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Employees Retirement System of TexasTX-PBM-0002

Contractual Agreement, Pharmacy Benefits Management Services (HealthSelect of Texas)

Pharmacy benefit manager: Express Scripts, Inc. Term December 7, 2022 to December 31, 2029. ERS contract 21-11565-001, awarded December 7, 2022, with services beginning for plan year 2024 and a term running through December 31, 2029. Obtained from the Legislative Budget Board contracts database, where ERS posted the base agreement, two amendments, a supplement, a service addendum and the RFP and proposal volumes. The PDF link on the LBB site is session bound, so the record page is cited instead.

44.4ConcernBand 40 to 54 of 100Scored on 81 of 100 weight. 19 excluded as unclear or redacted.

Scored under rubric v2. How we score

Red flag: this contract restricts what the government body may disclose about its own pharmacy pricing.

Obtained from another public source

Full executed contract · Contract 21-11565-001 · Pricing exhibits omitted from the posting

The documents

Download and read the originals

Every file behind this record, as the government body released it. Nothing is edited; redactions are theirs, not ours.

10 documents on file, 10 mirrored for direct download.

  • ESI PBM and PBM EGWP Contract, LBB contract 21-11565-001

    Base agreement · 65 pages · 1.9 MB

    Primary

    Exhibit D, the fee schedule, is a cover sheet with no content in the posted copy. Retrieved from the Legislative Budget Board contracts database. The LBB serves attachments through a session bound viewer, so there is no stable public link; the file here is the copy we downloaded, with its checksum.

    sha256 e81e8d214697d54e104e96f7711f86d0dc904978e64d37aaa7701cbcea83676c

  • Amendment 1 to the ESI PBM contract

    Amendment · 4 pages · 539 KB

    Retrieved from the Legislative Budget Board contracts database. The LBB serves attachments through a session bound viewer, so there is no stable public link; the file here is the copy we downloaded, with its checksum.

    sha256 add4e674e4f2166e00a5cad4c5258749589deb7cacc285e59388a55ee1de2154

  • Amendment 2 to the ESI PBM contract

    Amendment · 4 pages · 202 KB

    Retrieved from the Legislative Budget Board contracts database. The LBB serves attachments through a session bound viewer, so there is no stable public link; the file here is the copy we downloaded, with its checksum.

    sha256 6e356ecb3cea783dc18ffb067ea4769f3b3f249d3202cb8deb8bfcf1e7609a30

  • ESI Supplement 1

    Supplement · 2 pages · 334 KB

    Retrieved from the Legislative Budget Board contracts database. The LBB serves attachments through a session bound viewer, so there is no stable public link; the file here is the copy we downloaded, with its checksum.

    sha256 986c28664bc7195f7d258e1c191dede071b706be3143c41ba215d7c0b2aad097

  • PBM Agreement Service Addendum, effective January 1, 2025

    Addendum · 5 pages · 397 KB

    Retrieved from the Legislative Budget Board contracts database. The LBB serves attachments through a session bound viewer, so there is no stable public link; the file here is the copy we downloaded, with its checksum.

    sha256 7b19e458cf7ebe3fd09df170189845609bbfaf6af24d7a0386951bfebcddea43

  • ERS attestation letter to the Legislative Budget Board, December 8, 2023

    Attestation letter · 3 pages · 305 KB

    Retrieved from the Legislative Budget Board contracts database. The LBB serves attachments through a session bound viewer, so there is no stable public link; the file here is the copy we downloaded, with its checksum.

    sha256 20b17ae34e40ee25d15610682bed8376bf90492e68fdb209ded908dc7c7de13b

  • Contract attachment, part 1 of 4: Appendix A signature page and proposal appendices

    Vendor proposal · 507 pages · 4.8 MB

    Express Scripts proposal material incorporated into the contract record. Retrieved from the Legislative Budget Board contracts database. The LBB serves attachments through a session bound viewer, so there is no stable public link; the file here is the copy we downloaded, with its checksum.

    sha256 5a3ba2ec531dc3f28f59f92791ccccdd915a748634e303489844558487dee98e

  • Contract attachment, part 2 of 4: Appendix L communication requirements, deviations and interrogatories

    Vendor proposal · 581 pages · 9.9 MB

    Retrieved from the Legislative Budget Board contracts database. The LBB serves attachments through a session bound viewer, so there is no stable public link; the file here is the copy we downloaded, with its checksum.

    sha256 4f8e75a56e2e921aa39ff8c3bd05b6e38f4539988c7505d06743d0179e0ca952

  • Contract attachment, part 3 of 4: Appendix I organizational and reference interrogatories

    Vendor proposal · 316 pages · 10.5 MB

    Retrieved from the Legislative Budget Board contracts database. The LBB serves attachments through a session bound viewer, so there is no stable public link; the file here is the copy we downloaded, with its checksum.

    sha256 b49b9d89b25f1507843870663d131330ebc31fd55d8871876fe76040bfe466a4

  • Contract attachment, part 4 of 4: member communication samples

    Vendor proposal · 291 pages · 7.4 MB

    Retrieved from the Legislative Budget Board contracts database. The LBB serves attachments through a session bound viewer, so there is no stable public link; the file here is the copy we downloaded, with its checksum.

    sha256 0061e962d5591b0bac6eaf6828d9e1b958bfcabd96fad8e2b0156e67a5710370

Choose View in page on any mirrored document to read it here without leaving the site.

Redactions

What is blacked out

65 pages. 0 fully blacked out, 0 partially redacted.

No redaction notice appears in the posted base agreement. However Exhibit B (Proposal), Exhibit C (Clarifications), Exhibit D (Fee Schedule) and Exhibit E (Performance Guarantees) are present only as cover sheets on pages 37 through 40, and the Appendix Q price proposal response is absent from the posted proposal volumes. The fee schedule and performance guarantees are therefore not public even though the base contract is.

The rubric

Clause by clause

Each item quotes the contract and cites the page it came from. Items whose pages are redacted are marked unclear and left out of the score.

  • Fiduciary duty and loyalty

    Weight 7 of 100, model section Section 2.4

    Weaker than the model

    All five models reached this verdict. Section 2.3 has Express Scripts agree to act as a fiduciary in good faith with candor and due diligence, and section 5.4(b) on page 7 adds a warranty of utmost good faith, loyalty, candor and skill. That is an express fiduciary undertaking, which is rare in pharmacy benefit contracts, but the duty is framed around performance of the contract rather than loyalty owed solely to the plan and its members. There is no duty to disclose every form of direct and indirect compensation and no disgorgement remedy for value retained in breach, so the clause is weaker than the model contract published by Mark Cuban and collaborators.

