A) Note the trend.
B) Spot the problem.
Ancillary data: Private business (and even public facilities at county and state level, to a lesser extent) generally only needs or adds additional administration positions to comply with burdensome government regulations, as otherwise, they add nothing to the business model except excess costs.
See if you can therefore guess a way to cut healthcare costs by decreasing the number of administrators necessary to do business.
Answers up to and including the use of tactical "special" weapons on certain agencies in Washington D.C. are fair game for discussion.
Bonus point: look at the graph timeline on the "x" axis. See if you can deduce what changed in America in the early 1990s that might have necessitated an increase in administrators.
Elections. Consequences. Self-assembling.