McMeans v. Scripps Health Inc.

McMeans v. Scripps Health Inc.

Filed 3/26/02

CERTIFIED FOR PUBLICATION

COURT OF APPEAL, FOURTH APPELLATE DISTRICT

DIVISION ONE

STATE OF CALIFORNIA

PAUL E. MCMEANS et al.,

D035486

Plaintiffs and Appellants,

v.

(Super. Ct. No. 722004)

SCRIPPS HEALTH,

Defendant and Respondent.

APPEAL from a judgment of the Superior Court of San Diego County, Thomas R.

Murphy, Judge. Affirmed in part and reversed in part.

Blumenthal, Ostroff & Markham, Sheldon A. Ostroff, David R. Markham and

Michael D. Marchesini for Plaintiffs and Appellants.

Friestad & Giles and Deborah Giles for Defendant and Respondent.

Masnatt, Phelps & Phillips, Barry S. Landsberg and Harvey L. Rochman for

Catholic Healthcare West as Amicus Curiae on behalf of Defendant and Respondent.

Paul E. McMeans, Joseph P. Denny, and Mary Ann Shaul, as class representatives

(Class members), appeal from an order granting summary judgment in favor of Scripps

Health, Inc. (Scripps) and Medical Liability Recoveries, Inc. (MLR).1 The Class

members are patients who were treated at a Scripps hospital for injuries caused by third

parties and who sued those third parties. The Class members were insured by providers

who had entered into contracts with Scripps that specified fixed charges agreed to in

advance for covered services. Class members and/or their insurance providers paid

Scripps in full for the care provided to Class members. MLR then placed liens in favor of

Scripps on the judgments or settlements Class members received from the third parties or

their insurance providers under California’s Hospital Lien Act (HLA), Civil Code 2

sections 3045.1 through 3045.6. In each case, the liens were based upon charges that

were greater than the amounts Scripps had agreed to accept from the insurance providers.

Class members contend the court erred in granting summary judgment because

Scripps placed section 3045.1 liens on Class members’ recovery when Class members

owed no debts to Scripps. Class members also contend the court should have granted

their motion for summary adjudication of Scripps’s affirmative defense that it was

privileged to assert the liens under section 47, subdivision (b)(2) and of their cause of

action for declaratory relief. We reverse the order granting summary judgment in favor

of Scripps. We affirm the court’s denial of Class members’ motion for summary

1
MLR is in bankruptcy. Accordingly, the appeal is stayed as to MLR under section
362 of the Bankruptcy Code (11 U.S.C. § 362) and we sever MLR from the appeal.
2
All further statutory references are to the Civil Code unless otherwise specified.

2

adjudication of Scripps affirmative defense of the section 47, subdivision (b)(2) privilege.

We affirm in part and reverse in part the court’s denial of Class members’ motion for

summary adjudication of the cause of action for declaratory relief.

FACTUAL AND PROCEDURAL HISTORY

In November 1996, McMeans was injured in an automobile accident caused by an

uninsured third party and was treated at Scripps Mercy Hospital. As a result of his

accident, McMeans suffered pain in his ribs that interrupted his sleep and prevented him

from sitting, standing, driving and bending. Because he could not work for a period, he

sustained lost income of $6,250. McMeans settled with Farmers Insurance for $35,500,

the uninsured motorist limits of the insurance policy that covered the car in which

McMeans was a passenger.

At that time of his treatment, McMeans was insured under a preferred provider

insurance plan issued by Aetna Life Insurance Company (Aetna) and Scripps Mercy

Hospital was a participating provider under the Aetna plan. Although Aetna paid Scripps

the contract rate for McMeans’s treatment and Farmers Insurance paid McMeans’s share

of the contract rate, MLR asserted a lien on behalf of Scripps in the amount of $4,298.86

against McMeans’s settlement.

On June 5, 1998, Shaul was injured in an automobile accident and underwent

surgery at Scripps Memorial Hospital, consisting of open reduction internal fixation of

her medial malleolus and right talus, and bone grafting of her right talus. As a result, she

was totally disabled for about six months and lost income of about $60,000. She

continues to have chronic right leg and ankle pain, which may require additional medical

3

treatment. Further, Shaul has incurred out-of-pocket expenses of about $5,000 for

therapy, orthotic devices, and chiropractic treatment.

In June 1998, Shaul was insured under Sharp Health Plan, a managed care plan.

Sharp Health Plan paid Scripps the contracted rate for Shaul’s treatment and Shaul paid a

$100 copayment. Shaul settled with Farmer’s Insurance for $100,000, the insurance

policy limits of the tortfeasor responsible for her injuries. MLR filed a lien on behalf of

Scripps in the amount of $6,168.17 “upon any damages which a claim of action has been

brought or will be brought.”

On April 17, 1996, Denny was injured in an automobile accident and sustained

multiple head, neck, shoulder and knee injuries. He later had neck surgery at Scripps

Memorial Hospital, which consisted of an anterior cervical discectomy and fusion.

Denny was disabled for several months, resulting in lost wages in excess of $4,000. As a

result of his injuries, Denny continues to suffer limited movement in his neck and chronic

pain. He can no longer participate in activities he used to enjoy, such as hiking,

bicycling, and physical education with his students. Denny received $100,000 in

settlement.

At the time of surgery, Denny was insured under the CaliforniaCare HMO plan of

Blue Cross of California and Scripps Memorial was a participating provider under that

plan. Blue Cross paid Scripps the contract rate for its services and Denny paid any

applicable copayments or deductibles. Nine days after Denny’s settlement, MLR filed a

lien on behalf of Scripps for $13,790.38 on Denny’s recovery from the tortfeasor.

4

This class action was filed on July 1, 1998. The operative complaint is the third

amended complaint, which was filed on October 18, 1999, and contains causes of action

for unfair business practices, violation of the consumer legal remedies act, trespass to

chattels, breach of contract, negligence, accounting, unjust enrichment, declaratory relief,

mandatory injunction and prohibitory injunction.

On April 21, 1999, the trial court certified the laws uit as a class action “to include

as class plaintiffs all persons who: [1] were injured in accidents and thereafter treated at

hospitals operated by ScrippsHealth (‘Scripps’); [2] were insured under individual or

group medical insurance plans, including but not limited to Health Maintenance

Organization plans, Preferred Provider Organization plans and /or Managed Care plans;

[3] whose medical insurers have contracted with Scripps in which Scripps agreed to

provide covered services for the insurer’s policyholders/beneficiaries at negotiated

discounted rates; or alternatively, pursuant to the Knox-Keene Health Care Service Plan

Act of 1975, the payments received by Scripps based on pre-determined rates from the

patient’s insurer (plus any applicable co-pay or deductible) constitute full payment; [4]

whose bills at such negotiated discounted rates or pre-determined rates have been paid;

and [5] against whom Scripps within the last four years either directly, or through the

action of Medical Liability Recoveries, Inc. or any other agent of Scripps, has asserted a

lien under Civil Code section 3045.1 demanding payment of the difference between the

negotiated discounted rate or pre-determined rate and Scripps’ ordinary full charge for the

covered service.”

5

On May 21, the court denied Scripps’s motion for judgment on the pleadings,

which asserted that each cause of action was barred by the litigation privilege. (§ 47,

subd. (b)(2).) On September 2, the court denied a renewed motion for judgment on the

pleadings.

The parties then agreed to file cross-motions for summary adjudication and

summary judgment. Class members filed a motion for summary adjudication of Scripps’s

thirteenth affirmative defense, the privilege conferred under section 47, subdivision

(b)(2), and the eighth cause of action for declaratory relief. Scripps filed a motion for

summary judgment. On February 23, 2000, the court granted Scripps’s motion for

summary judgment and denied Class members’ motion for summary adjudication.

DISCUSSION

I. Summary Judgment

Summary judgment is granted when there is no triable issue as to any material fact

and the moving party is entitled to judgment as a matter of law. (Code Civ. Proc.,

§ 437c, subd. c.) We review de novo the trial court’s decision to grant summary

judgment and are not bound by the trial court’s stated reasons or rationales. (Hersant v.

Department of Social Services (1997) 57 Cal.App.4th 997, 1001.) Further, we review

issues of statutory interpretation de novo. (Heavenly Valley v. El Dorado County Bd. of

Equalization (2000) 84 Cal.App.4th 1323, 1334. )

A. Hospital Lien Act (HLA)

Section 3045.1 provides: “Every person, partnership, association, corporation,

public entity, or other institution or body maintaining a hospital licensed under the laws

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of this state which furnishes emergency and ongoing medical or other services to any

person injured by reason of an accident or negligent or other wrongful act . . . , shall, if

the person has a claim against another for damages on account of his or her injuries, have

a lien upon the damages recovered, or to be recovered, by the person . . . to the extent of

the amount of the reasonable and necessary charges of the hospital . . . , in which services

are provided for the treatment, care, and maintenance of the person in the hospital or

health facility affiliated with the hospital resulting from that accident or negligent or

other wrongful act.” Section 3045.1 creates a “statutory nonpossessory lien . . . in favor

of a hospital against third persons liable for the patient’s injuries.” ( Mercy Hospital &

Medical Center v. Farmers Ins. Group of Companies (1997) 15 Cal.4th 213, 217

(Mercy ).) The lien “compensates a hospital for providing medical services to an injured

person by giving the hospital a direct right to a certain percentage of specific property,

i.e., a judgment, compromise, or settlement, otherwise accruing to that person .” ( Ibid.,

italics added.)

Scripps contends section 3045.1 creates a direct obligation between the tortfeasor

and the hospital in the amount of the hospital’s reasonable charges and the amount of its

lien is not based upon the injured patient’s debt to the hospital. Scripps bases its

contention upon section 3045.3, which requires the hospital to give notice of its lien only

to the tortfeasor and the tortfeasor’s insurer; section 3045.4, which requires the tortfeasor

to pay the hospital directly; and section 3045.5, which gives the hospital a cause of action

to enforce its lien against the tortfeasor, not against the injured patient. These provisions

7

define who shall pay the hospital, but do not define from whose property the payment is

made.

Class members contend they and/or their insurance providers had paid Scripps in

full for its services and, by placing a lien on their recoveries, Scripps seeks amounts

greater than the amounts Scripps agreed to accept from the providers. In addressing

issues raised by Class members, we initially note, notwithstanding the class certification,

the contracts between Class members and their insurance providers and between Scripps

and the insurance providers differ substantially. As we will discuss below, Scripps

wrongfully placed a lien on the recovery of two of the class representatives but rightfully

placed a lien on the recovery of the third class representative.

The issues raised in this appeal were recently addressed in Nishihama v. City &

County of San Francisco (2001) 93 Cal.App.4th 298, 306-309 ( Nishihama ). We find the

reasoning of Nishihama compelling and elect to follow it.

“Even if the HLA contemplated an independent right in the hospital, the extent of

that right would be defined by any contract between the injured party or her insurer and

the health care provider. Civil Code section 3045.4 accordingly provides that the third

party ‘shall be liable to the [health care provider] for the amount of its lien claimed in the

notice which the hospital was entitled to receive as payment for the medical care and

services rendered to the injured person.’ (Italics added.) The amount that a hospital is

entitled to receive as payment necessarily turns on any agreement it has with the injured

person or the injured person’s insurer.” (Nishihama, supra, 93 Cal.App.4th at pp. 307-

308.)

8

The patient’s debt to the hospital is the foundation for the hospital’s right to a lien.

(Nishihama, supra, 93 Cal.App.4th at p. 308.) The “reasonable and necessary charges,”

then, are the charges made to the patient or the patient’s insurance provider. The HLA

does not give hospitals a cause of action against tortfeasors; it allows hospitals to place a

lien on the patient’s cause of action. The amount of the lien is the “reasonable and

necessary charges” for the patient’s treatment. (§ 3045.1.) If these charges have been

paid, the hospital has no amount, reasonable or otherwise, it may seek from a third-party

tortfeasor.

Although Scripps contends it seeks payment from tortfeasors, there is no question

such payments ultimately come from the Class members. Under California law, the most

a personal injury plaintiff can recover for medical services is the amount that has been

paid or incurred for those services, even if that amount is less than the market rate.

(Hanif v. Housing Authority (1988) 200 Cal.App.3d 635, 641.)

In the cases involved in Class members’ class action, those amounts are based

upon Class members’ medical insurance contracts and the contracts those insurance

providers negotiated with Scripps. If Scripps’s liens exceed these amounts, then Scripps

collects more from the Class members’ judgments or settlements than the Class members

are legally entitled to recover for medical expenses. In effect, Scripps collects the portion

of Class members’ judgments attributable to lost wages or pain and suffering.

Accordingly, we conclude Scripps’s “lien rights do not extend beyond the amount it

agreed to receive from [Class members’ insurance providers] as payment in full for

services provided to [Class members].” (Nishihama, supra, 93 Cal.App.4th at p. 307.)