    PBM agrees to act as a fiduciary by acting in good faith, with candor and due diligence in connection with the performance of the Contract and any negotiations related thereto.
    Page 2
    Model contract says

    The PBM owes duties of loyalty and care solely to the plan and its members, must disclose all direct and indirect compensation and every economic conflict, and must disgorge anything retained in breach without the plan proving damages.

    Without a loyalty duty the PBM is free to put its own affiliates and revenue ahead of the plan when it exercises discretion over formularies, networks and pricing.

    Model votes: Kimi K3 partial, Grok 4.6 partial, GPT 5.6 Sol partial, Claude Opus 5 partial, Gemini 3.1 Pro partial

  • Full disclosure of compensation and conflicts

    Weight 6 of 100, model section Sections 2.4, 2.6

    Weaker than the model

    Four of five models read this as partial; Gemini 3.1 Pro called it missing because there is no named officer certification. Article 16 on page 22 requires immediate written disclosure of actual or perceived conflicts of interest, and section 4.1(a) and 4.1(e) on page 4 confine the vendor's compensation to what the Fee Schedule lists and route manufacturer program fees to ERS. What is absent is a standing account of all direct and indirect compensation, any schedule of affiliate ownership touching plan claims, disclosure of payments to consultants or brokers, and a quarterly or annual certification by a named officer. Disclosure exists but is event driven rather than a certified accounting, which is the partial verdict.

    PBM warrants and represents that, if at any time after the Effective Date of the Contract, PBM discovers or is made aware of an actual or perceived conflict of interest, appearance of impropriety or Prohibited Communication
    Page 22
    Model contract says

    All PBM and related-entity compensation, affiliate ownership touching plan claims, and payments to consultants or brokers are disclosed, and a named officer certifies quarterly and annually that everything has been disclosed and remitted.

    Hidden revenue streams are the main way plans overpay. Officer certification puts a name on the line.

    Model votes: Kimi K3 partial, Grok 4.6 partial, GPT 5.6 Sol partial, Claude Opus 5 partial, Gemini 3.1 Pro missing

  • Ownership and affiliate disclosure exhibit

    Weight 3 of 100, model section Proposed Exhibit A-5

    Weaker than the model

    Three of five models read this as partial; Gemini 3.1 Pro and Kimi K3 called it missing because the exhibit list on page 34 contains no ownership or affiliate disclosure exhibit and the insurance pages are not a disclosure document. Section 8.1 on page 10 requires immediate notice of any merger, acquisition or change of ownership or control, section 4.1(i) on page 4 names Accredo Health Group, Inc. and Express Scripts Specialty Distribution Services, Inc. as the affiliated specialty pharmacies, and the insurance declaration pages at pages 55 to 58 happen to list many related entities including MATRIX GPO, LLC. None of that is a signed exhibit that maps every owner, affiliate, purchasing entity and rebate aggregator with a duty to refresh it within 30 days. The re-read confirms the disclosure is real but incidental, so the majority verdict stands with low confidence because the two missing votes make a fair point.

    PBM agrees to notify ERS¶ Executive Director immediately upon being able to lawfully make a public announcement of reaching any form of binding agreement in connection with and prior to any merger, acquisition, business reorganization, or other material change of PBM¶s management, ownership or business structure
    Page 10
    Model contract says

    A signed exhibit lists every owner, parent, subsidiary, affiliate, group purchasing organization, rebate aggregator, mail order pharmacy and specialty pharmacy tied to the PBM, and the PBM must refresh it within 30 days of any change in ownership or control.

    The model contract has no ownership exhibit, and the Nautilus Health Institute review of version 3.5 scored conflict of interest 70 of 100 for that gap. A plan cannot police affiliate pricing, steering or GPO pass through if it does not know which companies are affiliates.

    Model votes: Kimi K3 missing, Grok 4.6 partial, GPT 5.6 Sol partial, Claude Opus 5 partial, Gemini 3.1 Pro missing

  • Definitions that close loopholes

    Weight 5 of 100, model section Section 1

    Weaker than the model

    All five models reached this verdict. The rebate definition at section 4.1(i) on pages 5 and 6 is broader than most contracts of its era, sweeping in price protection dollars, price concessions, discounts and any other remuneration, and section 4.1(e) on page 4 folds manufacturer program fees into the same bucket. The definition is then limited on page 6 to amounts received under a contract with a pharmaceutical manufacturer and related to utilization of formulary drugs, so revenue routed through a purchasing entity or tied to non formulary drugs sits outside it. Specialty is defined by which affiliate dispenses rather than by economic function, and generic and pharmacy are not defined at all in the base text.

    The term "Rebates" is intended to include any rebates, price protection dollars, price concessions, discounts, or any other payments or remuneration received by PBM
    Page 5
    Model contract says

    Rebate, manufacturer revenue, affiliate, specialty, generic and pharmacy are defined by economic function, not by label, so value cannot be relabeled (for example as fees) to escape pass-through or guarantees.

    Most PBM revenue leakage happens inside definitions. A narrow definition of rebate lets fees, grants and administrative payments stay with the PBM.

    Model votes: Kimi K3 partial, Grok 4.6 partial, GPT 5.6 Sol partial, Claude Opus 5 partial, Gemini 3.1 Pro partial

  • 100% pass-through of manufacturer revenue

    Weight 11 of 100, model section Section 4

    Weaker than the model

    Four of five models read this as partial; Gemini 3.1 Pro voted good because the clause says all rebates and the definition is broad. Section 4.1(h) on page 5 commits Express Scripts to pay all defined Rebates and all federal subsidies to ERS at least quarterly, which is a genuine pass through promise. It falls short of the model in three ways: the promise is qualified by the words as set forth herein and in Exhibit D, and page 5 says rebates are paid at the applicable rate described in the Fee Schedule, so the text does not itself establish one hundred percent; the definition on page 6 reaches only manufacturer contract payments tied to formulary utilization; and there is no 30 day settlement deadline or closed list of excludable claims. Exhibit D is a cover sheet on page 39, so the operative rate cannot be read.

