A NATIONAL DATA SET
Medical debt affects as many as 100 million Americans, contributing to financial harm and worse health. Hospitals can alleviate this debt or exacerbate it, depending on how they provide free and discounted care, and how aggressively they collect outstanding medical bills.
The Lown Institute compiled and reviewed data from the financial assistance and collections policies of 2,500 hospitals across the United States, to better understand how these policies differ across hospital type and location. In most states, hospitals set their own policies around who is eligible for free or discounted care and the actions they may take to collect debt, which leads to considerable variation among hospitals.
The chart below contains financial assistance and collection policy information from 2,500 hospitals nationwide. Data was collected from hospital websites from June 2024-April 2025 and confirmed via email with hospitals when possible. Data will continue to be updated on an ongoing basis.
Understanding the data
If the “Free Care” column reads “200” that means the hospital’s income threshold for a full discount on care is at 200% of federal guidelines, about $50,000 for a family of three.
If the “Discounted Care” column reads “400” that means the hospital’s income threshold for a partial discount on care is at 400% of federal guidelines, about $100,000 for a family of three.
“Legal Actions” indicates whether or not a hospital’s collection policy allows the hospital to take legal actions against patients for unpaid medical debt, such as lawsuits, wage garnishments, or property liens.
"*" indicates required fields
Most hospitals offer free or discounted care for patients who cannot afford to pay. This is known as “financial assistance” or “charity care.” Hospitals usually have a written policy that outlines eligibility standards based on income, family size, bill amount, insurance status, and other factors. Private nonprofit hospitals are required to make their financial assistance policy widely available.
FINDINGS
There are no federal minimum requirements for financial assistance eligibility, which gives hospitals considerable leeway to craft their own policy. This flexibility leads to considerable variation in free care eligibility levels across hospitals.
FINDINGS
*Some hospitals report their income eligibility based on the federal poverty guidelines (FPG) while others use federal poverty level (FPL). Alaska and Hawaii also have different FPG income levels than the contiguous US states. The differences between these thresholds are accounted for in our comparisons of median county income and income eligibility thresholds by family size. For simplicity, we use “federal guidelines” throughout this report to refer to either FPG or FPL-based income eligibility levels.
Hospitals generally provide discounted care for patients who do not qualify for free care. Discounted care means that a patient’s bill will be reduced, usually based on a flat discount or sliding scale.
FINDINGS
Some hospitals put additional restrictions on financial assistance aside from income:
Hospitals are encouraged to offer free care at a rate that serves their community need, which differs based on local income levels, cost of living, and rate of uninsurance. However, our findings suggest that free care thresholds and local income are not always aligned.
For example, a hospital in Arlington County, Virginia and a hospital in Holmes County, Mississippi both offer free care at 200% FPG ($53,300 for a family of three). Most families in Arlington County, where the median income is over $200,000, would be unable to access free care, while most families in Holmes County, where the median income is $32,000, would easily qualify. Our findings indicate that hospitals in areas with a higher cost of living could further expand their eligibility criteria for free care to better serve their community need.
Even among hospitals in the same cities, there may be differences in who is eligible for free care. These thresholds may not always correspond to the amount of financial assistance spending, as hospitals differ in how well they advertise and implement their policy.*
*Some hospitals use the federal poverty guideline (FPG) for their financial assistance income thresholds, while others use federal poverty level (FPL). In this section we use the threshold specified in each hospital’s policy.
In Boston, a family of three making $107k could be eligible for free care at Beth Israel Deaconess Medical Center, while the same family would have to make $40k or less to access free care at Brigham and Women’s Hospital.
Hospital |
Free care income eligibility threshold for family of three |
Brigham and Women’s Hospital |
$40k (150% FPG) |
Beth Israel Deaconess Medical Center |
$107k (400% FPG) |
In Dallas, TX, a family of three making $107k could be eligible for free care at William P. Clements Jr. University Hospital, while the same family would have to make $53k or less to access free care at Baylor University Medical Center.
Hospital |
Free care income eligibility threshold for family of three |
Baylor University Medical Center |
$53k (200% FPG) |
William P. Clements Jr. University Hospital |
$107k (400% FPG) |
In Des Moines, a family of three making $80k could be eligible for free care at Broadlawns Medical Center, while the same family would have to make $50k or less to access free care at MercyOne Des Moines Medical Center.
