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GAO-14-734R 1 (2014-09-09)

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G      A      O         U.S. GOVERNMENT ACCOUNTABILITY OFFICE
441 G St. N.W.
Washington, DC 20548



September 9, 2014


Congressional Committees

Clinical Trials: Little is Known about Participation by Supplemental Security Income
Recipients


Clinical trials can help to generate the evidence base for decision-making about the use of new
treatments or drugs, and can be especially important for patients with serious or life-threatening
health conditions who have limited treatment options. However, because trials are dependent
upon voluntary participation from individuals who meet trial-specific criteria, successfully
conducting a clinical trial can be challenging if there is a small pool of potential participants,
such as individuals with rare diseases. Rare diseases generally include those affecting less than
200,000 individuals, though some such as amyotrophic lateral sclerosis (ALS) and cystic fibrosis
affect far fewer individuals. As of March 2014, there were over 4,800 rare disease clinical trials
in the United States seeking participants from a relatively small pool of individuals who may
each choose to participate or not to participate in these trials for a variety of reasons. For
example, Supplemental Security Income (SSI) recipients may be discouraged from participating
if the clinical trial offers compensation that could affect their SSI eligibility and benefits, as these
are, in part, based on an individual's income and available resources.1

Finding that advances in medicine depend on clinical trial research, that researchers may face
challenges enrolling participants in rare disease clinical trials, and that offering payment to
participants may pose a barrier to enrollment if the payments threaten participants' eligibility for
SSI, Congress passed the Improving Access to Clinical Trials Act of 2009 (the act).2 The act
required that the Social Security Administration (SSA) exclude up to $2,000 annually in
compensation received by individuals who participate in rare disease clinical trials when
determining their SSI eligibility and benefits.3 The act also mandated that GAO review the
impact of this change on SSI recipients' participation in rare disease clinical trials.4 We
assessed: (1) what is known about SSI recipients' participation in clinical trials for rare diseases,



1Since 1974, the SSI program, under Title XVI of the Social Security Act, as amended, has provided benefits to
certain low-income aged, blind, and disabled persons-including adults and children-who meet the SSI program's
eligibility requirements, including financial eligibility requirements. The SSI program was established by the Social
Security Amendments of 1972 and became effective in 1974. Pub. L. No. 92-603, § 301, 86 Stat. 1329, 1465-78
(codified as amended at 42 U.S.C. § 1381-1383D.
2pub. L. No. 111-255, 124 Stat. 2640 (2010).
3SSA modified its Program Operations Manual System, effective April 3, 2011, to describe its policy and procedures
for implementing the act. While this report focuses on SSI, the act also created a $2,000 exclusion for rare disease
clinical trial compensation when determining an individual's income eligibility for Medicaid. Under a sunset provision
in the act, the amendments that established these exclusions will be repealed on October 5, 2015.
4§ 4, 124 Stat. at 2642.


GAO-14-734R Clinical Trials


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