    PBM shall pay all Rebates to ERS as set forth herein and in Exhibit D based on each Pharmaceutical Manufacturer's drugs or products dispensed to HealthSelect Medicare Rx PDP or HealthSelect PDP Participants. Such Rebates shall be paid to ERS by PBM promptly, but in no event later than on a quarterly basis until all such compensation has been received by ERS.
    Page 5
    Model contract says

    One hundred percent of manufacturer revenue of every kind is paid to the plan, quarterly within 30 days of quarter end, with only a closed list of excludable claims.

    Rebates and other manufacturer payments are the largest dollar item in most PBM contracts. Anything less than 100% of everything is money left with the PBM.

    Model votes: Kimi K3 partial, Grok 4.6 partial, GPT 5.6 Sol partial, Claude Opus 5 partial, Gemini 3.1 Pro good

  • Affiliate pharmacy pricing at acquisition cost

    Weight 5 of 100, model section Section 3.2

    Redacted or unreadable

    Four of five models read this as unclear; Grok 4.6 voted missing because no clause in the base text requires acquisition cost pricing. Pages 3 and 4 define PBM Mail Pharmacy and PBM Specialty Pharmacy as channels owned by Express Scripts or its affiliates, so affiliate dispensing is built into the design, and section 4.1(a) on page 4 places every compensation and reimbursement schedule in the Fee Schedule attached as Exhibit D. Exhibit D is present only as the cover sheet on page 39; the document says the schedule exists but its text is not posted. Because the pricing method for affiliate claims lives in a document that is referenced but withheld from the posted text, the item is unclear rather than missing.

    No verbatim quote is available for this clause.

    Model contract says

    Claims dispensed by PBM-owned or economically related pharmacies (mail, specialty, retail) are invoiced at net acquisition cost plus a stated dispensing fee, with no retained margin and a documentation default if records are not produced.

    Owned pharmacies are where PBMs earn the most margin. Pricing them at cost removes the incentive to steer patients into the PBM's own channels.

    Model votes: Kimi K3 unclear, Grok 4.6 missing, GPT 5.6 Sol unclear, Claude Opus 5 unclear, Gemini 3.1 Pro unclear

  • Benchmark ceiling and cheapest lawful option

    Weight 3 of 100, model section Section 3.3

    Not addressed

    Four of five models read this as missing; Gemini 3.1 Pro voted unclear on the theory that a ceiling might sit in Exhibit D. The substantive votes overrule that, because the base agreement never points to the Fee Schedule for any ceiling and does not use the concept at all. Article 4 on page 4 fixes Medi-span as the AWP pricing source and constrains MAC changes, but nothing caps a claim at a published benchmark or a transparent cash price in any channel, and nothing tests cost claim by claim. The amendments, supplement and service addendum are silent as well.

    No verbatim quote is available for this clause.

    Model contract says

    Plan claim cost can never exceed a published benchmark, for example the transparent cash price at a benchmark site, in any channel and for any drug, and the ceiling is checked claim by claim rather than on average.

    A ceiling protects the plan from paying more through the contract than the public can pay in cash, and a claim level test stops a favorable average from hiding individual overcharges.

    Model votes: Kimi K3 missing, Grok 4.6 missing, GPT 5.6 Sol missing, Claude Opus 5 missing, Gemini 3.1 Pro unclear

  • Cash price protection and deductible credit

    Weight 3 of 100, model section Section 3.4

    Not addressed

    All five models reached this verdict. No provision protects a member from paying more through the plan than the pharmacy cash price, and the words cash price, usual and customary, accumulator and out of pocket maximum do not appear in the contractual text. Section 9.8 on page 12 compensates a participant for vendor error and the service addendum spreads Medicare Part D cost sharing over monthly invoices, but neither counts a cash purchase toward the deductible or bars accumulator adjustments. The subject is absent from every document read.

    No verbatim quote is available for this clause.

    Model contract says

    A member never pays more than the pharmacy cash price or the cheapest lawful price, every cash purchase counts toward the deductible and out of pocket maximum, and no accumulator adjustment is applied against member assistance unless the sponsor elects it in writing.

    Members routinely pay more through the plan than the cash price on the shelf, and a cash purchase that does not count toward the deductible punishes the member for finding the cheaper price.

    Model votes: Kimi K3 missing, Grok 4.6 missing, GPT 5.6 Sol missing, Claude Opus 5 missing, Gemini 3.1 Pro missing

  • MAC list governance

    Weight 5 of 100, model section Section 3.5

    Weaker than the model

    Three of five models read this as partial; GPT 5.6 Sol voted bad because the clause affirmatively lets the vendor change MAC pricing under an ordinary course standard, and Gemini 3.1 Pro voted missing because none of the model's governance elements appear. Section 4.1(d) on page 4 addresses MAC pricing and limits changes to the ordinary course of business with a test protecting retail pharmacy participation, which is a real if soft guardrail. It does not require a single list for what the plan pays and what pharmacies are paid, does not require disclosure of the list, sets no update schedule and gives pharmacies no appeals path with timelines. The subject is addressed with narrower rights than the model, which is the definition of partial.

    PBM may only modify MAC pricing to the extent it is done in the ordinary course of business, so long as any such changes would not reasonably be expected to discourage retail pharmacy participation in the Network.
    Page 4
    Model contract says

    A single MAC list applies to both what the plan pays and what pharmacies are paid, it is disclosed, updated on a schedule, and pharmacies have an appeals path with defined timelines.

    Two MAC lists (one for the plan, one for pharmacies) is the classic spread pricing mechanism.

    Model votes: Kimi K3 partial, Grok 4.6 partial, GPT 5.6 Sol bad, Claude Opus 5 partial, Gemini 3.1 Pro missing

  • No spread pricing

    Weight 9 of 100, model section Sections 2.5, 3.1, 3.5

    Redacted or unreadable

    Four of five models read this as unclear; Grok 4.6 voted missing because no sentence in the base text bars or permits a spread. The word spread never appears. Section 4.1(a) on page 4 commits the reimbursement schedule and administrative fees to the Fee Schedule attached as Exhibit D, and section 4.1(f) on page 5 shows the claims flow, with Express Scripts paying pharmacies first and then being reimbursed by ERS as provided in the RFP. Whether the reimbursement equals what the pharmacy was paid plus a disclosed fee, or is a guaranteed discount arrangement that lets the vendor keep a difference, is decided entirely inside Exhibit D and the RFP, which are present only as cover sheets on pages 36 and 39. The pricing method is referenced but withheld, so the item is unclear.