9

We also reject Scripps’s contention that the legislative history of section 3040,

enacted in September 2000, gives it a right to place a section 3045.1 lien for its usual and

customary charges. Section 3040 limits the lien rights of medical providers to the

amount they actually paid for the health care, but specifically exempts hospitals pursuing

section 3045.1 liens. (§ 3040, subd. (g)(3).) The Consumer Attorneys of California

argued to the Legislature that section 3040 should apply to hospital liens and provided the

Legislature with a copy of Satsky v. United States of America (S.D.Texas 1998) 993

F.Supp. 1027, 1029 (holding that a hospital could not place a lien on a patient’s recovery

under a Texas statute similar to section 3045.1 because the statute “was clearly not

intended to overcompensate hospitals that accept patients who do have the ability to pay,

nor to provide a windfall for hospitals who feel aggrieved by the circumscription of

hospital charges by insurance plans”).

The fact that section 3040 expressly places no limit on a hospital’s lien rights says

nothing about whether those lien rights were already limited under the HLA. Further,

subsequent legislation is, at best, an unreliable gauge of legislative intent. (United States

v. Price (1960) 361 U.S. 304, 312 [recognizing that “the views of a subsequent Congress

form a hazardous basis for inferring the intent of an earlier one”].) For similar reasons,

we do not place much weight on the existence of other statutory liens that purportedly

exist in the absence of an underlying debt. The unique nature of a hospital lien under the

HLA makes such comparisons questionable.

B. Insurance Contracts

We look at Class members’ medical insurance contracts and the contracts Scripps

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entered into with those providers in order to determine whether the liens are lawful.

When we review the contracts of the three class representatives, we find Scripps was not

entitled to place a lien on the recoveries of McMeans or Shaul, but was entitled to place a

lien on Denny’s recovery.

1 . McMeans

The Aetna insurance plan that covered McMeans provides that if a third party is

liable for a patient’s injury, Aetna shall be subrogated to the patient’s recovery to the

extent of the benefits Aetna paid. McMeans was treated at Scripps Mercy Hospital. The

contract between Scripps Mercy Hospital and Aetna provides in part: “In no event . . .

shall any Member be liable to Hospital for any sums owed to Hospital by the applicable

Payor. In addition, neither Hospital nor its agents, trustees, or assignees shall maintain

any action at law against a Member to collect sums owed by the applicable Payor;

provided, however, that Hospital may collect from Members co-payments, coinsurance or

deductibles for Covered Services, or amounts due for non-Covered Services. Amounts

for non-Covered Services may be charged at Hospital’s usual and customary charges.”

This agreement provides that Scripps may not collect payment from patients insured by

Aetna, other than copayments or deductibles, unless the service provided to the patient is

not covered under the insurance agreement. This agreement allows Scripps to bill at its

usual and customary rate for services not covered in the patient’s insurance agreement.

Scripps does not contend McMeans’s treatment was for noncovered services. Therefore,

in McMeans’s case, Scripps was not entitled to place a lien on McMeans’s recovery based

upon its reasonable and necessary charges.

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Scripps contends, however, that it may collect its reasonable and necessary fees

from a third party tortfeasor, under the “Coordination of Benefits” (COB) section of its

agreement with Aetna, which states the following: “Hospital shall be entitled to all COB

recoveries relating to Covered Hospital Services. Hospital shall make a reasonable effort

to seek reimbursement for Covered Hospital Services under other third party coverages

when applicable. . . . For per diem or discount off charges payments, in the event that

Payor is the secondary carrier under the coordination of benefits rules, Payor shall be

required to pay Hospital the difference between Hospital’s full customary charges and the

amount collected by Hospital from third party payors, but in no event to exceed the

amount the Payor is required to pay if it were the primary carrier.”

We are not persuaded by this contention. Coordination of benefits is a term used

when there is duplicate health care coverage. ( Kaiser Foundation Health Plan, Inc. v.

Lifeguard, Inc. (1993) 18 Cal.App.4th 1753, 1757.) The term “coverage” is normally

used to refer to insurance coverage. For instance, Insurance Code section 10270.98 states

in part: “Group disability policies may provide, among other things, that the benefits

payable thereunder are subject to reduction if the individual insured has any other

coverage (other than individual policies or contracts) providing hospital, surgical or

medical benefits, whether on an indemnity basis or a provision of service basis, resulting

in such insured being eligible for more than 100 percent of the covered expenses.”

(Italics added.) The reference to “coverage” is clearly a reference to other insurance

coverage. A tort obligor does not provide insurance coverage. Additionally, although the

contract does not expressly define the term “third party payor,” it clearly contemplates an

12

institutional payer, such as another insurance company or Medicare. (See Palumbo v.

Myers (1983) 149 Cal.App.3d 1020, 1030-1034 [a settling third party tortfeasor is not a

“third party payer” as the term is used in Welfare and Institutions Code section 14019.4].)

Therefore, this contract provision does not change our analysis.

2. Shaul

Shaul was enrolled in the Sharp Choice plan. Scripps’s contract with Sharp

provided in part: “Hospital shall obtain Authorization for a Member and shall not bill or

not allow Plan Providers or any other providers to bill, or attempt to collect from a

member for services rendered, except for Copayments and noncovered services.” Like

Aetna’s agreement with Scripps, this agreement provides that Scripps may not collect

payment from patients insured by Aetna, other than copayments or deductibles, unless the

service provided to the patient is not covered under the insurance agreement.

Shaul’s contract with Sharp provides in part: “If you or your Dependent are

injured in an accident caused by a negligent or intentional act or omission of another

person, the Plan will advance Covered Benefits subject to an automatic lien by agreement

to reimburse the Plan for any recoveries or reimbursement you receive from the person

who caused the injury.” Although this contract allows Sharp to place a lien and uses the

word “advance,” it does not specifically exclude benefits. Therefore, as in McMeans’s

case, Scripps was not entitled to place a lien on Shaul’s recovery based upon its

reasonable and necessary charges.

3. Denny

Unlike the prior contracts, Denny’s CaliforniaCare contract with Blue Cross does

13

not provide benefits for medical care of injuries caused by third parties. Under the

heading “Reimbursement for Acts of Third Parties,” the CaliforniaCare disclosure form

states in part: “No benefits will be provided under this plan for medical care for, or

received in connection with, any illness, injury, or condition for which a third party may

be liable or legally responsible by reasons of negligence, an intentional act or breach of

any legal obligation. But benefits will be provided under this plan subject to the

following: [¶] 1. CaliforniaCare and your medical group will automatically have a lien

to the extent of benefits provided, upon any recovery, whether by settlement, judgment or

otherwise, that you receive from the third party, the third party’s insurer, or the third

party’s guarantor. The lien will be for the reasonable cash value of the benefits provided

by your medical group or by us under this plan for the treatment of the illness disease,

injury or condition for which the third party is liable. . . .” (Original italics omitted;

italics added.)

The Ninth Circuit interpreted a similar provision in another Blue Cross contract3

and held the following: “The contract excludes Blue Cross from liability for injuries

tortiously caused by third parties, and provides an exception for benefits which will be

3
“Blue Cross relied on Section Seven AA of the policy which excluded coverage
for ‘[a]ny illness, injury or other condition for which a third party may be liable or legally
responsible by reason of negligence, an intentional act or breach of any legal obligation
on the part of such third party. Nevertheless, Blue Cross will advance the benefits of this
Agreement to the Member subject to the following: . . . Blue Cross will automatically
have a lien, to the extent of benefits advanced, upon any recovery, whether by settlement,
judgment or otherwise, that the Member receives from the third party . . . .’ ” (Qualls v.
Blue Cross of California (9th Cir. 1994) 22 F.3d 839, 842.)

14

advanced in anticipation of possible future recovery. Once recovery has been made, the

conditions of the exception no longer exist and the exclusion remains.” (Qualls v. Blue

Cross of California, supra, 22 F.3d at p. 845, original italics.) That is, under the

CaliforniaCare plan, Blue Cross does not provide benefits for medical care for injuries

caused by a third party tortfeasor. It merely advances money.

Because Denny was injured by a third party tortfeasor, his medical services were

not covered under the CaliforniaCare plan. Blue Cross merely advanced payment to

Scripps on Denny’s behalf. Therefore, the contract between Scripps and Blue Cross does

not govern the amount Scripps may charge for the medical services it provided to Denny.

Instead, under the CaliforniaCare plan, Scripps may place a lien for the “reasonable cash

value of the benefits” it provided.

Although Scripps has shown it has a contractual right to place a lien on Denny’s

recovery, Scripps has not met its burden of proof that the lien is for “reasonable and

necessary charges.” (§ 3045.1.) The reasonable value and necessity of Scripps’s services

are questions of fact. Although the amount paid or incurred for hospital services is some

evidence as to its value, we also require evidence of the value and necessity of the

professional services of the physicians and the hospital. (Guerra v. Balestrieri (1954)

127 Cal.App.2d 511, 520; Harris v. Los Angeles Transit Lines (1952) 111 Cal.App.2d

593, 598 ( Harris).) Typically, a physician testifies as to these issues. (See Harris, supra,

111 Cal.App.2d at p. 598.) Scripps produced a declaration by Clelia Ki-Ki Barbeau,

president and CEO of MLS. She declared, “The lien asserted . . . is the difference

between the payment from the insurer and the actual reasonable and customary charges

15

incurred by the patient.” (Italics added.) Class members objected to this evidence under

Evidence Code section 702. The court did not rule as to the objection. Under Biljac

Associates v. First Interstate Bank (1990) 218 Cal.App.3d 1410, 1420, we “presume[] on

appeal that a judge has not relied on irrelevant or incompetent evidence.” Accordingly,

we presume the court sustained the objection as to Barbeau’s use of the word

“reasonable.” Barbeau had no personal knowledge of the reasonable value of the medical

services Scripps provided to Denny. Further, Scripps introduced no evidence that its

services were necessary. Accordingly, Scripps has produced no admissible evidence that

the amount of the lien on Denny’s recovery was reasonable. Therefore, summary

adjudication of the amount of Denny’s debt to Scripps is inappropriate.

Because Scripps was not entitled to place a lien on McMeans’s or Shaul’s

recoveries and because there is a triable issue of fact as to the reasonable value of the

services Scripps provided to Denny, the court erred by granting summary judgment.

II. Section 47, Subdivision (b)(2)

Class members contend the court erred by denying their motion for summary

adjudication of Scripps’s thirteenth affirmative defense, the privilege conferred by section

47, subdivision (b)(2). Class members contend this privilege does not apply because

Scripps’s actions were not communicative and were not connected to litigation. We

disagree.

The privilege conferred by section 47, subdivision (b)(2), bars all tort causes of

action, other than malicious prosecution, based upon conduct protected by the privilege.

(Silberg v. Anderson (1990) 50 Cal.3d 205, 215-216.) The principal purpose of the

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privilege is to afford litigants and witnesses freedom of access to the courts without fear

of being subsequently harassed by derivative tort actions. ( Id. at p. 213.) “[T]he

privilege applies to any communication (1) made in judicial or quasi-judicial

proceedings; (2) by litigants or other participants authorized by law; (3) to achieve the

objects of the litigation; and (4) that has some connection or logical relation to the

action.” ( Id. at 212.) “Further, it applies to any publication required or permitted by law

in the course of a judicial proceeding to achieve the objects of the litigation, even though

the publication is made outside the courtroom and no function of the court or its officers

is involved.” ( Ibid.)

We reject Class members’ contention that the filing of liens in favor of Scripps was

not connected with any litigation. “If the publication has a reasonable relation to the

action and is permitted by law, the absolute privilege attaches.” ( Albertson v. Raboff

(1956) 46 Cal.2d 375, 381.) A federal court held that a lien for the treatment of a Medi-

Cal patient filed under Welfare and Institutions Code section 14124.791 was sufficiently

related to the claims in the Medi-Cal patient’s personal injury action to support

intervention as of right. ( Ghazarian v. Wheeler (C.D.Cal. 1997) 177 F.R.D. 482, 486-

487.) The court relied upon two cases that allow intervention by the holder of a

protectable statutory lien interest because, in part, “this interest relates to a cognizable

legal interest in any monetary proceeds resulting from a settlement or judgment in the

action.” ( Id. at p. 487, relying upon Diaz v. Southern Drilling Corp (5th Cir. 1970) 427

F.2d 1118, 1124 [tax lien] & McDonald v. E.J. Lavino Co., (5th Cir. 1970) 430 F.2d

1065, 1071 [insurance provider’s lien under workers compensation law].) Similarly, a

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hospital filing a section 3045.1 lien has an interest to be adjudicated in an injured person’s

personal injury lawsuit because if the injured person does not prove the third party’s

liability, the hospital’s lien loses all value. The publication of the notice of lien is

reasonably related to the personal injury action because it informs the tortfeasor and/or

the tortfeasor’s insurance provider that the amount of the lien, unless a smaller amount is

prescribed by section 3045.4, must be paid directly to the hospital. Therefore, Scripps’s

liens were filed in connection with the tort actions brought by Class members.

