Reading Comprehension (RC) | Re: The recent news that local hospitals have had to reroute

Would anyone please exlplain the question 4 ?
option C tells that ' there will always be uninsured hospital patients. ' its a safe answer though it uses extreme word always.
Where can I get the notion of that the author intends to say 'failed legislation' ........for what ? is it really D ?

Thanks in advance.

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