Health Insurance

Ambulance Spending for Medicare Beneficiaries Totaled $3.95 Billion in 2021 — Down 3.9% From 2020 and the Lowest in 10 Years

This equates to $1,213 per user in 2021 — down 1.4% from 2020 but the first annual decrease since 2016.
A woman being loaded into an ambulance.
A woman being loaded into an ambulance. Source: Getty Images

Over the past 10 years, ambulance spending for Medicare beneficiaries has fallen. However, per-user costs have barely budged: While overall expenditures fell by 17.1% between 2012 and 2021, per-user spending dipped by just 0.8% in the same period.

This study will examine how ambulance expenditures have changed — and where they’ve done so the most. Here’s what we found.

Key findings

  • Ambulance spending for Medicare beneficiaries totaled $3.95 billion in 2021 — 3.9% less than in 2020. Ambulance costs per user were $1,213 in 2021, down 1.4% from 2020. Between 2012 and 2021, overall expenditures fell by 17.1%. However, per-user spending rose by 0.8% in that time.
  • Between 2012 and 2021, ambulance spending increased the most in Alaska. Ambulance spending for Medicare beneficiaries rose 218.0%, from $5.6 million in 2012 to $17.7 million in 2021. Wyoming (216.9%) and New Mexico (92.5%) followed. At the same time, spending declined in 30 states in that period, with New Jersey (54.2%), Rhode Island (44.2%) and Indiana (41.2%) experiencing the most significant ambulance spending drops.
  • Over those same 10 years, Wyoming had the highest increase in per-user ambulance expenses. Per-user ambulance costs rose 144.3%, from $699 in 2012 to $1,708 in 2021. Alaska (131.5%) and New Mexico (115.8%) had the next highest increases. On the other hand, New Jersey saw its per-user costs drop the most, falling 36.2% (from $2,009 in 2012 to $1,282 in 2021).
  • By county, average annual ambulance expenditures were highest in Los Angeles. Between 2012 and 2021, average annual ambulance spending for Medicare beneficiaries in this Golden State county was $95.9 million. Despite that high figure, though, spending in Los Angeles dropped by 63.9% in that time frame. Only two of the 50 counties with the highest annual ambulance spending saw an increase between 2012 and 2021.
  • Alaska boroughs and census areas held the top three spots as the counties with the highest per-user spending increases on ambulance services in the 10-year time frame. In Lake and Peninsula Borough, Alaska, per-user spending rose 1,180.1%, from $483 in 2012 to $6,183 in 2021. Yukon-Koyukuk Census Area, Alaska (994.1%), and Aleutians West Census Area, Alaska (884.1%), saw the next biggest per-user increases.

Who is a typical Medicare beneficiary?

Medicare is a federal health insurance program for people 65 and older, although some Americans younger than 65 qualify for Medicare if they have a disability, end-stage renal disease (ESRD) or amyotrophic lateral sclerosis (ALS) — also known as Lou Gehrig’s disease. While the demographic breakdown of beneficiaries varies by year, the majority of beneficiaries in this study were 65 and older. Still, around 12% to 18% were younger than 65 depending on the year analyzed.

To better understand how that impacts spending, 82.5% of ambulance expenses in 2021 were for beneficiaries 65 and older, while those younger than 65 accounted for 17.5%.

Ambulance spending for Medicare beneficiaries fell between 2020 and 2021

Generally speaking, ambulance spending for Medicare beneficiaries has dipped. While ambulance spending totaled $4.11 billion in 2020, that figure fell 3.9% to $3.95 billion in 2021. That 2021 figure is the lowest in the past 10 years, too. In that period, annual spending has increased only once annually, in 2017. Breaking down those totals further, per-user ambulance costs were $1,213 in 2021. That’s down 1.4% from $1,230 in 2020 but the same as in 2019.

Annual ambulance spending on Medicare beneficiaries

Year
Actual cost
Year-over-year change (%)
2012$4.76 billionN/A
2013$4.73 billion-0.8%
2014$4.72 billion-0.1%
2015$4.67 billion-1.2%
2016$4.60 billion-1.4%
2017$4.63 billion0.6%
2018$4.54 billion-1.9%
2019$4.49 billion-1.2%
2020$4.11 billion-8.4%
2021$3.95 billion-3.9%

Source: ValuePenguin analysis of data from the Geographic Variation Public Use File, published by the Centers for Medicare and Medicaid Services (CMS). Note: This table displays actual rather than standardized costs.

Looking more broadly, overall expenditures fell by 17.1% between 2012 and 2021, decreasing from $4.76 billion to $3.95 billion. But despite this $800 million decrease, per-user spending rose by 0.8% in that time — from $1,203 to $1,213.