    No verbatim quote is available for this clause.

    Model contract says

    The plan pays exactly what the pharmacy is paid plus a disclosed administrative fee. The PBM retains no difference between the two, in any channel.

    Spread pricing is an undisclosed markup on every claim. Eliminating it is the single clearest test of a transparent contract.

    Model votes: Kimi K3 unclear, Grok 4.6 missing, GPT 5.6 Sol unclear, Claude Opus 5 unclear, Gemini 3.1 Pro unclear

  • GPO and purchasing entity pass-through

    Weight 4 of 100, model section Section 5

    Not addressed

    All five models reached this verdict. The contract never mentions group purchasing organizations, rebate aggregators or purchasing coalitions, and no clause routes purchase discounts, volume credits or supplier payments received by such entities to the plan. The rebate definition on pages 5 and 6 reaches only remuneration received by the PBM under a contract with a pharmaceutical manufacturer, so revenue collected by a related purchasing entity sits outside the pass through duty by construction. The insurance pages at pages 55 to 58 list MATRIX GPO, LLC among the named insureds, which shows such an affiliate exists, yet nothing requires its revenue to flow to ERS.

    No verbatim quote is available for this clause.

    Model contract says

    Purchase discounts, volume credits and supplier payments received by the PBM or any related purchasing entity (including offshore GPOs) flow to the plan, allocated on disclosed drivers.

    PBMs moved much of their manufacturer revenue into affiliated GPOs after rebate scrutiny increased. A contract that only covers rebates misses this.

    Model votes: Kimi K3 missing, Grok 4.6 missing, GPT 5.6 Sol missing, Claude Opus 5 missing, Gemini 3.1 Pro missing

  • Plan sponsor controls the formulary

    Weight 4 of 100, model section Section 6

    Weaker than the model

    All five models reached this verdict. ERS holds a real approval right: section 4.1(c) on page 4 requires written ERS approval of any material change to plan design including the formulary, and section 4.1(h) on page 5 requires prior approval by ERS representatives for formulary changes. The same sentence names manufacturer rebate arrangements as an accepted reason to change the formulary, which is the incentive the model contract exists to neutralize, and the formulary remains the PBM's own list. There is no lowest net cost analysis with each change and no quarterly report of utilization management outcomes by drug.

    the drugs included on the PBM's Formulary may be modified by PBM, with prior approval by ERS' authorized representatives, from time-to-time as a result of factors including, but not limited to, medical appropriateness, manufacturer rebate arrangements and patent expirations.
    Page 5
    Model contract says

    The plan sponsor approves the formulary and every change, receives lowest-net-cost analysis, and gets utilization management outcomes by drug each quarter.

    A PBM-controlled formulary can favor high-list-price, high-rebate drugs that cost the plan more overall.

    Model votes: Kimi K3 partial, Grok 4.6 partial, GPT 5.6 Sol partial, Claude Opus 5 partial, Gemini 3.1 Pro partial

  • Lowest net cost standard and book of business comparison

    Weight 3 of 100, model section Section 6

    Not addressed

    All five models reached this verdict. No provision imposes a lowest net cost standard on formulary decisions for this plan, requires an annual comparison against the vendor's whole book of business, or requires disclosure when a drug is placed above a cheaper equivalent. Section 4.1(h) on page 5 allows a formulary management program with cost containment initiatives subject to ERS review, which is a process right rather than a cost standard, and section 31.6 on page 29 compares aggregate contract pricing across customers rather than formulary economics. Nothing in the amendments, supplement or service addendum fills the gap.

    No verbatim quote is available for this clause.

    Model contract says

    Formulary decisions must meet a lowest net cost standard for this plan, the PBM delivers an annual comparison against its whole book of business, and any drug placed above a cheaper equivalent is disclosed with the reason.

    Rebate driven formularies can favor a high list price drug that returns more rebate but costs the plan more after the rebate. A stated standard and a book of business comparison make that trade visible.

    Model votes: Kimi K3 missing, Grok 4.6 missing, GPT 5.6 Sol missing, Claude Opus 5 missing, Gemini 3.1 Pro missing

  • Pharmacy network protections and anti-steering

    Weight 7 of 100, model section Section 7

    Weaker than the model

    Three of five models read this as partial; Gemini 3.1 Pro and Kimi K3 called it missing because none of the model's four protections appears. The re-read supports both camps. Section 5.4(d) on page 7 gives ERS sole discretion to implement an alternate retail network with a duty of cooperation, and section 4.1(d) on page 4 bars MAC changes that would discourage retail pharmacy participation, so the plan has some network leverage. But there is no statement that claims are final when adjudicated, no bar on retroactive clawbacks, no bar on volume conditioned reimbursement, no anti steering rule even though affiliated mail and specialty pharmacies are named on pages 3 and 4, and no any willing pharmacy right. The majority verdict stands because the subject is touched, with low confidence because the protections that matter most are absent.

    PBM warrants and represents that it shall cooperate in utmost good faith with ERS if ERS, in its sole discretion, chooses to implement any alternate retail pharmacy network referenced in the RFP or that may hereafter be requested by ERS.
    Page 7
    Model contract says

    Claims are final when adjudicated (no retroactive clawbacks), reimbursement is not conditioned on volume, the PBM may not steer claims into its own pharmacies, and any willing pharmacy may participate at the plan's terms.

    Steering and clawbacks push independent pharmacies out and route patients to PBM-owned channels, reducing choice and often raising cost.

    Model votes: Kimi K3 missing, Grok 4.6 partial, GPT 5.6 Sol partial, Claude Opus 5 partial, Gemini 3.1 Pro missing

  • Most favored pricing and market check

    Weight 3 of 100, model section Section 8

    Weaker than the model

    All five models reached this verdict. Section 31.6 on page 29 is a genuine most favored pricing clause: if Express Scripts gives a similar or smaller government or unaffiliated commercial customer more generous aggregate pricing, the contract shall be amended at ERS' sole option to give equivalent advantage, and the vendor must notify ERS and document the determination. Its limits are that the comparison is measured in the aggregate rather than line by line, only customers of similar size or smaller count, and Express Scripts itself decides whether a comparative agreement is more generous. There is no annual independent market check with a meet, credit or release remedy.

