Opinion ID: 2132355
Heading Depth: 1
Heading Rank: 3

Heading: Reduction in Project Scope from the Original Application for a Determination of Need.

Text: As our earlier recitation of facts reveals, the originally proposed scope of the project was reduced during the course of the department's review and before the department staff published its summary and recommendation. The plaintiffs say that they were not apprised of the new proposal until the staff summary was published twenty-one days prior to the hearing before the department. The plaintiffs argue that the hospital's failure to send the plaintiffs a copy of its new proposal violated 105 Code Mass. Regs. §§ 100.110(B) and 100.534(C) (1986), and that the department abused its discretion granted under 105 Code Mass. Regs. §§ 100.110(D) and 100.531(B)(3) (1986), by failing to dismiss the hospital's application. Accordingly, the plaintiffs assert, the Health Facilities Appeals Board erred in affirming the department's decision. The short but adequate answer to the plaintiffs' contention is that reversal of agency action on account of defective notice is unwarranted except where substantial prejudice is demonstrated. Solimeno v. State Racing Comm'n, 400 Mass. 397, 406 (1987). The plaintiffs make no such demonstration. When the staff summary was published on September 2, 1986, it disclosed the fact of the department's request to the hospital, as well as the hospital's responsive proposal. Thereafter, the plaintiffs had three weeks before the department hearing to review the application. On September 11, the plaintiffs submitted comments on the staff summary. The comments did not include any objection to the time permitted for response or a request for additional time to review the staff summary and prepare comments. Two of the plaintiffs' representatives, including their legal counsel, testified at the department hearing and made no objection to the time available to prepare their comments. The plaintiffs fail to show that they would have altered their analysis and recommendation in any way had they received notice of the modification in the application any earlier. The plaintiffs also argue that the hospital proposed such a substantial alteration in the nature, scope, financing [and] costs of the original project that the original proposal should have been withdrawn under 105 Code Mass. Regs. § 100.355 and a new proposal submitted. Had that occurred, the plaintiffs argue, the 1984 use-rate figures would have been applied to the bed need calculation, and at most 892 beds could have been approved. We do not reach this issue. Nothing in the record suggests that the issue was raised before the department as is required by 105 Code Mass. Regs. § 100.970. A party is not entitled to raise arguments on appeal that he could have raised, but did not raise, before the administrative agency. Albert v. Municipal Court of the City of Boston, 388 Mass. 491, 493 (1983). See Seagram Distillers Co. v. Alcoholic Beverages Control Comm'n, 401 Mass. 713, 724 (1988); Gurry v. Board of Pub. Accountancy, 394 Mass. 118, 126 (1985). While the cited cases involved adjudicatory proceedings, which this case does not, see Howe v. Health Facilities Appeals Bd., supra at 534; 105 Code Mass. Regs. § 100.410(C) (1986), no sufficient reason appears not to apply the same rule here.