We also reject Class members’ contention that Scripps’s actions are not protected

by the privilege because Scripps engaged in a tortious course of conduct that incidentally

included the publication of the lien. Class members claim their injuries are due, not to

the imposition of the lien, but to the wrongful collection process. Class members rely

upon LiMandri v . Judkins (1997) 52 Cal.App.4th 326, 345 ( LiMandri), where we held

that a privileged communication does not shield a defendant from liability for a wrongful

course of conduct that incidentally includes the communication. In LiMandri, an attorney

had a fee agreement granting him a portion of the clients’ recovery. ( Id. at p. 334.) The

defendant allegedly interfered with that contractual relationship by arranging a loan to the

clients secured by the same recovery and filing a notice of lien in the lawsuit asserting the

lender’s security interest in the recovery. ( Id. at p. 345.)

This case is distinguishable from LiMandri. The security interest in LiMandri was

created by executing documents; filing the notice of lien was merely incidental to the

creation of the security interest. ( Id. at pp. 342, 346.) In contrast, the HLA requires a

hospital to send notice of the HLA lien to the third party and his insurance provider.

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(§ 3045.3.4) Further, the course of tortious conduct in LiMandri included executing the

security interest, refusing to concede the superiority of the attorney’s lien, and inducing

the clients to breach their fee agreement with the attorney. ( Id. at p. 345.) In contrast, the

wrongful conduct Class members have identified is Scripps’s overcharging them by

noticing liens.5 The act of overcharging is the same act as the assertion of the lien on

Class members’ recoveries. Labeling the assertion of a lien as an attempt to overcharge

Class members does not change its nature as a communicative act.

The privilege conferred by section 47, subdivision (b)(2), bars Class members’ tort

causes of action against Scripps. It does not, however, bar those causes of action that do

not lie in tort, including the eighth cause of action for declaratory relief.

III. Declaratory Relief

Class members contend the court erred by denying their motion for summary

adjudication of the cause of action for declaratory relief. In the motion for summary

adjudication of the eighth cause of action, Class members asked the court for a judicial

4
Section 3045.3 provides in part: “A lien shall not be effective, however, unless a
written notice . . . is delivered . . . to each person, firm, or corporation known to the
hospital and alleged to be liable to the injured person for the injuries sustained . . . .
(Italics added.)

5
Class members appear to contend Scripps engaged in a tortious course of conduct
because Scripps published the liens in bad faith. There is no evidence Scripps published
the liens in bad faith. At the time Scripps filed the liens, no California appellate court
had decided the issue posed by this appeal, and several trial courts had enforced Scripps’s
liens.

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declaration that (1) Scripps’s collection practices and the assertion of liens in favor of

Scripps is unlawful and (2) Class members are not indebted to Scripps for the amounts

asserted in the liens.

A party may bring an action for declaratory relief under Code of Civil Procedure

section 1060, which provides in part: “Any person interested under a written instrument,

excluding a will or a trust, or under a contract, or who desires a declaration of his or her

rights or duties with respect to another, or in respect to, in, over or upon property, . . .

may, in cases of actual controversy relating to the legal rights and duties of the respective

parties, bring an original action . . . in the superior court . . . for a declaration of his or her

rights and duties in the premises, including a determination of any question of

construction or validity arising under the instrument or contract.” A declaratory relief

action may be brought on behalf of a class, Serrano v. Priest (1971) 5 Cal.3d 584, 618,

and may be used to determine the construction of a statute, Lane v. City of Redondo

Beach (1975) 49 Cal.App.3d 251, 255, as well as the rights and duties of the parties under

a contract.

As discussed above, the liens Scripps placed on the recoveries of McMeans and

Shaul were not lawful and those two class representatives owe no debt to Scripps.

Therefore, we reverse the court’s denial of Class members’ motion for summary

adjudication of the declaratory relief cause of action as to those two class representatives.

On the other hand, Scripps’s assertion of a lien on Denny’s recovery is lawful because

Blue Cross, Denny’s insurance provider, does not provide benefits when an insured is

injured by a third party tortfeasor. Accordingly, we affirm the court’s denial of Class

20

members’ motion for summary adjudication of the declaratory relief cause of action as to

Denny.

DISPOSITION

In accordance with this court’s order of June 11, 2001, staying this appeal as to

Medical Liability Recoveries, Inc. under title 11 United States Code section 362, Medical

Liability Recoveries, Inc.’s appeal is severed from that of Scripps Health.

The court’s grant of summary judgment in favor of Scripps is reversed. The

court’s denial of Class members’ motion for summary adjudication of Scripps’s defense of

privilege under section 47, subdivision (b)(2) is affirmed. The court’s denial of Class

members’ motion for summary adjudication of their eighth cause of action for declaratory

relief is reversed as to class representatives McMeans and Shaul, but affirmed as to class

representative Denny. Class members and Scripps to bear their own costs on appeal.

O’ROURKE, J.

CERTIFIED FOR PUBLICATION

WE CONCUR:

BENKE, Acting P. J.

McDONALD, J.

21

McSwane v. Bloomington Hosp. and Healthcare Sys.

McSwane v. Bloomington Hosp. and Healthcare Sys.

DUTY TO PROTECT PATIENTS

McSwane v. Bloomington Hosp. and Healthcare Sys., No. 53A04-0705-CV-243 (Ind. Ct. App. Mar. 12, 2008)

In a case where a patient was killed by her allegedly abusive ex-husband shortly after being discharged from a hospital into his custody, the Court of Appeals of Indiana reversed summary judgment that had been granted in favor of the hospital. The court held that a hospital has a statutory duty to report suspected abuse of an endangered adult. Further, the court found that the hospital’s independent duty to safeguard its patient from dangers that might result from circumstances within the hospital’s control extends to the discharge of a patient into the custody of the person who allegedly inflicted the injuries that led to the patient’s hospitalization. The court also concluded that the patient’s contributory negligence (her conscious decision to leave with her ex-husband) was insufficient to warrant summary judgment because the patient’s physical and mental condition had not been adequately taken into account.

 

McLaren Reg.’l Med. Ctr. v. City of Owosso

McLaren Reg.’l Med. Ctr. v. City of Owosso

S T A T E O F M I C H I G A N

C O U R T O F A P P E A L S

MCLAREN REGIONAL MEDICAL CENTER
and MCLAREN MEDICAL MANAGEMENT,
INC.,

v

Petitioners-Appellants,

Respondent-Appellee.

CITY OF OWOSSO,

WEXFORD MEDICAL GROUP,

v

Petitioner-Appellant,

Respondent-Appellee.

CITY OF CADILLAC,

Before: Smolenski, P.J., and White and Kelly, JJ.

PER CURIAM.

UNPUBLISHED
August 24, 2004

No. 244386
Tax Tribunal
LC No. 00-268590

No. 250197
Tax Tribunal
LC No. 00-276304

In Docket No. 244386, petitioners McLaren Regional Medical Center (“MRMC”) and
McLaren Medical Management, Inc. (“MMM”), appeal as of right from the judgment of the
Michigan Tax Tribunal denying their requests for exemption from respondent City of Owosso’s
ad valorem taxation of their real property under the General Property Tax Act, MCL 211.1 et
seq., for tax years 1999 and 2000. Petitioners sought exemption from taxation under MCL
211.7r (hospital or public health purposes) and MCL 211.7o (charitable institution). In Docket
No. 250197, petitioner Wexford Medical Group (“Wexford”) appeals as of right from the Tax
Tribunal’s judgment denying its request for exemption from respondent City of Cadillac’s ad
valorem taxation of Wexford’s real and personal property for tax years 2000 and 2001. Wexford
also sought exemption under MCL 211.7r and MCL 211.7o, as well as MCL 211.9(a) (personal
property of charitable institution exempt). We affirm.

-1-

The standard governing our review of a decision of the Tax Tribunal is set forth in
ProMed Healthcare v Kalamazoo, 249 Mich App 490, 491-492; 644 NW2d 47 (2002), quoting
Rose Hill Center, Inc v Holly Twp, 224 Mich App 28, 31; 568 NW2d 332 (1997):

Judicial review of a determination by the Tax Tribunal is limited to determining
whether the tribunal made an error of law or applied a wrong [legal] principle.
Generally, this Court will defer to the Tax Tribunal’s interpretation of a statute
that it is delegated to administer. The factual findings of the tribunal are final,
provided that they are supported by competent, material, and substantial evidence
on the whole record. [Citations omitted.]

A petitioner must establish its entitlement to exemption by a preponderance of the evidence.
ProMed Healthcare, supra at 495. Tax exemption statutes are strictly construed in favor of the
taxing authority. Michigan United Conservation Clubs v Lansing Twp, 423 Mich 661, 664; 378
NW2d 737 (1985).

Docket No. 250197

On appeal, Wexford argues that it was entitled to the charitable institution exemptions
under MCL 211.7o and MCL 211.9(a), because its health care services at the subject property are
available to the general public without restriction, regardless of the ability to pay, and lessen the
burdens of government. We disagree.

As in ProMed Healthcare, supra at 500, Wexford failed to present evidence that its

“provision of charitable medical care constituted anything more than an incidental part of its
operations.” Specifically, the evidence indicated that Wexford provided no-cost services to only
two people in 2000, and eleven people in 2001, which amounted to writing off $129.13 in 2000,
and $2,229.09 in 2001. Thus, the Tax Tribunal properly concluded:

This case cannot be distinguished from Pro[M]ed [Healthcare]. While, unlike
Pro[M]ed [Healthcare], Petitioner is able to document the number of individuals
it has served under its charity care policy, serving 13 patients under that program
in [a] two-year time period is not sufficient for a medical practice that has up to
44,000 patient visits per year . . . [and] that Petitioner’s current operating budget
was approximately $10 million.

Further, the Tax Tribunal did not err in concluding that Wexford’s financial losses from
maintaining an open-door policy and accepting an unlimited number of Medicare and Medicaid
patients did not render it a charitable institution. The services provided to these patients was not
charity. Rather, they were performed in exchange for payment from the governmental programs.
That the amount of payment under these programs often does not cover the cost of providing the
service does not change the character of the service from service in exchange for payment to
charity. Further, it is undisputed that Wexford’s aim is to become profitable.

Nor did the Tax Tribunal err in rejecting Wexford’s argument that it qualified as a

charitable institution because it provided health care services in a “health professional shortage
area.” While Wexford’s presence in the community is laudable, as is the presence of other health
care professionals, the services were, nevertheless, with the exception of thirteen patients,

-2-

performed in exchange for compensation. The Tribunal did not err in concluding that Wexford
failed to establish that it was a charitable institution.

The Tax Tribunal also did not err in determining that Wexford was not entitled to an
exemption on the basis that the property was used as a hospital or for public health purposes
under MCL 211.7r. In Rose Hill Center, Inc, supra at 33, the Court looked to a dictionary
definition of “public health”:

[t]he art and science of protecting and improving community health by means of
preventative medicine, health education, communicable disease control, and the
application of the social and sanitary sciences. [Id., quoting The American
Heritage Dictionary: Second College Edition.]

In ProMed Healthcare, supra at 500, this Court held that the public health exemption under
MCL 211.7r is not available for “a fairly typical medical practice, where patients are expected to
pay for medical care received, either through private or governmental insurance programs.” The
Court reasoned:

If we were to accept ProMed’s argument and reverse the Tax Tribunal’s ruling in
the present case, we would in effect be granting tax-exempt status to every
doctor’s office in the state, as well as every organization offering health-related
services, as long as those organizations are structured as nonprofit corporations
and maintain policies of offering some “appropriate” level of charity medical
care to indigent persons. We cannot conclude that the Legislature intended MCL
211.7o and 211.7r to create such a result. [ProMed Healthcare, supra at 500-
501.]

The Tax Tribunal found that Wexford’s operations were similar to the previous Medical
Arts Group and those provided by Dr. Betts-Barbus at her own private medical practice, and that
Wexford’s operations parallel a typical private medical clinic, rather than an organization that
provides public health services. The Tax Tribunal further found that the services that Wexford
claims as serving public health purposes were “inherent to the medical profession.” These
findings are supported by competent, material, and substantial evidence on the whole record.
Because the evidence disclosed that the property was used to operate a fairly typical medical
office, the Tax tribunal did not err in concluding that the exemption under MCL 211.7r was not
available. ProMed Healthcare, supra at 500-501.

Docket No. 244386

The Tax Tribunal did not err in finding that MRMC and MMM were not entitled to the
charitable exemption under MCL 211.7o. Under ProMed Healthcare, supra at 499, petitioners
were required to show that “the organization’s activities, taken as a whole, constitute a charitable
gift for the benefit of the general public without restriction or for the benefit of an indefinite
number of persons.” Neither MMM nor MRMC made that showing. Rather, the evidence
disclosed that the total revenue for the subject property was $533,082.08 in 1998 and
$579,792.12 in 1999. During the same time, the family medical practice operated by MMM
granted only $271.40 of services to charity patients, and generally only when its collection
efforts failed. Further, there was no evidence that the laboratory draw station, the weight

-3-

management clinic or the physical therapy program operated by MRMC granted any charity.
And, to the extent MMM and MRMC argue that the clinic’s open-door policy and its acceptance
of Medicaid patients without limitation renders it a charitable institution, it is no different from
Wexford. Thus, the Tax Tribunal did not err in finding that neither MRMC nor MMM were
entitled to an exemption as a charitable institution.

