Opinion ID: 465003
Heading Depth: 1
Heading Rank: 2

Heading: the secretary's power to promulgate a regulation

Text: EXTENDING TIME TO APPEAL 9 As a preliminary matter, we must consider whether the Secretary had power to promulgate the regulation involved here. Although neither the Secretary nor Western raised this issue, and, indeed, no litigants would ever have reason to raise it, we must consider whether the Secretary exceeded her statutory authorization by promulgating a regulation extending the time allowed for appeal under a statute which may be jurisdictional in nature. 10 As a general rule, we cannot consider on appeal from an agency decision an issue not raised before the agency. See, e.g., United States v. L.A. Tucker Truck Lines, 344 U.S. 33, 37, 73 S.Ct. 67, 69, 97 L.Ed. 54 (1952); Reid v. Engen, 765 F.2d 1457, 1460 (9th Cir.1985). But that general rule has exceptions. We may decide an issue not raised in an agency action if the agency lacked either the power or the jurisdiction to decide it. Reid, 765 F.2d at 1461; see Tucker, 344 U.S. at 38, 73 S.Ct. at 69-70; Motor & Equipment Manufacturers Association v. EPA, 627 F.2d 1095, 1114-15 (D.C.Cir.1979), cert. denied, 446 U.S. 952, 100 S.Ct. 2917, 64 L.Ed.2d 808 (1980). The question whether section 1395oo is a jurisdictional statute that cannot be extended by administrative regulations goes to the power and jurisdiction of the Board's action. 11 We conclude that the regulation, 42 C.F.R. Sec. 405.1841(b), does not violate the statutory mandate because section 1395oo is not a narrow jurisdictional statute. Neither the language nor the history of the statute indicates that Congress intended to create a jurisdictional bar to extension of the time limit by the Board; rather, the provision was intended to assure a right to appeal within the 180 days. The statute states that any provider of services may obtain a hearing.... (emphasis added). Compare Columbia Manufacturing Corp. v. NLRB, 715 F.2d 1409, 1410 (9th Cir.1983) (per curiam) (statute found to be jurisdictional and thus time limit was non-waivable because statute involved waiver of sovereign immunity and language provided that a party shall, within thirty days of a final disposition ..., submit to the agency an application) (emphasis added). The legislative history notes only that the time limit must be observed if the Board is to be required to grant a hearing. See H.R.Rep. No. 92-231, 92d Cong., 2d Sess., reprinted in 1972 U.S.Code Cong. & Ad.News 4989, 5094. Finally, while courts are the final authority on statutory construction, we will give considerable deference to an agency's interpretation of a statute it administers, particularly if the statute is ambiguous. See Chevron, U.S.A., Inc. v. Natural Resources Defense Council, 467 U.S. 837, 104 S.Ct. 2778, 2782, 81 L.Ed.2d 694 (1984); California Hospital Association v. Henning, 770 F.2d 856, 859 (9th Cir.1985); Sudomir v. McMahon, 767 F.2d 1456 (9th Cir.1985). The Secretary's interpretation that section 1395oo allows the Board to extend the time limit for good cause shown is a permissible construction of the statute. See Chevron, 104 S.Ct. at 1782. 12