Opinion ID: 1980709
Heading Depth: 2
Heading Rank: 2

Heading: The Commencement Decision

Text: [¶ 18] The Collaborative contends that the Maine Certificate of Need Act of 2002 and the regulations promulgated under this version of the CON Act govern whether SMMC/MMC had commenced its CON project. The Department contends that the Collaborative failed to assert in its reconsideration petition that the wrong law and regulations were applied, and therefore this Court should disregard this argument. [¶ 19] In order to preserve an issue on appeal, that issue needs to be raised at the administrative agency level. See Hale v. Petit, 438 A.2d 226, 230 (Me. 1981); see also Seider v. Bd. of Exam'rs of Psychologists, 2000 ME 206, ¶ 37, 762 A.2d 551, 562. Given the ex parte nature of the Commencement Decision, however, we agree with the Superior Court's conclusion that the Collaborative could not have raised the issue any earlier than it did. The issue of which version of the CON Act applies is properly before this Court. [¶ 20] Absent clear and unequivocal language to the contrary, the repeal or amendment of an Act does not affect any proceeding pending at the time of the repeal or amendment. 1 M.R.S.A. § 302 (1989). A proceeding includes, but is not limited to, petitions or applications for licenses or permits required by law at the time of their filing. Id. [¶ 21] The Collaborative argues that the determination of commencement was a proceeding separate from the decision awarding the CON. In determining whether a proceeding is separate for purposes of 1 M.R.S.A. § 302, we consider whether the proceeding was initiated by a separate application, before a separate tribunal, governed by a different set of standards. See Larrivee v. Timmons, 549 A.2d 744, 746 (Me.1988). [¶ 22] Here, the Commissioner's determination that SMMC/MMC's project had commenced was not a proceeding separate from the application and award of the CON to SMMC/MMC. The Commencement Decision directly involves SMMC/MMC's CON project. The decision was made by the same tribunal, the Commissioner, who applied the same set of standards, the Certificate of Need Act of 1978. [¶ 23] Because both the Collaborative and SMMC/MMC filed their applications prior to the effective date of the Maine Certificate of Need Act of 2002, the Certificate of Need Act of 1978 and its regulations govern. [¶ 24] We now review whether SMMC/MMC's project had commenced pursuant to the 1978 CON Act. This is a question of statutory interpretation reviewed de novo. See Costain v. Sunbury Primary Care, P.A., 2008 ME 142, ¶ 5, 954 A.2d 1051, 1052. [¶ 25] As part of its administration of the Certificate of Need Act of 1978, the Department publishes a manual, which includes statutory provisions of the CON Act, as well as regulations promulgated pursuant to the Maine Administrative Procedures Act. The 1998 Maine Certificate of Need Procedures Manual for Health Care Facilities (CON Manual) was the governing manual at the time of SMMC/MMC's and the Collaborative's applications. [¶ 26] Chapter 9 of the CON Manual, entitled Scope of Certificates of Need Issued, includes the regulations applicable to 22 M.R.S.A. § 317-A (2001). [8] Title 22 M.R.S.A. § 317-A(3) states [a] certificate of need expires if the project for which the certificate has been issued is not commenced within 12 months following the issuance of the certificate. The regulations provide [s]hould a holder of a certificate of need be litigating a complaint relative to the issuance of said certificate, then the project for which the certificate of need was issued shall be deemed to have commenced. [9] CON Manual, Chapter 9: Scope of Certificates of Need Issued, 3(C) (1998). Thus, the plain meaning of section 317-A(3) is cleara CON is deemed commenced, and therefore cannot expire, if the holder of the CON is litigating a complaint relative to the issuance of the CON. [¶ 27] SMMC/MMC's CON was awarded on February 4, 2003, and the Collaborative filed its 80C appeal on this final agency action on May 5, 2003. Pursuant to 22 M.R.S.A. § 317-A(3) and the regulations explaining this provision, SMMC/MMC's project had commenced and the CON had not expired. [¶ 28] The Collaborative also argues that even if the 1998 CON Manual applies, the regulations pertaining to section 317-A(3) are invalid because they exceed the Department's rule-making authority. The Collaborative raises this argument by relying on and incorporating the argument made in its Superior Court brief. [¶ 29] By briefing an issue in this manner, the Collaborative has not supported its position that the court erred when it found that the regulation did not exceed the Department's rule-making authority. When a party provides no argument as to how the Superior Court erred or why the court's decision should be vacated, we have applied the well-settled appellate rule that issues adverted to in a perfunctory manner, unaccompanied by some effort at developed argumentation, are deemed waived. Mehlhorn v. Derby, 2006 ME 110, ¶ 11, 905 A.2d 290, 293 (quoting United States v. Zannino, 895 F.2d 1, 17 (1st Cir.1990)). We therefore decline to reach this issue. [¶ 30] The Superior Court did not err when it affirmed the Commissioner's decision that SMMC/MMC's project had commenced. We affirm this judgment.