The Tax Tribunal also did not err in concluding that MRMC and MMM were not entitled
to the hospital or public health exemption under MCL 211.7r. Regarding MMM, the Tax
Tribunal concluded that MCL 211.7r did not apply because MMM did not own the property
during the tax years in question. We need not review this issue because we conclude that like
Wexford, MMM did not establish that it operated other than as a typical private medical clinic,
rather than an organization that provides public health services. ProMed Healthcare, supra. The
focus of the services provided was the individual patient, rather than the public at large. While
some public health services were indeed provided, these were limited and would not support a
finding that the property was used for public health purposes.

The Tax Tribunal also properly concluded that MRMC was not entitled to the hospital or
public health exemption under MCR 211.7r. First, MRMC did not operate a hospital at the
subject property as defined by MCL 333.20106. An MRMC representative acknowledged that
the subject property was not a hospital, and that the laboratory draw station, and the weight
management and physical therapy programs operated by MRMC on the premises were
“extensions of hospital outpatient departments.” Accordingly, the Tax Tribunal did not err in
finding that “MRMC is not using the subject property for purposes unique to the operation of an
inpatient hospital but for purposes that are commonly performed in non-hospital settings.”

Further, MRMC did not establish that it was entitled to the public health exemption under
MCR 211.7r. The record adequately supports the Tax Tribunal’s finding that “[t]he central focus
of MRMC’s activities . . . is medical care and treatment of individual patients and not the
community at large.” The Tax Tribunal’s conclusion that the Legislature did not intend that
“every nonprofit organization offering health-related services would qualify for a public health
exemption” is consistent with this Court’s decision in ProMed Healthcare, supra. The Tax
Tribunal did not err in finding that MRMC was not entitled to the public health exemption under
MCR 211.7r.

Affirmed.

/s/ Michael R. Smolenski
/s/ Helene N. White
/s/ Kirsten Frank Kelly

-4-

McMeans v. Scripps Health Inc.

McMeans v. Scripps Health Inc.

Filed 7/24/02 (opn. on rehearing)

CERTIFIED FOR PUBLICATION

COURT OF APPEAL, FOURTH APPELLATE DISTRICT

DIVISION ONE

STATE OF CALIFORNIA

PAUL E. MCMEANS et al.,

D035486

Plaintiffs and Appellants,

v.

(Super. Ct. No. 722004)

SCRIPPS HEALTH,

Defendant and Respondent.

APPEAL from a judgment of the Superior Court of San Diego County, Thomas R.

Murphy, Judge. Affirmed in part and reversed in part.

Blumenthal, Ostroff & Markham, Sheldon A. Ostroff, David R. Markham and

Michael D. Marchesini for Plaintiffs and Appellants.

Friestad & Giles and Deborah Giles for Defendant and Respondent.

Manatt, Phelps & Phillips, Barry S. Landsberg and Harvey L. Rochman for

Catholic Healthcare West as Amicus Curiae on behalf of Defendant and Respondent.

Paul E. McMeans, Joseph P. Denny, and Mary Ann Shaul, as class representatives

(Class members), appeal from a judgment granting summary judgment in favor of

Scripps Health, Inc. (Scripps) and Medical Liability Recoveries, Inc. (MLR) and denying

their motion for summary adjudication. 1 The Class members are patients who were

treated at hospitals operated by Scripps for injuries caused by third parties, who the Class

members had sued. The Class members were insured by medical insurance carriers,

some of whom had entered into contracts with Scripps that specified fixed charges agreed

to in advance for covered services. Class members and/or their medical insurance

carriers paid Scripps for services provided to Class members. MLR on behalf of Scripps

then placed liens on the judgments or settlements Class members received from the third

parties or their liability insurance carriers under California’s Hospital Lien Act (HLA),

Civil Code sections 3045.1 through 3045.6.2 In each case, the liens were greater than the

amounts Scripps had been paid by the Class members or their medical insurance carriers.

Class members filed this class action against Scripps on July 1, 1998. The

operative complaint is the third amended complaint, filed on October 18, 1999, which

contains causes of action for unfair business practices, violation of the consumer legal

remedies act, trespass to chattels, breach of contract, negligence, accounting, unjust

enrichment, declaratory relief, mandatory injunction and prohibitory injunction.

1
MLR is in bankruptcy. In accordance with the court’s orders of June 11, 2001 and
July 24, 2002, the appeal is stayed as to MLR under section 362 of the Bankruptcy Code
(11 U.S.C. § 362) and we sever MLR from the appeal.

2

All further statutory references are to the Civil Code unless otherwise specified.

2

Class members contend the court erred in granting summary judgment for Scripps

because Scripps placed section 3045.1 liens on Class members’ recovery although Class

members owed no debts to Scripps. Class members also contend the court should have

granted their motion for summary adjudication of Scripps’s affirmative defense that it

was privileged to assert the HLA liens under section 47, subdivision (b)(2) and of their

cause of action for declaratory relief. We reverse the order granting summary judgment

in favor of Scripps. We affirm the court’s denial of Class members’ motion for summary

adjudication of Scripps affirmative defense of the section 47, subdivision (b)(2) privilege.

We affirm in part and reverse in part the court’s denial of Class members’ motion for

summary adjudication of their cause of action for declaratory relief.

FACTUAL AND PROCEDURAL HISTORY

In November 1996 McMeans was injured in an automobile accident caused by an

uninsured third party and was treated at Scripps Mercy Hospital. As a result of his

accident, McMeans suffered pain in his ribs that interrupted his sleep and prevented him

from sitting, standing, driving and bending. Because he could not work for a period, he

sustained lost income of $6,250. McMeans settled his claim for $35,500, the uninsured

motorist limits of the Farmers Insurance policy that covered the car in which McMeans

was a passenger.

At that time of his treatment, McMeans was insured under a preferred medical

provider insurance plan issued by Aetna Life Insurance Company (Aetna) and Scripps

3

Mercy Hospital was a participating health provider under the Aetna plan. Although

Aetna paid Scripps Aetna’s share of the contract rate for McMeans’s treatment and

Farmers Insurance paid McMeans’s share of the contract rate, MLR asserted a lien on

behalf of Scripps in the amount of $4,298.86 against McMeans’s settlement.

In June 1998 Shaul was injured in an automobile accident and underwent surgery

at Scripps Memorial Hospital, consisting of open reduction internal fixation of her medial

malleolus and right talus, and bone grafting of her right talus. As a result, she was totally

disabled for about six months and lost income of about $60,000. She continues to have

chronic right leg and ankle pain, which may require additional medical treatment. Shaul

has incurred out-of-pocket expenses of about $5,000 for therapy, orthotic devices, and

chiropractic treatment.

In June 1998 Shaul was insured under Sharp Health Plan, a managed care plan,

which had no contract with Scripps Memorial Hospital. Sharp Health Plan paid Scripps

for Shaul’s treatment and Shaul paid a $100 copayment. Shaul settled with the third party

tortfeasor for $100,000, the liability insurance policy limits of the tortfeasor. MLR filed

a lien on behalf of Scripps in the amount of $6,168.17 “upon any damages which a claim

of action has been brought or will be brought.”

In April 1996 Denny was injured in an automobile accident and sustained multiple

head, neck, shoulder and knee injuries. He later had neck surgery at Scripps Memorial

Hospital, which consisted of an anterior cervical discectomy and fusion. Denny was

disabled for several months, resulting in net lost wages in excess of $4,000. As a result

of his injuries, Denny continues to suffer limited movement in his neck and chronic pain.

4

He can no longer participate in activities he used to enjoy, such as hiking, bicycling, and

physical education with his students. Denny received $100,000 in settlement.

At the time of surgery, Denny was insured under the CaliforniaCare HMO plan of

Blue Cross of California and Scripps Memorial Hospital was a participating health

provider under that plan. Blue Cross paid Scripps for its services and Denny paid the

applicable copayments or deductibles. Nine days after Denny’s settlement, MLR filed a

lien on behalf of Scripps for $13,790.38 on Denny’s recovery from the tortfeasor.

In April 1999 the trial court certified Class members’ lawsuit against Scripps as a

class action “to include as class plaintiffs all persons who: [1] were injured in accidents

and thereafter treated at hospitals operated by ScrippsHealth (‘Scripps’); [2] were insured

under individual or group medical insurance plans, including but not limited to Health

Maintenance Organization plans, Preferred Provider Organization plans and /or Managed

Care plans; [3] whose medical insurers have contracted with Scripps in which Scripps

agreed to provide covered services for the insurer’s policyholders/beneficiaries at

negotiated discounted rates; or alternatively, pursuant to the Knox-Keene Health Care

Service Plan Act of 1975, the payments received by Scripps based on pre-determined

rates from the patient’s insurer (plus any applicable co-pay or deductible) constitute full

payment; [4] whose bills at such negotiated discounted rates or pre-determined rates have

been paid; and [5] against whom Scripps within the last four years either directly, or

through the action of Medical Liability Recoveries, Inc. or any other agent of Scripps, has

asserted a lien under Civil Code section 3045.1 demanding payment of the difference

5

between the negotiated discounted rate or pre-determined rate and Scripps’ ordinary full

charge for the covered service.”

On May 21, the court denied Scripps’s motion for judgment on the pleadings,

which asserted that each cause of action was barred by the litigation privilege. (§ 47,

subd. (b)(2).) On September 2, the court denied a renewed motion for judgment on the

pleadings.

The parties then agreed to file cross-motions for summary adjudication and

summary judgment. Class members filed a motion for summary adjudication of Scripps’s

thirteenth affirmative defense, the privilege conferred under section 47, subdivision

(b)(2), and the eighth cause of action for declaratory relief. Scripps filed a motion for

summary judgment. On February 23, 2000, the court granted Scripps’s motion for

summary judgment and denied Class members’ motion for summary adjudication.

DISCUSSION

I. Summary Judgment and Summary Adjudication

Summary judgment is granted when there is no triable issue as to any material fact

and the moving party is entitled to judgment as a matter of law. (Code Civ. Proc.,

§ 437c, subd. c.) We review de novo the trial court’s decision to grant summary

judgment and are not bound by the trial court’s stated reasons or rationales. (Hersant v.

Department of Social Services (1997) 57 Cal.App.4th 997, 1001.) Further, we review

issues of statutory interpretation de novo. (Heavenly Valley v. El Dorado County Bd. of

Equalization (2000) 84 Cal.App.4th 1323, 1334.) The appellate rules applicable to

review of summary adjudication are the same as applicable to summary judgment.

6

II. Hospital Lien Act (HLA)

Section 3045.1 provides: “Every person, partnership, association, corporation,

public entity, or other institution or body maintaining a hospital licensed under the laws

of this state which furnishes emergency and ongoing medical or other services to any

person injured by reason of an accident or negligent or other wrongful act . . . , shall, if

the person has a claim against another for damages on account of his or her injuries, have

a lien upon the damages recovered, or to be recovered, by the person . . . to the extent of

the amount of the reasonable and necessary charges of the hospital . . . , in which services

are provided for the treatment, care, and maintenance of the person in the hospital or

health facility affiliated with the hospital resulting from that accident or negligent or

other wrongful act.” Section 3045.1 creates a “statutory nonpossessory lien . . . in favor

of a hospital against third persons liable for the patient’s injuries.” ( Mercy Hospital &

Medical Center v. Farmers Ins. Group of Companies (1997) 15 Cal.4th 213, 217

(Mercy ).) The lien “compensates a hospital for providing medical services to an injured

person by giving the hospital a direct right to a certain percentage of specific property,

i.e., a judgment, compromise, or settlement, otherwise accruing to that person .” ( Ibid.,

italics added.)

Scripps contends section 3045.1 creates a direct obligation between the tortfeasor

and the hospital in the amount of the hospital’s reasonable charges and the amount of its

lien is not based on or limited by the injured patient’s debt to the hospital. Scripps bases

its contention on section 3045.3, which requires the hospital to give notice of its lien to

only the tortfeasor and the tortfeasor’s insurer; section 3045.4, which requires the

7

tortfeasor to pay the hospital directly; and section 3045.5, which gives the hospital a

cause of action to enforce its lien against the tortfeasor, not against the injured patient.

However, these provisions define who shall pay the hospital, but do not define from

whose property the payment is made.

Class members contend they and/or t heir medical insurance carriers have paid

Scripps in full for its services and, by placing a lien on their recoveries, Scripps seeks

amounts greater than the amounts Scripps agreed to accept for its services. In addressing

issues raised by Class members, we initially note, notwithstanding the class certification,

the contracts between Class members and their medical insurance carriers and between

Scripps and the medical insurance carriers differ substantially. Because of the different

contract provisions we conclude Scripps wrongfully placed a lien on the recovery of one

of the class representatives but rightfully placed a lien on the recovery of the other two

class representatives.