One possible reason for the decline in overall expenditures could be the implementation of the Repetitive, Scheduled Non-Emergent Ambulance Transport (RSNAT) prior authorization model. This model aimed to reduce improper use of nonemergency ambulance transportation services among Medicare beneficiaries. According to a 2022 study published by the National Library of Medicine, the RSNAT model reduced expenditures for scheduled nonemergency ambulance transports by 77% between 2012 and 2019. That led to a 2.4% reduction in total Medicare expenditures per beneficiary year analyzed — totaling about $750 million, according to the CMS.

Another possible factor was increased enrollment in Medicare Advantage plans, which could have reduced fee-for-service claims — a billing method in which health care providers are paid for each service performed rather than bundling the costs — for ambulance services. Further, the COVID-19 pandemic contributed to a wider decline in health care service use among Medicare beneficiaries, according to health policy research site KFF — including a reduction in ambulance use.

Annual per-user Medicare spending on ambulances

Year
Actual cost per user
Year-over-year change (%)
2012$1,203N/A
2013$1,197-0.5%
2014$1,2000.3%
2015$1,180-1.7%
2016$1,165-1.3%
2017$1,1750.9%
2018$1,1871.0%
2019$1,2132.1%
2020$1,2301.5%
2021$1,213-1.4%

Source: ValuePenguin analysis of data from the Geographic Variation Public Use File, published by the CMS. Note: This table displays actual per-user costs rather than standardized costs.

But why did per-user spending rise despite the sharp decline in overall expenditures? It may boil down to the nature of medical emergency services. Patients typically don’t choose their ambulance providers — rather, emergency medical dispatchers select the closest or most appropriate ambulance, which could be a local government agency, hospital service or private ambulance company.

Because of this, many patients may be unwittingly given an ambulance in which services aren’t covered by their health care provider. In fact, 79% of ambulance rides could lead to potential surprise bills, according to a 2020 study published by health policy research publication HealthAffairs. While Medicare generally doesn’t allow providers to balance bill beneficiaries (in other words, bill the patient the difference between the provider's charge and the amount the patient's insurance approves), that doesn’t usually apply to ambulance charges.

Alaska saw the biggest jump in ambulance spending between 2012 and 2021

While overall spending declined nationally, several states saw a sharp increase in ambulance expenditures between 2012 and 2021. Most notably, ambulance spending for Medicare beneficiaries rose 218.0% in Alaska in the 10 years analyzed, rising from $5.6 million in 2012 to $17.7 million in 2021.

That could be because Alaska faces unique challenges in providing emergency medical services. These challenges — which include long transport distances, extreme geography and climate, limited road systems and a sparse population — can contribute to higher costs for ambulance services across the state. Meanwhile, the increasing demand for emergency medical services in the state and the rising costs of providing these services could factor in, too.

In addition, Alaska’s population is rapidly aging. Between April 2010 and July 2022, the number of residents 60 and older increased by 68%, according to the Alaska Commission on Aging — which may contribute to the rise in Medicare enrollees across the state (and, ultimately, the rise in ambulance spending).

States with the biggest increases in ambulance spending

Rank
State
Cost, 2012
Cost, 2021
% change
1Alaska$5.6 million$17.7 million218.0%
2Wyoming$3.6 million$11.5 million216.9%
3New Mexico$16.6 million$31.9 million92.5%
4Idaho$10.6 million$18.8 million77.2%
5Montana$8.0 million$13.9 million73.7%

Source: ValuePenguin analysis of data from the Geographic Variation Public Use File, published by the CMS. Note: State data is based on standardized costs.

Wyoming followed, with spending jumping 216.9% (from $3.6 million in 2012 to $11.5 million in 2021). Like Alaska, Wyoming’s rural nature could contribute to high costs. Despite having the smallest population in America, Wyoming is the ninth-largest state by land mass — meaning emergency services are often required to travel longer distances. Not only that, but a growing EMS shortage fueled by the pandemic likely contributes to rising costs here.

Further, Wyoming also has an aging population. In fact, Wyoming has one of the highest proportions of baby boomers (ages 57 to 75) in the country.

New Mexico rounded out the top three, with spending jumping 92.5% from $16.6 million to $31.9 million. In New Mexico, the relatively low Medicare spending per full-benefit Medicare-Medicaid enrollee (in other words, enrollees who qualify for the full range of Medicaid benefits not covered by Medicare) may play a role. In 2019, this spending was the lowest in the nation at $16,032, according to KFF. Plus, New Mexico also grapples with a rural environment and an aging population.

