 20th, 2025: Effective date hits: HRSA women’s updates start binding by plan year

Overview

People think “preventive care is free” is a fixed promise. It isn’t. It’s a living list that gets edited through a notice-and-comment process—then quietly becomes binding later when plan years roll over.

Starting with plan years that begin on or after December 20, 2025, many health plans must cover three HRSA-backed women’s preventive updates with no cost sharing: clearer intimate partner violence screening, breast screening that explicitly includes follow-up imaging and pathology to complete a screening, and a new benefit—patient navigation for breast and cervical screening and follow-up. Meanwhile, HRSA has already opened the next update cycle for public comment: draft updates to cervical cancer screening (published Oct. 1, 2025), signaling another potential one-year compliance clock once HRSA formally accepts any final recommendation.

Key Indicators

3
Guideline changes now becoming enforceable
Two updates plus one new covered service (patient navigation).
1 year
Built-in delay before coverage must start
Plans typically must comply for plan years beginning one year after acceptance.
28
Public comments HRSA/WPSI reviewed
Input period shaped the final December 2024 accepted recommendations.
150–180M
People enrolled in plans subject to ACA preventive mandate
Estimate for coverage subject to the no-cost preventive requirement.
$950K/yr
HRSA funding (approx.) for guideline update process
Annual cooperative-agreement funding cited for developing updates via ACOG/WPSI.

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Debate Arena

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People Involved

Carole Johnson
Carole Johnson
HRSA Administrator (at time of acceptance) (Signed acceptance that started the one-year compliance clock.)
Robert F. Kennedy Jr.
Robert F. Kennedy Jr.
U.S. Secretary of Health and Human Services (Controls key levers over preventive-coverage recommendations after the Supreme Court’s 2025 ruling.)

Organizations Involved

Health Resources and Services Administration (HRSA)
Health Resources and Services Administration (HRSA)
Federal Agency
Status: Adopts women’s preventive guidelines that trigger ACA no-cost coverage duties.

HRSA is the switchboard: when it accepts women’s preventive guidelines, insurers’ no-cost obligations eventually change.

Women’s Preventive Services Initiative (WPSI)
Women’s Preventive Services Initiative (WPSI)
Clinical guideline coalition
Status: Develops the recommendations HRSA can adopt into binding preventive-coverage rules.

WPSI writes the clinical playbook that can become insurance law after HRSA adoption.

American College of Obstetricians and Gynecologists (ACOG)
American College of Obstetricians and Gynecologists (ACOG)
Medical professional organization
Status: Runs WPSI under HRSA cooperative agreement and supports implementation tools.

ACOG is the operational backbone behind WPSI’s guideline development and rollout tools.

Employee Benefits Security Administration (EBSA), U.S. Department of Labor
Employee Benefits Security Administration (EBSA), U.S. Department of Labor
Federal Agency
Status: Co-regulates ACA preventive coverage rules for employer group health plans.

EBSA’s FAQs and guidance decide what counts as “part of” a free preventive service.

U.S. Preventive Services Task Force (USPSTF)
U.S. Preventive Services Task Force (USPSTF)
Federal advisory panel
Status: Its recommendations drive a large portion of ACA no-cost coverage and attract litigation.

USPSTF is the lightning rod: evidence-based medicine that keeps getting dragged into court and politics.

Timeline

  1. Effective date hits: HRSA women’s updates start binding by plan year

    Implementation

    For plan years beginning on or after this date, applicable non-grandfathered plans must cover the updated HRSA women’s guidelines without cost sharing.

  2. HRSA opens public comment on draft cervical cancer screening guideline update

    Rulemaking

    HRSA published a Federal Register notice requesting comments on draft recommendations to update the HRSA-supported Women’s Preventive Services Guidelines relating to cervical cancer screening; comments closed Oct. 31, 2025.

  3. HHS postpones USPSTF meeting, sparking politicization fears

    Policy

    The preventive-care panel’s work becomes a new flashpoint over whether coverage standards remain science-led.

  4. Supreme Court preserves ACA preventive-care structure in Kennedy v. Braidwood

    Legal

    The Court upholds the framework tying no-cost coverage to USPSTF recommendations while emphasizing HHS oversight authority.

  5. HRSA accepts updates—starting the compliance countdown

    Decision

    HRSA accepts two updated guidelines and one new guideline, triggering the one-year clock for mandatory no-cost coverage.

  6. Draft updates go out: IPV, breast screening, and patient navigation

    Rulemaking

    HRSA publishes a Federal Register notice seeking comments on proposed women’s guideline updates.

  7. HRSA funds a standing update machine: WPSI via ACOG

    Policy

    HRSA begins a cooperative-agreement model to keep women’s preventive guidelines updated over time.

  8. HRSA posts women’s preventive guidelines, adopting IOM recommendations

    Policy

    HRSA releases women’s preventive guidelines—creating a new category of no-cost benefits, including contraception debates that follow.