The issues raised in this appeal were recently addressed in Nishihama v. City &

County of San Francisco (2001) 93 Cal.App.4th 298, 306-309 ( Nishihama ). We find the

reasoning of Nishihama compelling and elect to follow it:

“Even if the HLA contemplated an independent right in the hospital, the extent of

that right would be defined by any contract between the injured party or her insurer and

the health care provider. Civil Code section 3045.4 accordingly provides that the third

party ‘shall be liable to the [health care provider] for the amount of its lien claimed in the

notice which the hospital was entitled to receive as payment for the medical care and

services rendered to the injured person.’ (Italics added.) The amount that a hospital is

8

entitled to receive as payment necessarily turns on any agreement it has with the injured

person or the injured person’s insurer.” (Nishihama, supra, 93 Cal.App.4th at pp. 307-

308.)

The patient’s debt to the hospital is the foundation for the hospital’s right to a lien.

(Nishihama, supra, 93 Cal.App.4th at p. 308.) The “reasonable and necessary charges,”

then, are the amounts charged to the patient or the patient’s insurance carrier. The HLA

does not give hospitals a cause of action against tortfeasors; it allows hospitals to place a

lien on the patient’s recovery from the tortfeasor. The amount of the lien is the

“reasonable and necessary charges” for the patient’s treatment. (§ 3045.1.) However, if

the agreed charges have been paid, the hospital has no amount, reasonable or otherwise, it

may seek from a third-party tortfeasor.

Although Scripps contends it seeks payment from tortfeasors, the payments

ultimately come from the Class members. Under California law, the amount a personal

injury plaintiff can recover for medical services is limited to the amount that has been

paid or incurred for those services, even if that amount is less than the market rate or

reasonable value of the services. (Hanif v. Housing Authority (1988) 200 Cal.App.3d

635, 641.)

In the cases involved in Class members’ class action, the amounts Class members

can recover from the tortfeasors are based on Class members’ medical insurance contracts

and the contracts those insurance carriers negotiated with Scripps. If Scripps’s liens

exceed these amounts, then Scripps collects more from the Class members’ judgments or

settlements than the Class members are legally entitled to recover from the tortfeasor for

9

medical expenses. In effect, the amount Scripps collects in excess of its agreed rate is

funded by a portion of Class members’ judgments or settlements attributable to lost wages

or to pain and suffering. We conclude Scripps’s “lien rights do not extend beyond the

amount it agreed to receive from [Class members’ medical insurance carriers] as payment

in full for services provided to [Class members].” (Nishihama, supra, 93 Cal.App.4th at

p. 307.)

We also reject Scripps’s contention that the legislative history of section 3040,

enacted in September 2000, authorizes it to place a section 3045.1 lien for its usual and

customary charges regardless of its contractual arrangements. Section 3040 limits the

lien rights of medical providers to the amount they actually paid for the health care, but

specifically exempts hospitals pursuing section 3045.1 liens. (§ 3040, subd. (g)(3).) The

Consumer Attorneys of California argued to the Legislature that section 3040 should

apply to hospital liens and provided the Legislature with a copy of Satsky v. United States

of America (S.D.Texas 1998) 993 F.Supp. 1027, 1029 (holding that a hospital could not

place a lien on a patient’s recovery under a Texas statute similar to section 3045.1

because the statute “was clearly not intended to overcompensate hospitals that accept

patients who do have the ability to pay, nor to provide a windfall for hospitals who feel

aggrieved by the circumscription of hospital charges by insurance plans”).

The fact that section 3040 places no express limit on a hospital’s lien rights is not

determinative of whether those lien rights were already limited under the HLA. Further,

subsequent legislation is, at best, an unreliable gauge of legislative intent. (United States

v. Price (1960) 361 U.S. 304, 312 [recognizing that “the views of a subsequent Congress

10

form a hazardous basis for inferring the intent of an earlier one”].) For similar reasons,

we do not place much weight on other statutory liens that purportedly exist in the absence

of an underlying debt. The unique nature of a hospital lien under the HLA makes those

comparisons questionable. We conclude the amount of an HLA lien may not exceed the

amount the patient is indebted to the hospital.

III. Insurance Contracts

The provisions of Class members’ medical insurance contracts and the contracts

Scripps entered into with those medical insurance carriers determine whether the HLA

liens are authorized. Based on the contracts of the three class representatives, we

conclude Scripps was not entitled to place a lien on McMeans’s recovery, but was entitled

to place liens on the recoveries of Shaul and Denny.

A. McMeans

The Aetna insurance plan that cove red McMeans provides that if a third party is

liable for a patient’s injury, Aetna shall be subrogated to the patient’s recovery to the

extent of the benefits Aetna paid. McMeans was treated at Scripps Mercy Hospital. The

contract between Scripps Mercy Hospital and Aetna provides in part: “In no event . . .

shall any Member be liable to Hospital for any sums owed to Hospital by the applicable

Payor. In addition, neither Hospital nor its agents, trustees, or assignees shall maintain

any action at law against a Member to collect sums owed by the applicable Payor;

provided, however, that Hospital may collect from Members co-payments, coinsurance or

deductibles for Covered Services, or amounts due for non-Covered Services. Amounts

for non-Covered Services may be charged at Hospital’s usual and customary charges.”

11

This agreement provides that Scripps may not collect payment from patients insured by

Aetna, other than copayments or deductibles, unless the service provided to the patient is

not covered under the insurance agreement. This agreement allows Scripps to bill at its

usual and customary rate only for services not covered under the patient’s insurance

agreement. Because the services Scripps provided to McMeans were covered under

McMeans’ medical insurance policy with Aetna, Scripps was not entitled to place a lien

for its reasonable and necessary charges on McMeans’s recovery in excess of the agreed

amount.

We are not persuaded by Scripps’s contention the services McMeans received

were not covered because the Aetna insurance policy provides that Aetna has the right to

recover the benefits Aetna paid from third party tortfeasors. This portion of the policy

does not provide that those services are not covered by the agreement; it merely provides

that Aetna will be reimbursed from any future recovery.

Scripps also contends it may collect its reasonable and necessary fees from a third

party tortfeasor under the “Coordination of Benefits” (COB) section of its agreement with

Aetna, which provides: “Hospital shall be entitled to all COB recoveries relating to

Covered Hospital Services. Hospital shall make a reasonable effort to seek

reimbursement for Covered Hospital Services under other third party coverages when

applicable. . . . For per diem or discount off charges payments, in the event that Payor is

the secondary carrier under the coordination of benefits rules, Payor shall be required to

pay Hospital the difference between Hospital’s full customary charges and the amount

12

collected by Hospital from third party payors, but in no event to exceed the amount the

Payor is required to pay if it were the primary carrier.”

We are not persuaded by this contention. Coordination of benefits is a term used

when there is duplicate medical insurance coverage. ( Kaiser Foundation Health Plan,

Inc. v. Lifeguard, Inc. (1993) 18 Cal.App.4th 1753, 1757.) The term “coverage” is

normally used to refer to insurance coverage. For instance, Insurance Code section

10270.98 states in part: “Group disability policies may provide, among other things, that

the benefits payable thereunder are subject to reduction if the individual insured has any

other coverage (other than individual policies or contracts) providing hospital, surgical or

medical benefits, whether on an indemnity basis or a provision of service basis, resulting

in such insured being eligible for more than 100 percent of the covered expenses.”

(Italics added.) The reference to “coverage” is a reference to other insurance coverage.

A tort obligor does not provide insurance coverage. Additionally, although the contract

does not expressly define the term “third party payor,” it reasonably contemplates an

institutional payer, such as another insurance company or Medicare. (See Palumbo v.

Myers (1983) 149 Cal.App.3d 1020, 1030-1034 [a settling third party tortfeasor is not a

“third party payer” as the term is used in Welfare and Institutions Code section 14019.4].)

Therefore, this contract provision does not change our analysis.

Scripps relies on Swanson v. St. John’s Regional Medical Center (2002) 97

Cal.App.4th 245 ( Swanson). The court in Swanson held a hospital’s filing of liens is not

an unfair business practice, an issue not raised in this appeal. The Swanson court did not

address contracts between hospitals and insurers that might prohibit a lien. ( Id. at p. 251,

13

fn. 5.) Further, to the extent the analysis of the HLA in Swanson differs from the analysis

in Nishihama , we find the reasoning of Nishihama more compelling.

B. Shaul and Denny

Shaul was enrolled in the Sharp Choice plan, which had no contract with Scripps

Memorial Hospital. Therefore, Scripps may place an HLA lien on Shaul’s recovery for

the “reasonable cash value of the benefits” it provided to Shaul.

Denny’s CaliforniaCare contract with Blue Cross does not provide benefits for the

medical treatment of injuries caused by third parties. Under the heading

“Reimbursement for Acts of Third Parties,” the CaliforniaCare disclosure form states in

part: “No benefits will be provided under this plan for medical care for, or received in

connection with, any illness, injury, or condition for which a third party may be liable or

legally responsible by reasons of negligence, an intentional act or breach of any legal

obligation. But benefits will be provided under this plan subject to the following: [¶] 1.

CaliforniaCare and your medical group will automatically have a lien to the extent of

benefits provided, upon any recovery, whether by settlement, judgment or otherwise, that

you receive from the third party, the third party’s insurer, or the third party’s guarantor.

The lien will be for the reasonable cash value of the benefits provided by your medical

group or by us under this plan for the treatment of the illness disease, injury or condition

for which the third party is liable. . . .” (Original italics omitted; italics added.)

14

The Ninth Circuit interpreted a similar provision in another Blue Cross contract3

and held the following: “The contract excludes Blue Cross from liability for injuries

tortiously caused by third parties, and provides an exception for benefits which will be

advanced in anticipation of possible future recovery. Once recovery has been made, the

conditions of the exception no longer exist and the exclusion remains.” (Qualls v. Blue

Cross of California, supra, 22 F.3d at p. 845, original italics.) Under the CaliforniaCare

plan, Blue Cross does not provide benefits for medical care for injuries caused by a third

party tortfeasor; it merely advances money.

Because Denny was injured by a third party tortfeasor, his medical services were

not covered under the CaliforniaCare plan. Blue Cross merely advanced payment to

Scripps on Denny’s behalf. The contract between Scripps and Blue Cross does not limit

the amount Scripps may charge for the medical services it provided to Denny. Instead,

under the CaliforniaCare plan, Scripps may place a lien for the “reasonable cash value of

the benefits” it provided.

Although Scripps has shown it has a contractual right to place a lien on the

recoveries of Shaul and Denny, Scripps has not met its burden of proof that the liens are

3
“Blue Cross relied on Section Seven AA of the policy which excluded coverage
for ‘[a]ny illness, injury or other condition for which a third party may be liable or legally
responsible by reason of negligence, an intentional act or breach of any legal obligation
on the part of such third party. Nevertheless, Blue Cross will advance the benefits of this
Agreement to the Member subject to the following: . . . Blue Cross will automatically
have a lien, to the extent of benefits advanced, upon any recovery, whether by settlement,
judgment or otherwise, that the Member receives from the third party . . . .’ ” (Qualls v.
Blue Cross of California (9th Cir. 1994) 22 F.3d 839, 842.)

15

for “reasonable and necessary charges.” (§ 3045.1.) The reasonable value and necessity

of Scripps’s services are questions of fact. Although the amount paid or incurred for

hospital services is some evidence as to its value, we also require evidence of the value

and necessity of the professional services of the physicians and the hospital. (Guerra v.

Balestrieri (1954) 127 Cal.App.2d 511, 520; Harris v. Los Angeles Transit Lines (1952)

111 Cal.App.2d 593, 598 (Harris).) Typically, a physician testifies as to these issues.

(See Harris, supra, 111 Cal.App.2d at p. 598.) Scripps produced a declaration by Clelia

Ki-Ki Barbeau, president and CEO of MLS. She declared, “The lien asserted . . . is the

difference between the payment from the insurer and the actual reasonable and

customary charges incurred by the patient.” (Italics added.) Class members objected to

this evidence under Evidence Code section 702. The court did not rule on the objection.

Under Biljac Associates v. First Interstate Bank (1990) 218 Cal.App.3d 1410, 1420, we

“presume[] on appeal that a judge has not relied on irrelevant or incompetent evidence.”

Accordingly, we presume the court sustained the objection as to Barbeau’s use of the

word “reasonable.” Barbeau had no personal knowledge of the reasonable value of the

medical services Scripps provided to Shaul or to Denny. Further, Scripps introduced no

evidence that its services were necessary. Accordingly, Scripps has produced no

admissible evidence that the amount of the liens on the recoveries of Shaul and Denny

were reasonable. Therefore, summary adjudication of the amount of the debts of Shaul

and Denny to Scripps is inappropriate.

16

Because Scripps was not entitled to place a lien on McMeans’s recovery and

because there are triable issues of fact as to the reasonable value of the services Scripps

provided to Shaul and Denny, the court erred by granting summary judgment.