States with the biggest decreases in ambulance spending

Rank
State
Cost, 2012
Cost, 2021
% change
1New Jersey$222.9 million$102.2 million-54.2%
2Rhode Island$27.0 million$15.1 million-44.2%
3Indiana$126.8 million$74.5 million-41.2%
4Pennsylvania$250.7 million$149.2 million-40.5%
5Michigan$175.2 million$115.2 million-34.3%

Source: ValuePenguin analysis of data from the Geographic Variation Public Use File, published by the CMS. Note: State data is based on standardized costs.

There’s still some good news, though: Ambulance spending for Medicare beneficiaries declined in 30 states over the 10 years analyzed. New Jersey took the lead here, with spending dropping 54.2% from $222.9 million in 2012 to $102.2 million in 2021.

That’s followed by Rhode Island, which saw costs drop 44.2% (from $27.0 million to $15.1 million). Finally, Indiana saw the third-largest decline, with costs dropping 41.2% (from $126.8 million to $74.5 million).

Full rankings

States with the biggest increases/decreases in ambulance spending

Rank
State
Annual cost, 2012
Annual cost, 2021
% change
1Alaska$5.6 million$17.7 million218.0%
2Wyoming$3.6 million$11.5 million216.9%
3New Mexico$16.6 million$31.9 million92.5%
4Idaho$10.6 million$18.8 million77.2%
5Montana$8.0 million$13.9 million73.7%
6South Dakota$7.1 million$11.4 million59.5%
7Oregon$30.6 million$47.4 million54.7%
8Minnesota$24.1 million$36.7 million52.0%
9Utah$10.6 million$15.4 million45.3%
10Arizona$47.1 million$68.3 million45.1%
11Maryland$64.9 million$89.1 million37.4%
12Oklahoma$50.2 million$67.2 million33.8%
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Source: ValuePenguin analysis of data from the Geographic Variation Public Use File, published by the CMS. Note: State data is based on standardized costs.

Per user, costs increased the most in Wyoming

Given how overall expenditures have changed in the past 10 years, it may not be surprising that Wyoming had the highest increase in per-user ambulance expenses during this time frame. In Wyoming, the state’s per-user ambulance costs rose 144.3% from $699 in 2012 to $1,708 in 2021.

Alaska saw the next highest rise in per-user costs. Here, costs rose 131.5%, from $785 in 2012 to $1,817 in 2021. New Mexico followed, with costs rising 115.8% (from $765 to $1,651). These states’ rural environments and aging populations likely played the largest role.

States with the biggest jumps in per-user spending

Rank
State
Annual per-user cost, 2012
Annual per-user cost, 2021
% change
1Wyoming$699$1,708144.3%
2Alaska$785$1,817131.5%
3New Mexico$765$1,651115.8%
4South Dakota$695$1,10358.7%
5Arizona$766$1,19155.5%

Source: ValuePenguin analysis of data from the Geographic Variation Public Use File, published by the CMS. Note: State data is based on standardized costs.

On the other hand, New Jersey saw its per-user costs drop the most. Between 2012 and 2021, the state’s per-user costs fell 36.2%, going from $2,009 to $1,282.

Meanwhile, Georgia had the highest per-user costs in 2021 at $1,827. It also had the highest number of ambulance events per 1,000 beneficiaries at 664.

Alaska had the next highest per-user costs at $1,817. And while Wyoming ($1,708) had the third-highest per-user costs, it had the fewest ambulance events, with only 131 per 1,000 beneficiaries — five times less than in Georgia.

States with the highest per-user ambulance costs

Rank
State
Annual cost, 2021
Annual per-user cost, 2021
Ambulance events per 1,000 beneficiaries
1Georgia$165.8 million$1,827664
2Alaska$17.7 million$1,817250
3Wyoming$11.5 million$1,708131
4New Mexico$31.9 million$1,651208
5Tennessee$109.7 million$1,534428

Source: ValuePenguin analysis of data from the Geographic Variation Public Use File, published by the CMS. Note: State data is based on standardized costs.

On the other hand, per-user spending was lowest in Delaware ($914), North Dakota ($922) and Vermont ($933).

Full rankings

States with the biggest jumps/dips in per-user spending

Rank
State
Annual per-user cost, 2012
Annual per-user cost, 2021
% change
1Wyoming$699$1,708144.3%
2Alaska$785$1,817131.5%
3New Mexico$765$1,651115.8%
4South Dakota$695$1,10358.7%
5Arizona$766$1,19155.5%
6Idaho$737$1,13654.1%
7Montana$687$1,04051.4%
8Hawaii$669$1,01251.3%
9Oregon$790$1,16247.1%
10Nevada$882$1,24240.8%
11Kansas$786$1,09739.6%
12Nebraska$715$97936.9%
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Source: ValuePenguin analysis of data from the Geographic Variation Public Use File, published by the CMS. Note: State data is based on standardized costs.