Hospital |
Free care income eligibility threshold for family of three |
MercyOne Des Moines Medical Center |
$50k (200% FPL) |
Broadlawns Medical Center |
$80k (300% FPG) |
In Grand Junction, a family of three making $67k could be eligible for free care at St. Mary’s Regional Hospital, while the same family would have to make $10k or less to access free care at Montrose Regional Hospital.
Hospital |
Free care income eligibility threshold for family of three |
Montrose Regional Health |
$10k (40.9% FPL) |
St. Mary’s Regional Hospital |
$67k (250% FPG) |
In Los Angeles, a family of three making $101k could be eligible for free care at Cedars-Sinai Medical Center, while the same family would have to make $53k or less to access free care at Kaiser Permanente Los Angeles Medical Center.
Hospital |
Free care income eligibility threshold for family of three |
Kaiser Permanente Los Angeles Medical Center |
$53k (200% FPG) |
Cedars-Sinai Medical Center |
$101k (400% FPL) |
In New York City, a family of three making $151k could be eligible for free care at Tisch Hospital, while the same family would have to make $53k or less to access free care at New York-Presbyterian Hospital.
Hospital |
Free care income eligibility threshold for family of three |
New York-Presbyterian Hospital |
$53k (200% FPG) |
Tisch Hospital |
$151k (600% FPL) |
In Pittsburgh, a family of three making $80k could be eligible for free care at UPMC Passavant – McCandless, while the same family would have to make $53k or less to access free care at West Penn Hospital.
Hospital |
Free care income eligibility threshold for family of three |
West Penn Hospital |
$53k (200% FPG) |
UPMC Passavant – McCandless |
$80k (300% FPG) |
In San Francisco, an uninsured family of three making $101k could be eligible for free care at UCSF Helen Diller Medical Center at Parnassus Heights, while the same family would have to make $50k or less to access free care at Kaiser Permanente San Francisco Medical Center.
Hospital |
Free care income eligibility threshold for family of three |
Kaiser Permanente San Francisco Medical Center |
$50k (200% FPL) |
UCSF Helen Diller Medical Center at Parnassus Heights |
$101k (400% FPL) |
In Tucson, a family of three making $50k could be eligible for free care at Banner – University Medical Center Tucson, while the same family would have to make $25k or less to access free care at Tucson Medical Center.
Hospital |
Free care income eligibility threshold for family of three |
Tucson Medical Center |
$25k (100% FPL) |
Banner – University Medical Center Tucson |
$50k (200% FPL) |
In the Waco, Texas area, a family of three making $67k could be eligible for free care at Ascension Providence, while the same family would have to make $6k or less to access free care at Goodall Witcher Hospital.
Hospital |
Free care income eligibility threshold for family of three |
Goodall Witcher Hospital |
$6,000 (21% FPG) |
Ascension Providence |
$67k (250% FPG) |
In most states, nonprofit hospitals are allowed to engage in certain “extraordinary collections actions” (ECAs) to pursue outstanding medical debt, as long as they make reasonable efforts to determine whether patients are eligible for financial assistance. These ECAs include: selling debt to a third party, reporting medical debt to consumer credit reporting agencies or credit bureaus, denying non-emergency care for patients with outstanding debt, and taking legal actions to collect debt.*
FINDINGS
Extraordinary collection activities allowed in hospital policies
Private nonprofit hospitals were more likely to have information about allowed collection activities in their policies, compared to public and for-profit hospitals. Private nonprofit hospitals were more likely to disallow debt sales to third parties, denial of nonemergency care, and wage garnishments, compared to public and for-profit hospitals. For-profit hospitals were more likely to disallow reporting debt to credit bureaus, lawsuits, and property liens, compared to nonprofit hospitals.
Legal actions to collect debt allowed in hospital policies
Lawsuits |
Wage garnishment |
Property lien |
|
Policy allows |
33% |
30% |
38% |
Policy does not allow |
14% |
14% |
15% |
Policy does not mention |
53% |
56% |
47% |
*Just because a collection action is allowed in a hospital’s policy does not necessarily mean that the hospital conducts these activities in practice. In cases where a hospital representative clarified their collections practices, we have added a note in their hospital scorecard.