IV. Section 47, Subdivision (b)(2)

Class members contend the court erred by denying their motion for summary

adjudication of Scripps’s thirteenth affirmative defense, the privilege conferred by section

47, subdivision (b)(2). Class members contend this privilege does not apply because

Scripps’s actions were not communicative and were not connected to litigation.

The privilege conferred by section 47, subdivision (b)(2), bars all tort causes of

action, other than malicious prosecution, based on conduct protected by the privilege.

(Silberg v. Anderson (1990) 50 Cal.3d 205, 215-216.) The principal purpose of the

privilege is to afford litigants and witnesses freedom of access to the courts without fear

of being subsequently harassed by derivative tort actions. ( Id. at p. 213.) “[T]he

privilege applies to any communication (1) made in judicial or quasi-judicial

proceedings; (2) by litigants or other participants authorized by law; (3) to achieve the

objects of the litigation; and (4) that has some connection or logical relation to the

action.” ( Id. at 212.) “Further, it applies to any publication required or permitted by law

in the course of a judicial proceeding to achieve the objects of the litigation, even though

the publication is made outside the courtroom and no function of the court or its officers

is involved.” ( Ibid.)

We are not persuaded by Class members’ contention that the filing of liens on

behalf of Scripps was not connected with any litigation. “If the publication has a

17

reasonable relation to the action and is permitted by law, the absolute privilege attaches.”

(Albertson v. Raboff (1956) 46 Cal.2d 375, 381.) A federal court held that a lien for the

treatment of a Medi-Cal patient filed under Welfare and Institutions Code section

14124.791 was sufficiently related to the claims in the Medi-Cal patient’s personal injury

action to support intervention as of right. ( Ghazarian v. Wheeler (C.D.Cal. 1997) 177

F.R.D. 482, 486-487.) The court relied upon two cases that allow intervention by the

holder of a protectable statutory lien interest because, in part, “this interest relates to a

cognizable legal interest in any monetary proceeds resulting from a settlement or

judgment in the action.” ( Id. at p. 487, relying upon Diaz v. Southern Drilling Corp (5th

Cir. 1970) 427 F.2d 1118, 1124 [tax lien] & McDonald v. E.J. Lavino Co., (5th Cir.

1970) 430 F.2d 1065, 1071 [insurance provider’s lien under workers compensation

law].) Similarly, a hospital filing a section 3045.1 lien has an interest to be adjudicated in

an injured person’s personal injury lawsuit because if the injured person does not prove

the third party’s liability, the hospital’s lien loses all value. The publication of the notice

of lien is reasonably related to the personal injury action because it informs the tortfeasor

and/or the tortfeasor’s insurance provider that the amount of the lien, unless a smaller

amount is prescribed by section 3045.4, must be paid directly to the hospital. Therefore,

Scripps’s liens were filed in connection with the tort actions brought by Class members.

We also are not persuaded by Class members’ contention that Scripps’s lien filings

are not protected by the privilege because Scripps engaged in a tortious course of conduct

that incidentally included the publication of the lien. Class members claim their injuries

are caused, not by the imposition of the lien, but by the wrongful collection process.

18

Class members rely upon LiMandri v . Judkins (1997) 52 Cal.App.4th 326, 345

(LiMandri), in which we held a privileged communication does not shield a defendant

from liability for a wrongful course of conduct that incidentally includes the

communication. In LiMandri, an attorney had a fee agreement granting him a portion of

the clients’ recovery. ( Id. at p. 334.) The defendant allegedly interfered with that

contractual relationship by arranging a loan to the clients secured by the same recovery

and filing a notice of lien in the lawsuit asserting the lender’s security interest in the

recovery. ( Id. at p. 345.)

This case is distinguishable from LiMandri. The security interest in LiMandri was

created by executing documents; filing the notice of lien was merely incidental to the

creation of the security interest. ( Id. at pp. 342, 346.) In contrast, the HLA requires a

hospital to send notice of the HLA lien to the third party and his liability insurance

carrier. (§ 3045.3.4) Further, the course of tortious conduct in LiMandri included

executing the security interest, refusing to concede the superiority of the attorney’s lien,

and inducing the clients to breach their fee agreement with the attorney. ( Id. at p. 345.)

In contrast, the wrongful conduct Class members have identified here is Scripps’s

overcharging them by noticing liens.5 The act of overcharging is the same act as the

4
Section 3045.3 provides in part: “A lien shall not be effective, however, unless a
written notice . . . is delivered . . . to each person, firm, or corporation known to the
hospital and alleged to be liable to the injured person for the injuries sustained . . . .
(Italics added.)

5
Class members appear to contend Scripps engaged in a tortious course of conduct
because Scripps published the liens in bad faith. There is no evidence Scripps published

19

assertion of the lien on Class members’ recoveries. Labeling the assertion of a lien as an

attempt to overcharge Class members does not change its nature as a communicative act.

The privilege conferred by Civil Code section 47, subdivision (b)(2), applies and

bars certain of Class members’ causes of action against Scripps. The privilege does not,

however, bar the eighth cause of action for declaratory relief. (Wilton v. Mountain Wood

Homeowners Assn. (1993) 18 Cal.App.4th 565, 571.)

Scripps contends the section 47(b)(2) privilege bars all of Class Members’ causes

of action except the action for declaratory relief. Because the issue of which causes of

action are barred by the privilege was not raised in the trial court and has not been

extensively briefed, we decline to address it. (See Cedars-Sinai Medical Center v.

Superior Court (1998) 18 Cal.4th 1, 5-6.)

V. Declaratory Relief

Class members contend the court erred by denying their motion for summary

adjudication of the cause of action for declaratory relief. In the motion for summary

adjudication of the eighth cause of action, Class members asked the court for a judicial

declaration that (1) Scripps’s collection practices and the assertion of liens in favor of

Scripps is unlawful and (2) Class members are not indebted to Scripps for the amounts

asserted in the liens.

the liens in bad faith. At the time Scripps filed the liens, no California appellate court
had decided the issue posed by this appeal, and several trial courts had enforced Scripps’s
liens.

20

A party may bring an action for declaratory relief under Code of Civil Procedure

section 1060, which provides in part: “Any person interested under a written instrument,

excluding a will or a trust, or under a contract, or who desires a declaration of his or her

rights or duties with respect to another, or in respect to, in, over or upon property, . . .

may, in cases of actual controversy relating to the legal rights and duties of the respective

parties, bring an original action . . . in the superior court . . . for a declaration of his or her

rights and duties in the premises, including a determination of any question of

construction or validity arising under the instrument or contract.” A declaratory relief

action may be brought on behalf of a class, Serrano v. Priest (1971) 5 Cal.3d 584, 618,

and may be used to determine the construction of a statute, Lane v. City of Redondo

Beach (1975) 49 Cal.App.3d 251, 255, as well as the rights and duties of the parties under

a contract.

As discussed above, the lien Scripps placed on McMeans’s recovery was not

authorized because McMeans owes no debt to Scripps. Therefore, we reverse the court’s

denial of Class members’ motion for summary adjudication of the declaratory relief cause

of action as to class representative McMeans. On the other hand, Scripps’s assertion of a

lien on the recoveries of Shaul and Denny was authorized. Accordingly, we affirm the

court’s denial of Class members’ motion for summary adjudication of the declaratory

relief cause of action as to class representatives Shaul and Denny.

21

DISPOSITION

In accordance with this court’s orders of June 11, 2001 and July 24, 2002, this

appeal is stayed as to MLR under title 11 United States Code section 362 and MLR’s

appeal is severed from that of Scripps.

The court’s grant of summary judgment in favor of Scripps is reversed. The

court’s denial of Class members’ motion for summary adjudication of Scripps’s defense of

privilege under section 47, subdivision (b)(2) is affirmed. The court’s denial of Class

members’ motion for summary adjudication of their eighth cause of action for declaratory

relief is reversed as to class representative McMeans, but affirmed as to class

representatives Shaul and Denny. Class members and Scripps to bear their own costs on

appeal.

CERTIFIED FOR PUBLICATION

O’ROURKE, J.

WE CONCUR:

BENKE, Acting P. J.

McDONALD, J.

22

Md. Gen. Hosp., Inc. v. Thompson

Md. Gen. Hosp., Inc. v. Thompson

PUBLISHED
UNITED STATES COURT OF APPEALS
FOR THE FOURTH CIRCUIT
(cid:252)

No. 01-2012

MARYLAND GENERAL HOSPITAL,
INCORPORATED, d/b/a Transitional
Care Center,

Plaintiff-Appellant,
v.
TOMMY G. THOMPSON, SECRETARY,
UNITED STATES DEPARTMENT OF
HEALTH AND HUMAN SERVICES,
Defendant-Appellee. (cid:254)

(cid:253)

Appeal from the United States District Court
for the District of Maryland, at Baltimore.
William M. Nickerson, Senior District Judge.
(CA-00-221-WMN)

Argued: May 7, 2002

Decided: October 9, 2002

Before WILLIAMS, TRAXLER, and GREGORY, Circuit Judges.

Vacated and remanded with instructions by published opinion. Judge
Traxler wrote the majority opinion, in which Judge Williams joined.
Judge Gregory wrote a dissenting opinion.

COUNSEL

ARGUED: Carel Theilgard Hedlund, OBER, KALER, GRIMES &
SHRIVER, P.C., Baltimore, Maryland, for Appellant. Paul Edwin

2

MARYLAND GENERAL HOSPITAL v. THOMPSON

Soeffing, Office of the General Counsel, Centers for Medicare and
Medicaid Services Division, UNITED STATES DEPARTMENT OF
HEALTH AND HUMAN SERVICES, Baltimore, Maryland, for
Appellee. ON BRIEF: James E. Edwards, OBER, KALER, GRIMES
& SHRIVER, P.C., Baltimore, Maryland, for Appellant. Alex M.
Azar, II, General Counsel, Sheree R. Kanner, Associate General
Counsel, Henry R. Goldberg, Deputy Associate General Counsel for
Litigation, Marcus H. Christ, Jr., Office of the General Counsel, Cen-
ters for Medicare and Medicaid Services Division, UNITED STATES
DEPARTMENT OF HEALTH AND HUMAN SERVICES, Balti-
more, Maryland; Thomas M. DiBiagio, United States Attorney,
Roann Nichols, Assistant United States Attorney, Baltimore, Mary-
land, for Appellee.

OPINION

TRAXLER, Circuit Judge:

Maryland General Hospital (“MGH”) appeals from the district
court’s order upholding the decision of the Secretary of Health and
Human Services to deny MGH a “new provider” exemption to the
Medicare program’s caps on reimbursement for routine service costs.
See 42 C.F.R. § 413.30(e) (1996).1 We vacate the district court’s order
and remand with instructions for the court to enter judgment in favor
of MGH.

I.

A.

Under the Medicare program, skilled nursing facilities (“SNFs”)
are entitled to reimbursement from the federal government for the rea-
sonable costs of providing services to Medicare patients. See 42

1When this action commenced, the “new provider” exemption was
found at 42 C.F.R. § 413.30(e) (1996); it is now found, in slightly revised
form, at section 413.30(d) (2001). The references in this opinion to sec-
tion 413.30 are to the 1996 version of the regulation.

MARYLAND GENERAL HOSPITAL v. THOMPSON

3

U.S.C.A. § 1395x(u), (v)(1)(A) (West Supp. 2002). There are, of
course, numerous exceptions to and limitations on that reimburse-
ment, including certain caps imposed on the reimbursement for rou-
tine service costs. See 42 U.S.C.A. § 1395yy(a) (West Supp. 2002).
Congress, however, has expressly authorized the Secretary to estab-
lish appropriate exemptions and adjustments to these limits on routine
costs. See 42 U.S.C.A. § 1395yy(c) (West Supp. 2002). One such
exemption established by the Secretary is the exemption for new pro-
viders of skilled nursing services, which allows higher reimbursement
rates for the first two years of operation. See 42 C.F.R. § 413.30(e).
The new provider exemption thus “allow[s] a provider to recoup the
higher costs normally resulting from low occupancy rates and start-up
costs during the time it takes to build its patient population.” Paragon
Health Network, Inc. v. Thompson, 251 F.3d 1141, 1149 (7th Cir.
2001) (internal quotation marks omitted)).

B.

The establishment and operation of skilled nursing facilities and
other health care facilities in Maryland, as in most states, requires
navigation through a complex maze of statutes and regulations. But
for purposes of this case, it suffices to say that a “certificate of need”
is required for the operation of a skilled nursing facility, and the cer-
tificate of need limits the number of beds that the facility may oper-
ate. Under certain circumstances, however, facilities in Maryland
have the right to put as many as 10 additional beds into operation,
without acquiring a new certificate of need. See Md. Code Ann.,
Health-Gen. II § 19-120(f), (h)(1), (h)(2)(i) (Supp. 2001). These addi-
tional beds are generally referred to as “waiver beds.” See Brief of
Appellant at 5, n.3.

