Why are rules considered to be plans?
Rules are rigid instructions.They spell out specific required actions or non actions, allowing no discretion. Rules lay down what is to be done and what is not to be done. They are generally formalized in writing and impersonal in nature. That is why they are considered to be plans.
No the medicare rules are federal and will not be changes state to state. You may be thinking of medical which is a state program only. Well, yes and no. There are federal laws that all supplement insurance plans must follow, but the insurance companies who sell these plans are also subject to state insurance rules.
"Rules" are distinguished from "statutes". Rules are generally called "regulations". Rules for the various federal public agencies are found in the Code of Federal Regulations (CFR). Rules that are being proposed, considered or recently adopted are first published in the Federal Register each month. When proposed rules are adopted after a public comment period, they are published in the Code of Federal Regulations.
I think you're asking "What is Immoral?" If so, morals are rules a society as a whole chooses and agrees to live by, so anyone, anything, or practice, that breaks down that social structure would be considered immoral. If you have rules in your heart you've chosen to live by and you go against those rules that could also be considered to be immoral, but only by you, or God, in the latter case.