    PBM warrants and represents that if, during the term of this Contract, PBM enters into any agreement with any other governmental customer or any commercial customer not affiliated with PBM, of a similar size or smaller (the Comparative Agreement), by which PBM agrees to perform, deliver or provide equivalent Services, coverages, benefits, supplies or products that PBM is providing in accordance with this Contract for more generous pricing terms
    Page 29
    Model contract says

    The plan automatically receives pricing at least as good as any comparable client, and can run an annual market check with a meet, credit or release remedy.

    Multi-year contracts drift out of market. Without a market check the plan is locked into stale pricing.

    Model votes: Kimi K3 partial, Grok 4.6 partial, GPT 5.6 Sol partial, Claude Opus 5 partial, Gemini 3.1 Pro partial

  • Audit rights, data access and reporting

    Weight 6 of 100, model section Section 9

    Weaker than the model

    Three of five models read this as partial; Claude Opus 5 and Kimi K3 voted good because the audit right is unusually broad. Section 15.5 on page 18 gives ERS an absolute audit right that expressly reaches the vendor's contracts with pharmaceutical manufacturers, section 15.6 adds Texas Insurance Code 1551.067 access to facilities, records and subcontractor agreements and shifts audit costs to the vendor when errors exceed $50,000, section 5.7 on page 9 gives ERS on premises access to claims data, and section 15.13 on page 19 says nothing in the proposal narrows these rights. Three limits keep it short of the model: third party auditors must sign a non disclosure agreement with the vendor, rebate agreement audits under section 15.12 on page 19 are limited to the portions an approved auditor deems necessary and scheduled by agreement, and section 14.3 on page 16 lets the vendor withhold third party pricing data as Third-Party IP. There is no pre adjudication claims access. A strong audit clause with real carve outs is partial.

    PBM specifically understands, acknowledges and agrees that ERS has an absolute right to conduct compliance reviews and/or audits of PBM in connection with PBM's duties and obligations under the Contract
    Page 18
    Model contract says

    The plan may audit with its own auditor, receives full claims-level and financial data on a schedule without asking, has pre-adjudication claims access, and no data is withheld as proprietary.

    You cannot enforce what you cannot see. Audit and data rights are how every other clause gets verified.

    Model votes: Kimi K3 good, Grok 4.6 partial, GPT 5.6 Sol partial, Claude Opus 5 good, Gemini 3.1 Pro partial

  • Plan sponsor owns all plan data

    Weight 4 of 100, model section Sections 9.4, 9.5

    Weaker than the model

    Three of five models read this as partial; Kimi K3 voted good because ownership, non reuse and portability are all present, and GPT 5.6 Sol voted bad because the business associate agreement lets the vendor keep de-identified data forever. Section 13.6 on page 14 makes confidential information, which section 13.4 on page 13 says includes all claims and membership records, the exclusive property of ERS, and section 21.2 on page 26 requires delivery of all ERS related records and data at no cost in a format that needs no specialized software. Against that, section 14.2 on page 16 reserves systems, methodologies and standard reporting to the vendor, section 3.1(2) of the business associate agreement on page 45 permits Express Scripts to de-identify protected health information and maintain it indefinitely, and the service addendum lets participant contact data go to a third party supplier. Ownership of the records is clear while reuse of derived data is not barred, which is weaker than the model.

    The items designated herein as confidential information are the exclusive property of ERS and the Texas Employees Group Benefits Program (the ³GBP´) as applicable
    Page 14
    Model contract says

    The plan sponsor is the sole owner of claims, eligibility, accumulator, rebate and every derived data set, the PBM delivers it in machine readable form on request, and the PBM may not reuse, license or sell it.

    Data ownership decides who can switch vendors, run an audit or check a guarantee. A PBM that owns or licenses plan data can charge for it, withhold it at termination, or resell it.

    Model votes: Kimi K3 good, Grok 4.6 partial, GPT 5.6 Sol bad, Claude Opus 5 partial, Gemini 3.1 Pro partial

  • Performance guarantees with real remedies

    Weight 2 of 100, model section Section 10

    Redacted or unreadable

    All five models reached this verdict. Section 5.5 on page 7 incorporates performance guarantees as Exhibit E, which appears in the base document only as the cover sheet on page 40. Amendment 2 replaces that exhibit with First Amended and Restated Performance Guarantees, and Amendment 2 page 4, where those guarantees appear, is fully redacted. Whether the guarantees are measured quarterly on plan specific data, reconciled in cash, or paid dollar for dollar rather than as capped credits cannot be read.

    No verbatim quote is available for this clause.

    Model contract says

    Guarantees are measured quarterly on plan-specific data, reconciled in cash, and shortfalls are paid dollar for dollar rather than as capped credits.

    Guarantees that are capped or measured on book-of-business data rarely pay out.

    Model votes: Kimi K3 unclear, Grok 4.6 unclear, GPT 5.6 Sol unclear, Claude Opus 5 unclear, Gemini 3.1 Pro unclear

  • Self executing enforcement and two strikes exit

    Weight 3 of 100, model section Sections 10, 12.5

    Weaker than the model

    All five models reached this verdict. Article 9 gives ERS liquidated damages of up to $10,000.00 per default or per calendar day without proving actual damages, section 4.1(g) on page 5 lets ERS offset sums owed against the vendor's fees, and Article 11 on page 12 makes all remedies cumulative. Termination for cause is immediate in ERS' sole opinion under section 2.4(a) on page 2. The remedy is discretionary rather than self executing, the figure is a ceiling rather than a schedule, a notice and cure period generally applies, and there is no defined two strikes exit after a repeat breach or regulatory integrity failure. The performance guarantee credits themselves sit in the redacted Amendment 2 page 4.

    The amount of such liquidated damages, as referred to herein, shall be up to and including $10,000.00 (Ten Thousand Dollars) for each Default or each calendar day beyond the Notice Period or deadline, as applicable, that PBM delays or fails to perform its obligations under this Contract, whichever ERS determines is appropriate.
    Page 12
    Model contract says

    Missed guarantees and late reports trigger liquidated damages or automatic credits without the plan having to prove damages, and a second material breach or regulatory integrity failure lets the sponsor terminate without penalty.

    A right the plan has to litigate to enforce is rarely enforced. Automatic remedies and a defined exit after a repeat failure change the PBM incentives without a lawsuit.