  9. Agencies write the rulebook—and the one-year delay

    Rulemaking

    HHS, Labor, and Treasury issue interim rules implementing Section 2713 and the one-year interval before new recommendations must be covered.

  10. ACA becomes law, planting the “no-cost preventive care” flag

    Legal

    The Affordable Care Act is signed, setting up Section 2713’s preventive-services coverage mandate.

Scenarios

1

2026 Renewals Normalize Patient Navigation as a Covered Benefit

Discussed by: Employer benefits advisors (e.g., WTW) and employer-plan consultants tracking 2026 preventive mandates

Most employers with January 1 renewals fold in the new patient navigation benefit with little fanfare—often by contracting navigation vendors or expanding care-management teams. Utilization rises most where plans pair navigation with outreach (language access, transportation help, appointment scheduling). The “headline” impact is subtle: fewer missed follow-ups, earlier detection, and a slow shift of administrative cost from clinics and patients onto health plans.

2

Plans Comply on Paper, Then Fight Over Billing Codes and “What Counts”

Discussed by: Benefits compliance guidance and plan-administration commentary highlighting medical management and billing risks

Even with the new breast screening language, disputes flare around billing pathways: whether follow-up imaging is coded as “screening” or “diagnostic,” when pathology is considered part of the screening process, and how network rules apply. Plans lean on “reasonable medical management,” and patients still see surprise cost sharing when providers bill a service outside the preventive rubric or outside network—turning a legal expansion into a practical paperwork battle.

3

Preventive Coverage Becomes a Political Lever, Not Just a Clinical One

Discussed by: KFF legal/policy analysis and national reporting on HHS actions toward advisory panels

After the Supreme Court’s 2025 decision emphasizing HHS supervisory authority over USPSTF, the executive branch increasingly shapes what qualifies as “free” preventive care by influencing advisory processes. That doesn’t repeal HRSA’s women’s updates—but it changes the environment: future updates (and even the stability of existing ones) become more sensitive to elections, agency leadership, and ideological pressure.

4

A New Lawsuit Targets HRSA/WPSI Authority, Fragmenting Women’s Preventive Coverage

Discussed by: ACA preventive-services litigation watchers and employer-plan legal counsel monitoring post-Braidwood strategies

A plaintiff coalition pivots from USPSTF to HRSA/WPSI, aiming to narrow or delay women’s preventive obligations through constitutional or administrative-law claims. If a court issues a broad remedy, insurers and employers could face a patchwork: some women’s services remain no-cost, others revert to deductibles, and states try to backfill with local mandates—recreating the instability patients thought the ACA eliminated.

Historical Context

USPSTF’s 2009 mammography controversy and the ACA’s “freeze” response

2009-11 to 2010-09

What Happened

When USPSTF updated breast cancer screening guidance in late 2009, the backlash was immediate and political. As the ACA’s preventive rules were implemented, regulators treated those 2009 breast cancer recommendations as not “current” for coverage purposes.

Outcome

Short Term

Coverage standards avoided whiplash from a politically explosive guideline update.

Long Term

Breast screening became the template for how evidence reviews collide with politics and coverage rules.

Why It's Relevant Today

The 2024 HRSA update’s focus on “completing the screening process” is the next chapter of the same fight: what counts as screening, and who pays.

Burwell v. Hobby Lobby (contraception mandate carve-outs)

2014-06-30

What Happened

The Supreme Court held that closely held for-profit companies could claim religious objections to parts of the contraception coverage requirement. The ruling didn’t end the women’s preventive framework—but it proved that preventive coverage can be narrowed through targeted legal exemptions.

Outcome

Short Term

Employers sought exemptions; policymakers built workarounds and new regulatory pathways.

Long Term

Women’s preventive coverage became a durable but litigable policy regime.

Why It's Relevant Today

Even when HRSA updates expand benefits, legal pressure can still carve out who must comply.

The colonoscopy “integral services” fights (polyp removal, pathology, anesthesia)

2013-01 to 2022-01

What Happened

Patients kept getting bills for parts of a supposedly “free” preventive colonoscopy—especially polyp removal and related services. Federal guidance clarified that items integral to completing a preventive screening must also be covered without cost sharing, even if billed separately.

Outcome

Short Term

Plans adjusted coverage rules (and billing guidance) to reduce predictable surprise bills.

Long Term

The concept of “integral to the preventive service” became a key enforcement and compliance tool.

Why It's Relevant Today

HRSA’s breast screening update is a direct parallel: follow-up imaging and pathology are now explicitly framed as part of completing screening.

11 Sources:
+5
Health Resources and Services Administration (HRSA) Federal Register Congressional Research Service (CRS) Internal Revenue Service (IRS) GovInfo (Official Federal Register content) KFF Reuters WTW U.S. Department of Labor (EBSA) Federal Register Federal Register