Chipman v. Shalala ( 1996 )


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  •                                          PUBLISH
    UNITED STATES COURT OF APPEALS
    Filed 7/18/96
    TENTH CIRCUIT
    MARION W. CHIPMAN,
    Plaintiff-Appellant,
    v.                                                          No. 95-3298
    DONNA E. SHALALA, Secretary of
    Health and Human Services,
    Defendant-Appellee.
    APPEAL FROM THE UNITED STATES DISTRICT COURT
    FOR THE DISTRICT OF KANSAS
    (D.C. No. 94-CV-2361)
    Submitted on the briefs:
    Jean C. Owen, Mission, Kansas, for Plaintiff-Appellant.
    Jackie N. Williams, Acting United States Attorney, Robert A. Olsen, Assistant United States
    Attorney, Kansas City, Kansas (D. Samuel Borin, Acting Chief Counsel, Region VII,
    Department of Health and Human Services, Michael R. Fry, Assistant Regional Counsel,
    Kansas City, Missouri, of Counsel), for Defendant-Appellee.
    Before EBEL, BARRETT, and HENRY, Circuit Judges.
    EBEL, Circuit Judge.
    Plaintiff Marion Chipman appeals the district court’s order affirming the decision of
    the Secretary of Health and Human Services, partially denying plaintiff’s claims for
    Supplementary Medical Insurance Benefits under Part B of the Medicare statute, Title XVIII
    of the Social Security Act. Our jurisdiction over this appeal arises from 
    42 U.S.C. § 405
    (g)
    and 
    28 U.S.C. § 1291
    . We review the Secretary’s decision de novo, but under a deferential
    standard. Looking at the administrative record as a whole, we may overturn the Secretary’s
    decision only “if it is arbitrary, capricious, an abuse of discretion, unsupported by substantial
    evidence, or contrary to law”. Hennepin County Medical Ctr. v. Shalala, 
    81 F.3d 743
    , 748
    (8th Cir. 1996). Applying these standards, and after due consideration of the arguments
    presented on appeal, we affirm.1
    In 1990, plaintiff underwent jaw bone augmentation surgery which later permitted the
    placement of porcelain veneer crowns. Appellant’s App., Vol. I at 15. The record is clear
    that, previous to these procedures, plaintiff was suffering from ulcers and jaw bone atrophy.
    Id. at 13. Further, the various doctors plaintiff consulted agreed that the surgery and
    porcelain veneer crowns were medically necessary due to those conditions and his inability
    to function with dentures. Id. at 100, 101, 106, 107. In 1991, plaintiff submitted Medicare
    1
    After examining the briefs and appellate record, this panel has determined
    unanimously that oral argument would not materially assist the determination of this appeal.
    See Fed. R. App. P. 34(a); 10th Cir. R. 34.1.9. The case is therefore ordered submitted
    without oral argument.
    -2-
    claims for payment of both the surgery and the crowns. After an initial administrative denial
    and a second denial following a hearing before a hearing officer, plaintiff requested a hearing
    before an administrative law judge (ALJ). The ALJ concluded that payment for the bone
    augmentation surgery was covered by Medicare, but payment for the porcelain veneer crowns
    was not. Id. at 12-16. Plaintiff’s request for review with the Appeals Council was denied.
    Plaintiff then filed a complaint in federal district court. The district court affirmed the
    agency’s decision, and plaintiff now appeals.
    On appeal, plaintiff argues that payment for the porcelain veneer crowns should be
    covered by Medicare because 1) the crowns were part of a medically necessary procedure to
    treat his underlying medical conditions, 2) Congress did not intend that the dental exclusion
    under 42 U.S.C. § 1395y(a)(12) prevent coverage of dental procedures which are required
    to treat underlying medical conditions, and 3) the crowns were “incidental to and an integral
    part of” covered procedures to treat plaintiff’s ulcers and jaw bone atrophy under provisions
    of the Medicare Coverage Issue Manual.
    -3-
    Plaintiff argued before both the ALJ and the Appeals Council that treatment of his
    underlying medical conditions rendered the dental implants medically necessary and
    therefore not excluded by the general dental services exclusion, 42 U.S.C. § 1395y(a)(12).2
    Appellant’s App., Vol I at 4, 72-74, 76-78. The ALJ concluded only that the porcelain
    veneer crowns were not covered. Id. at 15. The district court stated that the exception in
    § 1395y(a)(12) for underlying medical condition applies only to claims under part A of the
    Medicare statute, and noted that plaintiff’s claim was submitted under part B. Appellant’s
    App., Vol. II at 127. We agree, and plaintiff does not contend otherwise on appeal. Further,
    we agree with the district court that a characterization of the porcelain veneer crowns as
    medically necessary, without further authority or basis for an exception from the general
    2
    That section reads:
    (a) Notwithstanding any other provision of this subchapter, no payment may
    be made under part A or part B of this subchapter for any expenses incurred
    for items or services--
    ***
    (12) where such expenses are for services in connection with the care,
    treatment, filling, removal, or replacement of teeth or structures directly
    supporting teeth, except that payment may be made under part A of this
    subchapter in the case of inpatient hospital services in connection with the
    provision of such dental services if the individual, because of his underlying
    medical condition and clinical status or because of the severity of the dental
    procedure, requires hospitalization in connection with the provision of such
    services.
    -4-
    dental services exclusion, does not support plaintiff’s claim that payment for the crowns
    should be covered by Medicare. Id. at 126; see Goodman v. Sullivan, 
    891 F.2d 449
    , 451 (2d
    Cir. 1989)(Medicare does not cover all medically necessary services).          Plaintiff did not
    present his remaining two arguments on appeal to either the ALJ or the Appeals Council.
    Accordingly, he has waived those points and we decline to address them. See Pleasant
    Valley Hosp., Inc. v. Shalala, 
    32 F.3d 67
    , 70 (4th Cir. 1994)(stating, in Medicare
    reimbursement dispute, it is “inappropriate” to consider arguments not raised before agency);
    Papendick v. Sullivan, 
    969 F.2d 298
    , 302 (7th Cir. 1992)(applying rule that issues “must first
    be raised administratively” in review of decision to exclude physician from Medicare
    program,), cert. denied, 
    506 U.S. 1050
     (1993); Avol v. Secretary of Health & Human Servs.,
    
    883 F.2d 659
    , 661 (9th Cir. 1989)(declining to address issues not presented to Appeals
    Council); see also Osborne v. Babbitt, 
    61 F.3d 810
    , 814 (10th Cir. 1995)(contentions not
    argued in administrative proceedings waived in federal appeal).
    The judgment of the United States District Court for the District of Kansas is
    AFFIRMED.
    -5-