States with the highest per-user ambulance costs

Rank
State
Annual cost, 2021
Annual per-user cost, 2021
Ambulance events per 1,000 beneficiaries
1Georgia$165.8 million$1,827664
2Alaska$17.7 million$1,817250
3Wyoming$11.5 million$1,708131
4New Mexico$31.9 million$1,651208
5Tennessee$109.7 million$1,534428
6South Carolina$100.5 million$1,507488
7Texas$289.9 million$1,394395
8West Virginia$45.5 million$1,367537
9Mississippi$57.9 million$1,334355
10Connecticut$53.7 million$1,327549
11New Jersey$102.2 million$1,282357
12Alabama$65.9 million$1,281397
Show All Rows

Source: ValuePenguin analysis of data from the Geographic Variation Public Use File, published by the CMS. Note: State data is based on standardized costs.

By county, Los Angeles had the highest average annual ambulance expenditures

At the county level, average annual ambulance expenditures for Medicare beneficiaries were highest in Los Angeles. On average, annual ambulance expenditures totaled $95.9 million between 2012 and 2021. Of course, Los Angeles’ large population could play a role here: With over 9.7 million residents, Los Angeles is the most populous U.S. county.

Still, despite having the largest average expenditures, it’s worth noting that ambulance spending in the county dropped by 63.9% between 2012 and 2021.

5 counties with the highest average annual ambulance expenditures

Rank
County
Average annual expenses, 2012- 2021
% change in total expenses, 2012-2021
1Los Angeles, CA$95.9 million-63.9%
2Cook, IL$76.4 million-40.7%
3Harris, TX$48.6 million-21.3%
4Kings, NY$36.1 million-36.6%
5Philadelphia, PA$30.7 million-76.0%

Source: ValuePenguin analysis of data from the Geographic Variation Public Use File, published by the CMS. Note: County data is based on standardized costs.

Cook County, Ill., had the next highest average annual expenses, at $76.4 million. Like Los Angeles, Cook (which includes Chicago) is the second most populated county, with over 5.1 million residents. In addition, Cook also saw expenses drop 40.7% in this time frame.

Notably, only two of the 50 counties with the highest annual spending on ambulances increased between 2012 and 2021: Maricopa County, Ariz. (where Phoenix is located) (14.0%), and DeKalb County, Ga. (in the Atlanta metro area) (7.4%).

Full rankings

Counties with the highest average annual ambulance expenditures

Rank
County
Average annual expenses, 2012- 2021
% change in total expenses, 2012-2021
1Los Angeles, CA$95.9 million-63.9%
2Cook, IL$76.4 million-40.7%
3Harris, TX$48.6 million-21.3%
4Kings, NY$36.1 million-36.6%
5Philadelphia, PA$30.7 million-76.0%
6Wayne, MI$30.1 million-55.1%
7San Diego, CA$30.0 million-39.1%
8Middlesex, MA$29.8 million-26.1%
9Maricopa, AZ$23.0 million14.0%
9Orange, CA$23.0 million-30.9%
11Shelby, TN$22.7 million-31.5%
12Dallas, TX$22.4 million-32.7%
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Source: ValuePenguin analysis of data from the Geographic Variation Public Use File, published by the CMS. Note: County data is based on standardized costs.

Alaska dominated among counties/boroughs with highest spending increases

While Alaska doesn’t have counties, Alaska boroughs and census areas held the top three spots for the counties with the highest per-user spending increases on ambulance services for Medicare beneficiaries between 2012 and 2021.

Lake and Peninsula Borough, Alaska, ranked first: There, per-user spending spiked 1,180.1%, from $483 in 2012 to $6,183 in 2021. Yukon-Koyukuk Census Area, Alaska, followed, with spending jumping 993.1% (from $607 in 2012 to $6,641 in 2021).

Aleutians West Census Area, Alaska, rounded out the top three — its costs jumped 883.1%, from $454 in 2012 to $4,468 in 2021.

20 counties/boroughs/census areas with the highest jumps in per-user costs

Rank
County/borough/census area
% change in per-user costs from 2012 to 2021
1Lake and Peninsula, AK1180.1%
2Yukon-Koyukuk, AK994.1%
3Aleutians West, AK884.1%
4Hot Springs, WY868.4%
5Garden, NE867.2%
6Dillingham, AK840.7%
7Newton, AR834.1%
8Scott, KS833.5%
9Haines, AK816.3%
10Grant, OR784.9%
11Harney, OR769.6%
12Wrangell, AK763.3%
Show All Rows

Source: ValuePenguin analysis of data from the Geographic Variation Public Use File, published by the CMS. Note: County data is based on standardized costs.