Among U.S. News Honor Roll hospitals, free care thresholds range from 150% to 600% of federal guidelines, and discounted care thresholds range from 300% to 800% FPL of federal guidelines. While eight hospitals do not allow any extraordinary collection activities, all other hospitals allow at least one according to their collections policies or communication with representatives.
Hospital name |
Free care threshold |
Discounted care threshold |
Financial assistance qualifiers |
Extraordinary collection actions allowed |
Brigham and Women’s Hospital |
150% FPG |
300% FPG, or medical expenses exceed 40% of family income. |
Financial assistance only available to patients in MA, NH or receiving emergency care. |
Denying care, lawsuits, and liens allowed |
Cedars-Sinai Medical Center |
400% FPL |
600% FPL |
Legal actions allowed with CFO approval |
|
Cleveland Clinic Main Campus |
250% FPG if uninsured |
400% FPG if uninsured, or insured and medical expenses greater than 25% of annual family income |
Financial assistance available to out-of-state patients only on case-by-case basis. |
Reporting to credit agencies, denial of non-emergency care, and legal actions are allowed but not done in practice, according to hospital representative. |
Duke University Hospital |
200% FPG |
300% FPG, or account balance greater than 15% of annual income |
None allowed |
|
Hospital of the University of Pennsylvania |
300% FPG |
Bill is greater than 10% of annual income |
Financial assistance only available to patients in local area |
None allowed |
Houston Methodist Hospital |
200% FPL |
500% FPL, or above 500% FPL and account balance is 10% or greater than family income |
None allowed |
|
The Johns Hopkins Hospital |
200% FPL |
400% FPL or under 500% FPL and medical debt exceeds 25% of family income |
None allowed |
|
Massachusetts General Hospital |
150% FPG |
300% FPG, or medical expenses exceed 40% of family income. |
Financial assistance only available to patients in MA, NH or receiving emergency care. |
Denying care, lawsuits, and liens allowed |
Mayo Clinic Hospital, Saint Marys Campus |
200% FPG (includes both income and assets) |
400% FPG (includes both income and assets) |
Denying care and legal actions allowed |
|
The Mount Sinai Hospital |
200% FPL |
400% FPL |
Financial assistance only available to patients in local area (or state for emergency care) |
Liens allowed (primary residence excluded) |
North Shore University Hospital |
200% FPG |
500% FPG |
Financial assistance only available to patients in state |
Lawsuits and liens allowed (primary residence excluded) |
Northwestern Memorial Hospital |
250% FPG |
600% FPG |
Financial assistance only available to patients in state |
Care denial and liens allowed (primary residence excluded) |
NewYork-Presbyterian Hospital |
200% FPG |
600% FPG |
Financial assistance only available to patients in local area (or state for emergency care) |
Legal actions allowed (primary residence excluded) |
RUSH University Medical Center |
300% FPG |
400% FPG for uninsured, 600% FPG for insured, or bill is 20% or greater than household income |
Financial assistance only available to patients in state. |
Credit reporting, care denial, lawsuits, and liens allowed |
Stanford Hospital |
400% FPG if uninsured or bill is 10% of family income for insured |
All uninsured patients eligible for discounted care |
None allowed |
|
Tisch Hospital |
600% FPL |
800% FPL |
Financial assistance only available to patient in state (unless emergency care) |
Lawsuits and liens allowed (primary residence excluded) |
UC San Diego Medical Center |
400% FPG if uninsured or bill is 10% of family income |
Discounts for uninsured patients who do not qualify for free care are available |
Financial assistance only available to patients in state |
None allowed |
Ronald Reagan UCLA Medical Center |
400% FPL if uninsured or medical cost or bill is 10% of family income |
450% FPL if uninsured or medical cost or bill is 10% of family income |
Financial assistance only available for patients within local area |
None allowed |
UCSF Helen Diller Medical Center at Parnassus Heights |
400% FPL if uninsured or medical cost or bill is 10% of family income |
Discounts for uninsured patients who do not qualify for free care are available |
None allowed |
State policymakers are taking action to improve access to financial assistance, including the following reforms:
Creating standards for financial assistance income eligibility thresholds.
Example: Washington state requires most hospitals to make patients under 200% FPL eligible for free care, and patients at 200-300% FPL eligible for discounted care. The eligibility thresholds are higher for certain larger hospital systems.