In 1994, MGH established the “Transitional Care Center,” a
hospital-based skilled nursing facility. Prior to that time, MGH had
not operated such a facility. To get the Transitional Care Center up
and running, MGH purchased from three skilled nursing facilities the
right to operate 24 beds. The facilities from which MGH purchased
the bed rights were not connected or related to MGH in any way. The
contracts between MGH and the selling facilities anticipated that the
beds being sold to MGH would be “operational” beds—that is, beds
that were in use by the selling facilities and authorized by their certifi-

4

MARYLAND GENERAL HOSPITAL v. THOMPSON

cates of need. But when the Maryland Health Resources Planning
Commission approved the transaction, it characterized the transaction
as involving the transfer of waiver beds rather than operational beds.

MGH thereafter applied for the “new provider” exemption. After
going through several layers of review within the Department of
Health and Human Services, MGH’s request was denied. MGH then
sought review of the Secretary’s decision by the district court. See 42
U.S.C.A. § 1395oo(f)(1) (West Supp. 2002) (providing for judicial
review of final reimbursement decisions by the Secretary). On cross-
motions for summary judgment, the district court concluded that the
Secretary’s decision was based upon a reasonable interpretation of
section 413.30(e). The court therefore denied MGH’s motion and
granted the Secretary’s motion. This appeal followed.

II.

A.

The Medicare Act specifies that judicial review of reimbursement
decisions is to be governed by the familiar standards of the Adminis-
trative Procedure Act. See 42 U.S.C.A. § 1395oo(f)(1). Under the
APA, a court must “hold unlawful and set aside agency action, find-
ings, and conclusions found to be . . . arbitrary, capricious, an abuse
of discretion, or otherwise not in accordance with law.” 5 U.S.C.A.
§ 706(2)(A) (West 1996). When the question before the court is
whether an agency has properly interpreted and applied its own regu-
lation, the reviewing court must give the agency’s interpretation “sub-
stantial deference.” Thomas Jefferson Univ. v. Shalala, 512 U.S. 504,
512 (1994). But “[d]eference, of course, does not mean blind obedi-
ence,” Garvey v. NTSB, 190 F.3d 571, 580 (D.C. Cir. 1999), and no
deference is due if the agency’s interpretation “is plainly erroneous or
inconsistent with the regulation,” Thomas Jefferson Univ., 512 U.S.
at 512 (internal quotation marks omitted).

B.

The new provider exemption is fairly straightforward. It provides
that

MARYLAND GENERAL HOSPITAL v. THOMPSON

5

[e]xemptions from the limits imposed under this section
may be granted to a new provider. A new provider is a pro-
vider of inpatient services that has operated as the type of
provider (or the equivalent) for which it is certified for Med-
icare, under present and previous ownership, for less than 3
full years. . . .

42 C.F.R. § 413.30(e). Section 413.30(e) does not define “provider,”
but the structure and wording of the regulation suggest that the pro-
vider is the business entity or institution providing the skilled nursing
services. This reading is consistent with the meaning attached to a
similar term in another part of the Medicare Act. See 42 U.S.C.A.
§ 1395x(u) (defining “provider of services” as “a hospital, critical
access hospital, skilled nursing facility, comprehensive outpatient
rehabilitation facility, home health agency, [or] hospice program”).
This business-entity-specific reading of the regulation is also sup-
ported by the explanation of the “new provider” exemption contained
in the version of Medicare’s “Provider Reimbursement Manual”
(“PRM”) in effect at the time MGH purchased the beds:

A new provider is an institution that has operated in the
manner for which it is certified in the program (or the equiv-
alent thereof) under present and previous ownership for less
than 3 full years. For example, an institution that has been
furnishing only custodial care to patients for 2 full years
prior to its becoming certified as a hospital furnishing cov-
ered services to Medicare beneficiaries, shall be considered
a “new provider” for 3 full years from the effective date of
certification. However, if an institution had been furnishing
hospital health care services for 2 full years prior to its certi-
fication, it shall only be considered a “new provider” in its
third full year of operation, which is its first full year of par-
ticipation in the program.

Although a complete change in the operation of the institu-
tion, as illustrated above, shall affect whether and how long
a provider shall be considered a “new provider,” changes of
the institution’s ownership or geographic location do not in
[themselves] alter the type of health care furnished and shall

6

MARYLAND GENERAL HOSPITAL v. THOMPSON

not be considered in the determination of the length of oper-
ation.

PRM § 2604.1 (emphasis added). These repeated references to an “in-
stitution” indicate that application of the new provider exemption
depends upon the ownership and operation of the business entity that
is providing the skilled nursing services. There is no dispute that nei-
ther MGH nor any previous owner of MGH had provided inpatient
skilled nursing services before the Transitional Care Center was
established. Thus, it would appear that MGH meets the requirements
for a “new provider” as set forth in 42 C.F.R. § 413.30(e).

The Secretary, however, insists that MGH is not a new provider
because the “waiver beds” were previously owned by unrelated
skilled nursing facilities that had been operating for more than three
years. According to the Secretary, MGH’s Transitional Care Center

was created by purchasing the right to operate nursing home
beds formerly held by three existing SNFs. Thus, a change
of ownership of these 24 beds created [the Transitional Care
Center]. Under the Secretary’s rules, one must look to
whether the past owner of these beds operated as a SNF for
three or more years. . . . There is no dispute that each of the
prior owners of these beds operated as an SNF for more than
three years. Therefore, MGH does not qualify for an exemp-
tion to the cost limits.

Brief of Appellee at 26 (internal quotation marks omitted).

We find this argument to be rather remarkable. Section 413.30(e)
quite plainly focuses on the “newness” of the provider institution
itself, a reading with which the Secretary purports to agree. See Brief
of Appellee at 25 (stating that when determining whether the new
provider exemption is applicable, the Secretary “looks at the opera-
tion of the institution under both past and present ownership as
required by the regulation” (emphasis added)). When applying the
exemption in this case, however, the Secretary has not focused on the
“newness” of the institution providing the services, but has instead
focused on the “newness” of one particular asset of that institution.
Such an approach could be sustained only if section 413.30(e) were

MARYLAND GENERAL HOSPITAL v. THOMPSON

7

ambiguous and the Secretary’s interpretation reasonable. See Martin
v. Occupational Safety & Health Rev. Comm’n, 499 U.S. 144, 150-51
(1991) (“In situations in which the meaning of regulatory language is
not free from doubt, the reviewing court should give effect to the
agency’s interpretation so long as it is reasonable.” (internal quotation
marks and alteration omitted)).

The Secretary points to Paragon Health Network, Inc. v. Thomp-
son, 251 F.3d 1141 (7th Cir. 2001), in which the Seventh Circuit
found the term “provider” as used in section 413.30(e) to be ambigu-
ous. In that case, Paragon Health Network, Inc. opened a new skilled
nursing facility and transferred the rights to operate 35 beds from
another Paragon-owned skilled nursing facility. The Seventh Circuit
concluded that “provider” was ambiguous as used in section 413.30(e)
because it might sometimes be difficult to determine when certain
internal changes to an institution would be enough to give rise to a
“new provider”:

[I]f a facility fires all its staff and hires a new one, but
makes no other changes, an ordinary user of the English lan-
guage probably would consider the SNF with the new staff
to be the same “provider” as it was before. Similarly, a SNF
that replaced all of its old equipment with new models
would still be the same “provider” as it was before the mod-
ernization. Even if a SNF both fired its staff and replaced all
of its equipment, one might still call it the same “provider”
if the administration and physical plant remained the same.
Of course, if all the various things that make up a SNF were
new in the sense that they had not been part of another facil-
ity, then one would have to call that SNF a “new provider.”
Conversely, if a nursing facility did not change any of its
aspects, it would unquestionably continue to be the same
provider rather than a new one. The difficulty in drawing a
line between these two extremes is what makes the word
“provider” ambiguous as used in the regulation.

Paragon, 251 F.3d at 1148. Because it found “provider” to be ambig-
uous, the court found reasonable the Secretary’s denial of the new
provider exemption based on the transfer of the beds. See id. at 1148-
50.

8

MARYLAND GENERAL HOSPITAL v. THOMPSON

In our view, the court’s approach in Paragon is problematic. First,
the fact that it might be difficult to draw a statutorily created line in
a case with unusual facts does not mean that ordinary terms used in
the statute suddenly become ambiguous. Moreover, as the district
court observed in Ashtabula County Medical Center v. Thompson,
191 F. Supp. 2d 884 (N.D. Ohio 2002), the difficulties that the Sev-
enth Circuit believed its hypotheticals illustrated largely do not exist
when “provider” is understood to mean the institution or facility pro-
viding the services:

Focusing on the nature of the word “provider,” the very
series of hypotheticals posed by the Seventh Circuit leads to
the conclusion that that term is unambiguous. The first three
scenarios posited by the court are examples of one institu-
tion taking certain actions that fail to create any new institu-
tion, and the court sensibly concluded that these actions
would not result in the creation of a “new provider”: “a
facility” fires all its staff and hires a new one; “a SNF”
replaces all of its old equipment; “a SNF” both fires all its
staff and replaces its old equipment, but retains the same
administration and physical plant. In each of these exam-
ples, some institution (“a facility” or “a SNF”) changes some
—maybe even many—of its characteristics, but remains in
existence as that same institution, without giving rise to any
new institution. In the court’s final hypothetical, however,
“all the various things that make up a SNF” are new, and the
court rightly concluded that such a scenario would evidence
the creation of a “new provider.” In this case, the Seventh
Circuit described not just one facility that changes certain of
its characteristics but ultimately remains the same institu-
tion; rather the court put forth a scenario involving a second,
distinct entity where all the various things that make up a
SNF are new. Perhaps the old institution is gone, and per-
haps not, but that is of little consequence. The question is
whether a second, new institution—a “new provider”—has
come into existence, and in the court’s final hypothetical,
one clearly has.

Ashtabula, 191 F. Supp. 2d at 892 n.8. Because the Seventh Circuit
effectively found “provider” to be ambiguous by ignoring the ordinary
meaning of that term, we find the court’s analysis to be unpersuasive.

MARYLAND GENERAL HOSPITAL v. THOMPSON

9

Notwithstanding the absence of a definition of “provider,” we sim-
ply cannot conclude that section 413.30(e) is ambiguous. Given the
ordinary meaning of the word “provider” and the manner in which it
is used in the regulation, section 413.30(e) can only be understood as
focusing on the business institution that is providing the skilled nurs-
ing services. If that institution, whether under its current or prior own-
ership, has operated as a skilled nursing facility for more than three
years, then it is not entitled to the new provider exemption. If that
institution under current or prior ownership has not previously oper-
ated as a skilled nursing facility, then it is entitled to the new provider
exemption, even if the institution has purchased some of its assets
from skilled nursing facilities that have operated for more than three
years. See Ashtabula, 191 F. Supp. 2d at 893 (concluding that “the
term provider refers to the institution applying for the exemption . . .
not merely to its intangible characteristics or attributes” and holding
that a newly created facility was entitled to the new provider exemp-
tion notwithstanding the institution’s purchase of certificate of need
rights from an unrelated SNF). Because MGH under any ownership
had not previously operated a skilled nursing facility when it applied
for the exemption, we conclude that MGH qualifies as a “new pro-
vider” under section 413.30(e).2

2This conclusion is in no way dependent upon the status of the beds
purchased by MGH or upon other intricacies of Maryland’s health care
regulatory scheme. That is, because section 413.30(e) focuses on the past
and present ownership of the business institution rather than the past and
present ownership of the beds, MGH qualifies for the new provider
exemption whether or not the beds are properly classified as “waiver
beds” or operational beds and whether or not MGH would have received
a certificate of need had it sought to establish its Transitional Care Center
in some other manner. We recognize that MGH does not make this pre-
cise argument in its brief. MGH insists that it is entitled to the new pro-
vider exemption, but it also states that it would not be entitled to the
exemption if operational beds had been transferred. Nonetheless, MGH’s
appeal has adequately presented to this court the question of the correct
interpretation of section 413.30(e). MGH’s inaccurate statement of one
aspect of this purely legal question, therefore, does not affect our respon-
sibility to properly interpret the regulation. See Kamen v. Kemper Fin.
Servs., Inc., 500 U.S. 90, 99 (1991) (“When an issue or claim is properly
before the court, the court is not limited to the particular legal theories
advanced by the parties, but rather retains the independent power to iden-
tify and apply the proper construction of governing law.”).

10

MARYLAND GENERAL HOSPITAL v. THOMPSON

III.

In sum, we conclude that “provider” as used in section 413.30(e)
unambiguously refers to the business institution providing the skilled
nursing services. It therefore follows that the regulation permits con-
sideration of the institution’s past and current ownership, but not the
past and current ownership of a particular asset of that institution. The
Secretary’s interpretation, however, equates the ownership of an insti-
tution providing skilled nursing services with the ownership of a par-
ticular asset of that institution. Since there is no language in the
regulation that would permit the denial of the exemption because an
asset of the new institution was previously owned by an unrelated
SNF, the Secretary’s interpretation is inconsistent with the plain lan-
guage of the regulation and cannot be allowed to stand.3 See Garde-
bring v. Jenkins, 485 U.S. 415, 430 (1988) (explaining that a
reviewing court should be “hesitant to substitute an alternative read-
ing for the Secretary’s [reading of his own regulation] unless that
alternative reading is compelled by the regulation’s plain language”);
see also 5 U.S.C.A. § 706(2)(A) (requiring a reviewing court to “set
aside agency action, findings, and conclusions” that are “not in accor-
dance with law”).