    Model votes: Kimi K3 partial, Grok 4.6 partial, GPT 5.6 Sol partial, Claude Opus 5 partial, Gemini 3.1 Pro partial

  • Amendments only in writing

    Weight 2 of 100, model section Section 11

    Meets the model

    Three of five models read this as good; GPT 5.6 Sol voted bad and Grok 4.6 voted partial because the service addendum says Express Scripts shall give 30 days written notice before changing the pricing structure of the Medicare Prescription Payment Plan program. Section 2.6 on page 2 permits change only by a written agreement executed by both parties, section 4.1(b) on page 4 holds the Fee Schedule unchanged for the term absent mutual written agreement, and the two amendments and the supplement in this record were in fact signed by both sides. The service addendum sentence on page 2 of that document sits directly beneath a sentence saying program changes after the first year require mutual written agreement, so it reads as a notice duty layered on consent rather than a unilateral repricing right, but the two dissenters are right that the drafting is loose and covers a fee whose amount is redacted. The majority verdict stands with reduced confidence.

    The Contract may be altered, extended, modified or amended only by written agreement properly executed by the duly authorized representatives of ERS and PBM
    Page 2
    Model contract says

    No amendment is effective unless signed by both parties; the PBM cannot change economic terms by notice, portal update or updated exhibit.

    Unilateral amendment rights let a PBM quietly rewrite pricing mid-term.

    Model votes: Kimi K3 good, Grok 4.6 partial, GPT 5.6 Sol bad, Claude Opus 5 good, Gemini 3.1 Pro good

  • Termination without penalty

    Weight 2 of 100, model section Section 12

    Meets the model

    Four of five models read this as good; Gemini 3.1 Pro voted partial because the text does not expressly say earned amounts are never forfeited. Section 2.4 on page 2 lets ERS terminate for cause immediately, without cause on ninety days notice, by mutual agreement, or if the Board does not approve funds, and no termination fee appears anywhere in the documents. Section 4.3 on page 6 requires a pro rata refund of prepaid fees within two business days, section 4.1(h) on page 5 continues rebate payments until ERS has received all such compensation, and Article 21 on page 26 requires transition cooperation and delivery of records at no cost. Nothing conditions earned rebates on the contract continuing, so the model's protections are present.

    ERS may terminate the Contract without cause by giving PBM ninety (90) days written notice
    Page 2
    Model contract says

    The plan may terminate for convenience with reasonable notice and without penalty, earned amounts are never forfeited, and a regulatory integrity event is grounds for termination.

    Termination penalties and forfeited rebates are how plans get trapped in bad contracts.

    Model votes: Kimi K3 good, Grok 4.6 good, GPT 5.6 Sol good, Claude Opus 5 good, Gemini 3.1 Pro partial

  • Specialty drug pricing controls

    Weight 3 of 100, model section Sections 1.16, 3.2(d)

    Redacted or unreadable

    Four of five models read this as unclear; Grok 4.6 voted partial because the base text names the affiliated specialty pharmacies without defining specialty by function or setting a ceiling. Section 4.1(i) on page 4 defines PBM Specialty Pharmacy as Accredo Health Group, Inc., Express Scripts Specialty Distribution Services, Inc. and other affiliate pharmacies that primarily dispense Specialty Products, and Specialty Products is never defined. Every drug level rate, channel ceiling and any acquisition cost term for affiliate specialty claims sits in the Fee Schedule that section 4.1(a) incorporates as Exhibit D, present only as the cover sheet on page 39. The specialty pricing controls are referenced but their text is withheld, so the item is unclear.

    No verbatim quote is available for this clause.

    Model contract says

    Specialty is defined by function, drug-level rates act as a ceiling in every channel, and specialty claims at affiliate pharmacies are priced at acquisition cost.

    Specialty drugs are a minority of claims but the majority of spend, and most are dispensed by PBM-owned specialty pharmacies.

    Model votes: Kimi K3 unclear, Grok 4.6 partial, GPT 5.6 Sol unclear, Claude Opus 5 unclear, Gemini 3.1 Pro unclear

  • Gag clause (red flag)

    Weight 0 of 100, model section Sections 9, 14

    Weaker than the model

    Three of five models read this as partial; Claude Opus 5 and Kimi K3 voted good because the confidentiality article runs against the vendor and nothing bars ERS from releasing pricing, rebate or performance data. The re-read shows why the majority saw a limit. Section 13.1 on page 13 confirms ERS is subject to the Texas Public Information Act, and section 13.11 on page 15 tells the vendor to assume its reports may be public records and says ERS has no duty to advocate for the vendor's confidentiality claims, which is favorable. In the same section, ERS' auditors, advisors and consultants may use vendor materials only subject to a non disclosure agreement with the vendor, the vendor may label materials confidential or proprietary and gets notice and a right to argue to the Attorney General against release, and the service addendum is stamped Confidential Information with its fee redacted on page 5. Nothing restricts pharmacies from telling members about cheaper options, and Supplement 1 has the vendor supporting the federal gag clause attestation. A public records posture with vendor labelling rights and an NDA condition on advisors is partial, which sets the red flag.

    ERS and, subject to a non-disclosure agreement with PBM, its auditors, advisors, consultants, and custodians, if applicable, are entitled to use and retain copies of all written materials generated by PBM under this Contract.
    Page 15
    Model contract says

    Nothing in the contract stops the plan from sharing pricing, rebate or performance data with its own advisors, auditors, members, the public or lawmakers, and nothing stops pharmacies from telling patients about cheaper options.

    Confidentiality clauses that treat pricing terms as trade secrets are what keep taxpayers from seeing what their government pays. This is why the A&M contract is partly blacked out.

    Model votes: Kimi K3 good, Grok 4.6 partial, GPT 5.6 Sol partial, Claude Opus 5 good, Gemini 3.1 Pro partial

The council

Five models, every verdict published

The full independent review from each model, the agreement grid, and the synthesis that reconciles them.

Five models from five providers read the full extracted text independently, without seeing one another, and scored every rubric item. Unanimous verdicts stand. Where the council split, the reconciled verdict and the reasoning behind it are written out in the clause by clause section above, and the split is marked here so nobody has to take the resolution on faith. Items a model could not read because of redaction are unclear and excluded from the score. The council agreed outright on 9 of 23 clauses.