Developing a uniform financial assistance application to simplify and streamline the application process.
Example: Maryland developed a common financial assistance application that must be accepted by all hospitals and provided to patients upon request.
Requiring hospitals to screen patients for financial assistance, to make sure all eligible patients receive discounts.
Example: Illinois requires hospitals to screen all uninsured patients for financial assistance or public health insurance program eligibility at the earliest reasonable moment, and insured patients upon request.
Clarifying or regulating other common restrictions on financial assistance
Example: In North Carolina, hospitals are required to offer financial assistance for both insured and uninsured patients if they meet the income criteria.
Setting minimum spending thresholds for financial assistance and other community benefits
Example: Oregon sets minimum thresholds for community benefit spending for each hospital, based on the hospital’s previous uncompensated care, patient revenue, and operating margin.
Limiting extraordinary collection actions hospitals are allowed to conduct to collect medical debt
Example: New York prohibits reporting medical debt to credit agencies, placing liens, or garnishing wages to collect medical debt. Legal actions may not be taken against patients making less than 400% FPL to collect medical debt.
Improving reporting requirements to increase transparency around the financial assistance hospitals provide and ECAs conducted.
Example: Colorado requires hospitals to report the number of patients who were screened for financial assistance, applications processed, and accounts sent to collections. Data must be reported by race, ethnicity, age, and primary language spoken.
Stronger regulations around financial assistance and collections policies are an important step toward reducing medical debt, but they’re not the only necessary policy change. A companion report, Past due: How medical debt is harming Americans and the solutions we need now, written in collaboration with a dozen researchers and advocates, lays out additional changes we need to make healthcare accessible and affordable to all. These include protecting Medicaid coverage, expanding insurance coverage to all, limiting out-of-pocket costs, and bringing down prices for medical services.
The Lown Institute Financial Assistance and Collections Policy Database contains information from a national sample of 2,500 hospitals.
This is a stratified random sample, where we randomly sampled from subgroups of all general hospitals (excluding specialty, federally-run, or hospitals outside the 50 U.S. states and Washington, D.C.). These subgroups took into account geographic location, hospital size, urban or rural location, state Medicaid expansion status, and state medical debt protections. A small number of hospitals were general hospitals at the start of our project in 2023, but have since been converted to other hospital types such as psychiatric facilities or rural emergency hospitals. We have also excluded hospitals that have closed since 2023.
The Lown Institute collected information on hospital financial assistance and billing practices by reviewing financial assistance and collection policies available publicly on hospital websites. We reached out via email to nearly all hospitals in the sample to ask for confirmation of the data. If we received a response, we recorded any additional information about hospital practices if provided by the contact and, in the case of debt collection practices, if they were willing to publish their name to that fact (e.g. if a hospital policy said they may take a certain action, but a spokesperson said they never do it in practice). We also included additional hospitals in our data, if a health system contact provided policy data for facilities which were not in our original sample.
Financial assistance policies were collected in two rounds. The first round of collection occurred between September 2023 and May 2024 and was reviewed for updates between November 2024 and April 2025. The second data collection round started in June 2024 and ended in April 2025. Hospitals were initially contacted starting December 2023 and the process is on-going. We considered a hospital to have not responded if they were contacted three times with no response.
Some hospitals reported their income eligibility based on the federal poverty level (FPL) while others use federal poverty guidelines (FPG), which correspond to slightly different income amounts. The 2024 FPL thresholds, the most recent available, for a family of three with one child under 18 is $25,249, and is the same across all states. The 2025 FPG for a family of three is $26,650. The FPGs for Alaska and Hawaii are slightly higher than in the contiguous U.S. states and D.C. (FPG for a family of three is $33,310 in Alaska and $30,650 in Hawaii). The differences between these thresholds are accounted for when referring to specific hospital policies. For simplicity, we use “federal guidelines” throughout this report to refer to income eligibility levels, and FPG and FPL levels are grouped together in charts that compare eligibility percentage thresholds reported in hospital policies.
This work builds upon existing research conducted by Noam Levey, senior correspondent, at KFF Health News.
This project is supported by Arnold Ventures.
Media inquiries should be directed to Aaron Toleos, vice president of communications for the Lown Institute, at atoleos@lowninstitute.org.