Why doesn’t Alaska have counties? Before joining the U.S., federal law prohibited the creation of counties in Alaska. Rather, Alaska has boroughs — subdivisions that operate like cities but are much larger.

On the other end of the list, Brown County, Ind., saw the largest decline in per-user costs. Costs there fell 70.3%, from $2,731 in 2012 to $812 in 2021. That’s followed by Philadelphia County, where costs fell 69.1% (from $4,412 in 2012 to $1,362 in 2021), and Gallatin County, Ky., where costs fell 64.8% (from $3,078 in 2012 to $1,084 in 2021).

Top 20 counties with the biggest declines in per-user costs

Rank
County
% change in per-user costs from 2012 to 2021
1Brown, IN-70.3%
2Philadelphia, PA-69.1%
3Gallatin, KY-64.8%
4Boone, IN-63.1%
5Doddridge, WV-59.5%
6Oconee, SC-57.7%
7McDuffie, GA-57.1%
8Calhoun, SC-56.5%
9Norfolk City, VA-54.3%
10Norton City, VA-53.0%
11Essex, NJ-52.7%
12Orleans, VT-50.8%
Show All Rows

Source: ValuePenguin analysis of data from the Geographic Variation Public Use File, published by the CMS. Note: County data is based on standardized costs.

What about the counties with the highest per-user costs? In 2021, Webb County, Texas, had the highest ambulance cost per user at $5,203. In addition, Webb County had the highest rate of ambulance events per 1,000 beneficiaries, at 2,127.

Hidalgo County, Texas, had the second-highest ambulance cost at $3,247 per user, followed by DeKalb County, Ga., at $2,866 per user.

Full rankings

Counties with the highest per-user spending, 2021

Rank
County
Annual cost, 2021
Annual per-user cost, 2021
Ambulance events per 1,000 beneficiaries
1Webb, TX$8.3 million$5,2032,127
2Hidalgo, TX$10.8 million$3,2471,328
3DeKalb, GA$12.9 million$2,8661,216
4Passaic, NJ$7.5 million$2,128667
5Essex, NJ$10.7 million$2,118686
6Fulton, GA$13.5 million$2,060826
7Richland, SC$9.7 million$2,016819
8Gwinnett, GA$9.0 million$1,973740
9Shelby, TN$17.8 million$1,954777
10Fort Bend, TX$6.9 million$1,923472
11Harris, TX$38.2 million$1,875583
12Will, IL$11.3 million$1,549551
Show All Rows

Source: ValuePenguin analysis of data from the Geographic Variation Public Use File, published by the CMS. Note: County data is based on standardized costs.

Mitigating emergency service costs: Expert tips

It goes without saying that ambulance rides can be expensive — however, a few things can help you better understand and mitigate emergency service costs.

Particularly, ValuePenguin health insurance expert Divya Sangameshwar recommends the following:

  • Take some time to study your policy and understand what your coverage looks like. That way, you can understand how much an ambulance ride will cost out of pocket. "The way Medicare works for ambulance rides is straightforward: You will pay 20% of the Medicare-approved cost of the ride if you’ve already met your yearly Part B deductible, which is $226 in 2023," she says. "A private Medicare supplement policy (Medigap) would cover the full cost of your ambulance ride."
  • The situation is a little more complicated for Americans with health insurance via their employer or a marketplace plan. "Health insurance offers some coverage for ambulance services, but whether a policyholder is covered depends on their plan and if the provider is in network," she says. "And sadly, someone calling 911 for a medical emergency has no way to check if the ambulance being dispatched is within their insurance network."
  • There are options if you’re stuck with an ambulance bill you can’t afford. "Negotiate with your insurer and the ambulance provider," she says. "Reach out to your company’s HR if your insurance is through your employer, as they can help. If you are still stuck with the bill, you can negotiate a payment plan with your ambulance provider."

Methodology

To analyze how ambulance-related spending changed from 2012 to 2021, ValuePenguin researchers used aggregate and standardized data from the Geographic Variation Public Use File, published by the Centers for Medicare and Medicaid Services (CMS). This data represents Medicare beneficiaries' spending patterns.

Researchers used standardized data to compare expenditures across states. The standardized rates enable cross-geographic comparison by focusing on the standard payment amount rather than the standard allowed amount. This adjustment accounts for factors that led to different expenditures for the same services. Aggregate amounts are used to analyze annual values at the national level where comparisons aren't necessary.