Clause by clause verdicts by each council model and the published consensus
ClauseClaude Opus 5Gemini 3.1 ProGPT 5.6 SolGrok 4.6Kimi K3Published
Fiduciary duty and loyaltyWeaker than the modelWeaker than the modelWeaker than the modelWeaker than the modelWeaker than the modelWeaker than the model
Full disclosure of compensation and conflictsSplitWeaker than the modelNot addressedWeaker than the modelWeaker than the modelWeaker than the modelWeaker than the model
Ownership and affiliate disclosure exhibitSplitWeaker than the modelNot addressedWeaker than the modelWeaker than the modelNot addressedWeaker than the model
Definitions that close loopholesWeaker than the modelWeaker than the modelWeaker than the modelWeaker than the modelWeaker than the modelWeaker than the model
100% pass-through of manufacturer revenueSplitWeaker than the modelMeets the modelWeaker than the modelWeaker than the modelWeaker than the modelWeaker than the model
Affiliate pharmacy pricing at acquisition costSplitRedacted or unreadableRedacted or unreadableRedacted or unreadableNot addressedRedacted or unreadableRedacted or unreadable
Benchmark ceiling and cheapest lawful optionSplitNot addressedRedacted or unreadableNot addressedNot addressedNot addressedNot addressed
Cash price protection and deductible creditNot addressedNot addressedNot addressedNot addressedNot addressedNot addressed
MAC list governanceSplitWeaker than the modelNot addressedContradicts the modelWeaker than the modelWeaker than the modelWeaker than the model
No spread pricingSplitRedacted or unreadableRedacted or unreadableRedacted or unreadableNot addressedRedacted or unreadableRedacted or unreadable
GPO and purchasing entity pass-throughNot addressedNot addressedNot addressedNot addressedNot addressedNot addressed
Plan sponsor controls the formularyWeaker than the modelWeaker than the modelWeaker than the modelWeaker than the modelWeaker than the modelWeaker than the model
Lowest net cost standard and book of business comparisonNot addressedNot addressedNot addressedNot addressedNot addressedNot addressed
Pharmacy network protections and anti-steeringSplitWeaker than the modelNot addressedWeaker than the modelWeaker than the modelNot addressedWeaker than the model
Most favored pricing and market checkWeaker than the modelWeaker than the modelWeaker than the modelWeaker than the modelWeaker than the modelWeaker than the model
Audit rights, data access and reportingSplitMeets the modelWeaker than the modelWeaker than the modelWeaker than the modelMeets the modelWeaker than the model
Plan sponsor owns all plan dataSplitWeaker than the modelWeaker than the modelContradicts the modelWeaker than the modelMeets the modelWeaker than the model
Performance guarantees with real remediesRedacted or unreadableRedacted or unreadableRedacted or unreadableRedacted or unreadableRedacted or unreadableRedacted or unreadable
Self executing enforcement and two strikes exitWeaker than the modelWeaker than the modelWeaker than the modelWeaker than the modelWeaker than the modelWeaker than the model
Amendments only in writingSplitMeets the modelMeets the modelContradicts the modelWeaker than the modelMeets the modelMeets the model
Termination without penaltySplitMeets the modelWeaker than the modelMeets the modelMeets the modelMeets the modelMeets the model
Specialty drug pricing controlsSplitRedacted or unreadableRedacted or unreadableRedacted or unreadableWeaker than the modelRedacted or unreadableRedacted or unreadable
Gag clause (red flag)SplitMeets the modelWeaker than the modelWeaker than the modelWeaker than the modelMeets the modelWeaker than the model

Council synthesis: where the five models agreed and where they split

How the council worked

Five frontier models read the same text: contract 21-11565-001 between the Employees Retirement System of Texas and Express Scripts, Inc. for the HealthSelect prescription drug programs, effective December 7, 2022 (Amendment 1, page 1), with a service period of January 1, 2024 through December 31, 2029 (page 2), plus two amendments, a supplement and a service addendum. The seats were Claude Opus 5, GPT 5.6 Sol, Gemini 3.1 Pro, Grok 4.6 and Kimi K3. Each read independently against the same 23 item rubric, derived from the open source model PBM contract published by Mark Cuban and collaborators. We reconciled under a fixed rule: three or more seats agreeing settles a verdict; with no majority the middle vote is taken after re-reading the cited pages; unclear is allowed only where text is redacted or withheld. Every seat's vote is published, including the votes that lost.

Nothing in the base agreement is blacked out, but Exhibits B through E, including the Fee Schedule and Performance Guarantees, appear only as cover sheets on pages 37 to 40, and Amendment 2 page 4, the restated performance guarantees, is fully redacted.

Where the five models agreed

  • Fiduciary language without teeth. All five voted partial: Express Scripts agrees to act as a fiduciary (page 2), but loyalty is not owed solely to the plan and nothing requires disgorgement.
  • Broad rebate definition, narrow edge. All five voted partial: Rebates include price protection and any other remuneration (page 5), but only under a manufacturer contract tied to formulary utilization (page 6).
  • Formulary. All five voted partial: ERS approves changes in advance, but manufacturer rebate arrangements are a listed reason to make them (page 5).
  • Most favored pricing, self measured. All five voted partial: better aggregate pricing given to a comparable customer flows to ERS, but Express Scripts decides whether the test is met (page 29).
  • Enforcement. All five voted partial: liquidated damages of up to $10,000.00 per default or per day (page 12), at ERS' discretion, with no two strikes exit.
  • Four blanks. All five voted missing on cash price protection, GPO pass through and lowest net cost, and unclear on performance guarantees (Amendment 2, page 4 is redacted).

Where they split, and how it was resolved

Fourteen items were not unanimous; every one had a majority.

  • Disclosure. Four partial, Gemini 3.1 Pro missing. Article 16 requires immediate disclosure of conflicts (page 22). Partial.
  • Ownership exhibit. Three partial, Gemini 3.1 Pro and Kimi K3 missing. Change of control notice (page 10) and named specialty affiliates (page 4) are incidental; the exhibit list on page 34 has no ownership schedule. Partial at confidence 0.6.
  • Pass through. Four partial, Gemini 3.1 Pro good. All Rebates are paid at least quarterly, but at the rate in the Fee Schedule (page 5), which is a cover sheet. Partial.
  • Affiliate pricing, spread and specialty. Four unclear each time; Grok 4.6 dissented. Section 4.1(a) puts every reimbursement schedule in Exhibit D (page 4), whose text is not posted (page 39). Referenced but withheld is unclear, not missing.
  • Benchmark ceiling. Four missing, Gemini 3.1 Pro unclear. The base text never points to the Fee Schedule for a ceiling, so missing.
  • MAC governance. Three partial, GPT 5.6 Sol bad, Gemini 3.1 Pro missing. MAC changes are limited to the ordinary course (page 4); no single list, disclosure or appeals. Partial.
  • Network. Three partial, two missing. ERS may implement an alternate retail network (page 7), but there is no clawback bar or anti steering rule. Partial at confidence 0.6.
  • Audit. Three partial, Claude Opus 5 and Kimi K3 good. The audit right reaches manufacturer contracts (page 18), but auditors sign a vendor NDA and rebate audits cover only portions deemed necessary (page 19). Partial.
  • Data ownership. Three partial, Kimi K3 good, GPT 5.6 Sol bad. Records are the exclusive property of ERS (page 14), yet de-identified data may be kept indefinitely (page 45). Partial.
  • Amendments. Three good, GPT 5.6 Sol bad, Grok 4.6 partial. Section 2.6 requires a signed written agreement (page 2); the dissent points to a 30 day notice sentence on M3P pricing (Service addendum, page 2) that sits under a mutual agreement sentence. Good at confidence 0.6.
  • Termination. Four good, Gemini 3.1 Pro partial. Ninety days notice without cause, no fee (page 2). Good.
  • Gag clause. Three partial, Claude Opus 5 and Kimi K3 good. Advisors need a vendor NDA, and the vendor may label material proprietary and argue to the Attorney General (page 15). Partial, which sets the flag.

What only one model caught

  • GPT 5.6 Sol alone voted bad on data ownership, and its page 45 quote is accurate: Express Scripts may keep de-identified health information indefinitely. It lost the vote but the fact stands.
  • Claude Opus 5 alone flagged that ESI may share contact information of members who have not yet enrolled with a third party supplier (Service addendum, page 3).
  • Kimi K3 alone noted that antitrust claims tied to the contract are assigned to ERS (page 27).
  • Grok 4.6 alone noted that section 14.3 lets the vendor withhold third party pricing data as Third-Party IP (page 16).

The bottom line

The reconciled score is 44.4 out of 100, grade Concern, with 81 weight points scored and 19 unclear because affiliate pricing, spread, specialty and performance guarantees live in withheld exhibits and a redacted page. The gag flag is set. The five seats' own scores ran from 36.4 (GPT 5.6 Sol), 37.2 (Grok 4.6) and 38.5 (Gemini 3.1 Pro) to 44.4 (Kimi K3) and 48.1 (Claude Opus 5); three seats would have graded the contract Red flag on their own and two Concern. The reconciled result sits near the top of that range because majorities kept contested items at partial.

Every verdict on this page, from every model, is in the open data: council.csv and council.json. The rubric itself is at /commons/rubric.

Write ups

Reports

The same contract written up for different readers: the people who negotiate these agreements and the people who pay for them.

Good news, bad news: the short version

Good news

The Employees Retirement System of Texas can walk away. Section 2.4 lets ERS end the Express Scripts contract without cause on ninety days written notice (page 2), with no termination fee anywhere in the documents, a pro rata refund of prepaid fees within two business days (page 6), and rebates that keep flowing until ERS has received everything owed (page 5). The five model council rated that clause good, and it is the strongest lever in the file.

Nothing changes without a signature. The contract may be amended only by a written agreement executed by both parties (page 2), and the Fee Schedule is held fixed for the term absent mutual written agreement (page 4). Both amendments and the supplement in this record were in fact signed by both sides.

The audit right is broad. ERS has an absolute right to audit Express Scripts, including the vendor's contracts with pharmaceutical manufacturers (page 18), and audit costs shift to the vendor when errors exceed $50,000 (page 18). Rebates are defined widely, reaching price protection dollars, price concessions and any other remuneration from manufacturers (page 5), and they must be paid over at least quarterly (page 5). Express Scripts agrees to act as a fiduciary (page 2), which most PBM contracts never say. Liquidated damages of up to $10,000.00 per default or per day are available without proving harm (page 12), and no work may be performed outside the United States (page 30).

Bad news

Almost every dollar term is somewhere else. Section 4.1(a) puts the reimbursement schedule and every fee in Exhibit D (page 4), and Exhibit D is a single cover sheet (page 39). Whether Express Scripts keeps a spread between what ERS pays and what pharmacies receive, whether its own Accredo specialty pharmacy (page 4) is paid at acquisition cost, and what the specialty rates are cannot be read. Four rubric items worth 19 of 100 weight points were marked unclear for that reason.

The rebate promise leans on that same missing exhibit. All Rebates are paid as set forth in Exhibit D and at the rate described in the Fee Schedule (page 5), so the text does not itself establish one hundred percent pass through, and the definition only reaches money received under a manufacturer contract for formulary drugs (page 6). Revenue collected by a related purchasing entity sits outside it, and an affiliate named MATRIX GPO, LLC appears on the insurance pages (page 56).

Four protections in the model contract published by Mark Cuban and collaborators are simply absent: no benchmark ceiling on any claim, no protection when a cash price is cheaper than the plan price, no lowest net cost standard for the formulary, and no pass through of group purchasing revenue. ERS must approve formulary changes, but the contract lists manufacturer rebate arrangements as an accepted reason to make them (page 5).

The gag flag is set. ERS' own auditors and consultants may use vendor materials only under a non disclosure agreement with Express Scripts, and the vendor may label material confidential and argue against release to the Attorney General (page 15). The service addendum is stamped Confidential Information and its per member fee is redacted (Service addendum, page 5).

What we could not see

Exhibits B through E, the proposal, clarifications, Fee Schedule and Performance Guarantees, are cover sheets only (pages 37 to 40). Amendment 2 page 4, the restated performance guarantees, is fully redacted. The service addendum fee is blanked (Service addendum, page 5). The council could not score pricing, spread, specialty or performance guarantees, and those are the items that decide what taxpayers pay.

The number

The reconciled score is 44.4 out of 100, grade Concern, computed from 81 scored weight points with 19 excluded as unclear: 4 points good, 64 points partial counted at half, 13 points missing, so (4 + 32) divided by 81. The five seats' own scores ran from 36.4 to 48.1. A strong exit right and a wide audit clause are not enough to make up for a contract whose prices are not on the page.

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The model contract we score against is the open source PBM contract published by Mark Cuban and collaborators, version 3.5. BetterBuy Rx did not write it and is not affiliated with its authors. Read the original on LinkedIn.