3In 1997, PRM § 2604.1 was replaced by PRM § 2533.1, which is sub-
stantially different and which arguably supports the Secretary’s position.
See PRM § 2533.1(E)(1)(b) (giving as an example of when the new pro-
vider exemption should be denied a situation in which “an institution . . .
purchases the right to operate (i.e., a certificate of need) long term care
beds from an existing institution . . . that has or is rendering skilled nurs-
ing or rehabilitative services to establish . . . a long term care facility”).
Because section 2533.1 did not exist at the time of the transactions giv-
ing rise to this case, we do not believe it is applicable. Moreover, the pro-
visions of the PRM are treated as interpretive rules, see Shalala v.
Guernsey Mem’l Hosp., 514 U.S. 87, 101-02 (1995), and thus are entitled
to “some deference,” but only to the extent that they represent a “permis-
sible construction” of the relevant statute or regulation. See Reno v.
Koray, 515 U.S. 50, 61 (1995) (internal quotation marks omitted).
Because section 413.30(e) can only be interpreted to allow consideration
of the ownership of the institution seeking the new provider exemption,
and not the ownership of the beds acquired by that institution, the exam-
ple set forth in PRM § 2533.1(E)(1)(b) does not appear to represent a
permissible construction of section 413.30(e).

MARYLAND GENERAL HOSPITAL v. THOMPSON

11

The Secretary’s focus on the ownership of the beds may well be
reasonable when considered against the realities of the skilled nursing
industry. For example, the Secretary might reasonably believe that the
new provider exemption should be applicable only when a new facil-
ity increases the options available to the community it serves by
increasing the number of beds actually in use in that community. And
we realize that, as is implicit in the Secretary’s argument, the right to
operate beds is perhaps the most important part of a skilled nursing
facility, so that the transfer of beds takes on special significance.

Nonetheless, while the reasonableness of an agency’s interpretation
of a regulation is important if the regulation is ambiguous, an inter-
pretation that is inconsistent with the plain language of an unambigu-
ous regulation cannot be upheld simply because the interpretation,
standing alone, seems reasonable enough. If section 413.30(e) fails to
adequately address the considerations the Secretary believes impor-
tant when determining whether the new provider exemption should be
applied in any given case, then the Secretary should amend the regu-
lation; he cannot reach the desired result by interpreting the regulation
in a way wholly unconnected to the regulation’s plain language.

In this case, the Secretary’s interpretation is altogether untethered
from the plain language of the regulation. We therefore reject that
interpretation, and we conclude that MGH is entitled to the “new pro-
vider” exemption set forth in section 413.30(e). Accordingly, we
vacate the district court’s order granting summary judgment to the
Secretary, and we remand with instructions to enter judgment in favor
MGH.

VACATED AND REMANDED WITH INSTRUCTIONS

GREGORY, Circuit Judge, dissenting:

Unlike the majority, I find that the Secretary’s denial of Maryland
General Hospital’s (“MGH”) application for an exemption from cost
limits under the Medicare program was based upon a reasonable inter-
pretation of the regulation set forth in 42 C.F.R. § 413.30(e)(1996).
Therefore, I respectfully dissent.

12

MARYLAND GENERAL HOSPITAL v. THOMPSON

I.

In Maryland, a hospital desiring to operate a skilled nursing facility
(“SNF”) must first secure a “certificate of need” (“certificate”) from
the Maryland Healthcare Commission (“Commission”). Md. Code
Ann., Health-Gen. I § 19-20. The purpose of the certificate is to track
and limit the State’s capacity for skilled nursing services. The Com-
mission has the authority to issue a certificate for new beds if it finds
that additional beds are needed to provide adequate care for the sur-
rounding community. As an alternative, a SNF seeking a certificate
may purchase rights to operate beds from existing SNFs. Because the
purchase of existing rights does not add to the total inventory of beds
state-wide, the Commission will issue a certificate for purchased beds
without a new finding of need.

In June 1994, MGH agreed to purchase ten beds from Villa St.
Michael, six beds from Granada Nursing Home, and eight beds from
Wesley Home (collectively “the Selling Providers”). The agreements
between MGH and the Selling Providers called for the purchase of
“operational” beds. The parties understood that the Selling Providers
were to then replenish the sold beds by exercising their rights to
“waiver” beds. On August 2, 1994, MGH submitted a certificate of
need application to the Commission to obtain approval for a 24-bed
hospital-based SNF. MGH’s certificate was approved by the Commis-
sion on July 11, 1995. For reasons not entirely clear from the record,
the Commission reclassified the purchases from the Selling Providers
as purchases of waiver beds, and the certificate was issued based on
that reclassification. MGH did not object.

II.

Section 1395oo(f), Title 42 of the United States Code, provides for
judicial review of final agency decisions on Medicare provider reim-
bursement disputes, and instructs the reviewing court to apply the rel-
evant provisions of the Administrative Procedure Act (“APA”). Under
the APA, agency action may be set aside only if it is “arbitrary, capri-
cious, an abuse of discretion, or otherwise not in accordance with
law.” 5 U.S.C. §§ 706(2)(A); see Citizens to Preserve Overton Park,
Inc. v. Volpe, 401 U.S. 402, 413-15 (1971). The Secretary’s interpre-
tation of his own regulation is entitled to substantial deference, and

MARYLAND GENERAL HOSPITAL v. THOMPSON

13

“must be given controlling weight unless it is plainly erroneous or
inconsistent with the regulation.” Thomas Jefferson Univ. v. Shalala,
512 U.S. 504, 512 (1994) (internal quotation marks and citations
omitted).

III.

As required by the regulation, the Secretary considers the “previous
ownership” of the certificates in determining the length of time a pro-
vider has “operated.” 42 C.F.R. § 413.30(e) (1996). If the prior owner
was providing equivalent services, and the potentially new provider
was established through the transfer of some portion of the certificate
rights underlying those services, the operating history of the prior
owner “from which any [certificate of need] rights were obtained is
imputed to the acquiring provider.” Paragon Health Network, Inc. v.
Thompson, 251 F.3d 1141, 1145 (7th Cir. 2001). The Secretary main-
tains that certificate rights are such an integral part of SNF operations
that the transfer of these rights is considered to be a “change in own-
ership,” referred to by the Secretary as a “CHOW,” rather than the
creation of a new provider. See PRM § 1500.7. Because Villa St.
Michael, Granada Nursing Home, and Wesley Home operated skilled
nursing facilities since June 1, 1989, July 1, 1989, and May 7, 1996,
respectively, MGH’s length of operation under the regulation
exceeded three years, requiring the denial of new provider status.

As a general matter, MGH accepts the reasonableness of the Secre-
tary’s approach to interpreting the regulation. Furthermore, MGH
concedes that insofar as the Secretary’s interpretation applies to “op-
erational” beds, the interpretation is reasonable and entitled to defer-
ence. See Appellant’s Br. at 35, 36 n.12, 38-39.1 Thus, the sole issue
before the Court is MGH’s insistence that the Secretary’s interpreta-
tion cannot be extended to waiver beds.

1The majority would ignore this critical concession by MGH. See
Majority Op. at 9 n.2. Generally, concessions made by litigants are bind-
ing on appeal. See Hagan v. McNallen (In re McNallen) 62 F.3d 619,
625 (4th Cir. 1995). Thus, the Court errs in scrutinizing an interpretation
of the Secretary that MGH has elected not to challenge.

14

MARYLAND GENERAL HOSPITAL v. THOMPSON

In making its challenge, MGH focuses on the word “operated” in
the regulation. Since waiver beds, by definition, are not currently
operating, MGH contends that the beds have not “operated” for three
years. In essence, MGH equates the state-law category of “opera-
tional” with the federal requirement that the provider have “operated”
for less than three years. MGH argues that there could not have been
a CHOW because the Selling Providers’ licenses were unaffected by
the transfer.

The Secretary responds that MGH has misread the word “operated”
in the regulation. The issue, of course, is not whether the specific beds
operated for less than three years, but whether the “provider” operated
for less than three years. Yet the focus on bed rights, according to the
Secretary, is an attempt to infuse the undefined term “provider” with
meaning. The bed rights are the critical link between two otherwise
separate entities, and it is this link that gives rise to continuity of “pro-
vider” status. Thus, it is irrelevant that the beds had not previously
been “operated.” As for MGH’s assertion that there has been no
change in ownership, the Secretary argues that the impact of the trans-
fer of certificate of need rights on the licensure of the Selling Provid-
ers is not the exclusive test for whether a CHOW has occurred; rather,
the Secretary looks at the entire operations of the prior owners to
determine whether a SNF was created through the purchase and relo-
cation of a portion of other, preexisting SNFs.

Ultimately, it is the Secretary’s task to give content to the term
“new provider.” Unlike the majority, I find that focusing on certificate
of need rights is a reasonable exercise of interpretive discretion. See,
e.g., Chevron U.S.A. Inc. v. Natural Res. Def. Council Inc., 467 U.S.
837, 864, 866 (1984). The Secretary’s reliance on the difference
between existing rights (operational or waiver) and newly-created
rights (based on a finding of need) supports the purpose of the new
provider exemption, which is to provide assistance in the provision of
new services by new entrants to the skilled nursing facility market.
The transfer of certificate of need rights does not result in an increase
in the overall number of beds available under the state certification
scheme. Extending the exemption under these circumstances would
therefore ill serve its underlying purpose.2

2This analysis is in accord with that of the Seventh Circuit in Paragon
Health Network, Inc. v. Thompson, 251 F.3d 1141 (7th Cir. 2001). In

MARYLAND GENERAL HOSPITAL v. THOMPSON

15

Given the centrality of certificate rights in defining the class of
existing service providers under state law, it is quite reasonable for
the Secretary to rely on these bed rights in giving meaning to related
federal regulations. Deference is especially warranted when “the regu-
lation concerns ‘a complex and highly technical regulatory program,’
in which the identification and classification of relevant ‘criteria nec-
essarily require significant expertise and entail the exercise of judg-
ment grounded in policy concerns.’” Thomas Jefferson Univ., 512
U.S. at 512 (quoting Pauley v. BethEnergy Mines, Inc., 501 U.S. 608,

Paragon, the Secretary found that the transfer of operational bed rights
rendered the exemption unavailable for the purchasing SNF facility. The
SNF argued that the Secretary was plainly wrong to rely on the bed
rights. The court explained the ambiguity of the term “new provider” as
follows:
[The purchasing SNF] is correct that a nursing “provider” is
composed of many different attributes, but changing one or more
of these characteristics does not mean that the SNF becomes a
different “provider.” For example, if a facility fires all its staff
and hires a new one, but makes no other changes, an ordinary
user of the English language probably would consider the SNF
with the new staff to be the same “provider” as it was before.
Similarly, a SNF that replaced all of its old equipment with new
models would still be the same “provider” as it was before the
modernization. Even if a SNF both fired its staff and replaced all
of its equipment, one might still call it the same “provider” if the
administration and the physical plant remained the same. Of
course, if all the various things that make up a SNF were new
in the sense that they had not been part of another facility, then
one would have to call the SNF a “new provider.” Conversely,
if a nursing facility did not change any of its aspects, it would
unquestionably continue to be the same provider rather than a
new one. The difficulty in drawing a line between these two
extremes is what makes the word “provider” ambiguous in the
regulation.
Paragon, 251 F.3d at 1148. The court accepted as reasonable the Secre-
tary’s interpretation that because certificate rights were a necessary and
integral feature of operating as a provider and the transfer of certificate
rights would not increase the overall amount of nursing services provided
to the community, no new provider had been established. Id. at 1149.

16

MARYLAND GENERAL HOSPITAL v. THOMPSON

697 (1991)). Because Medicare is such a complex, regulatory pro-
gram, this Court should decline to displace the Secretary’s policy
choices in favor of its own.

I would also find that the Secretary’s rejection of a operation-
al/waiver bed distinction is reasonable. It is of little consequence that
the transferred beds had not been made operational. Waiver beds are
available for service at the discretion of the owner of the waiver right.
The owner’s right to bring a waiver bed into operation is not signifi-
cantly different from the rights the owner holds as to all other beds.
Just as the owner may take operating beds out of service, so too can
he bring waiver beds into service.

The whole point of buying and selling bed rights is, of course, to
transfer the right to use. MGH has not demonstrated that a seller’s use
or non-use of the bed right affects the value of the right in any way.
See Maryland Gen. Hosp., 155 F. Supp. 2d at 464-65. Simply put, the
buyer values the right to use the bed, regardless of whether the bed
has been used. The fact that some operational beds may not have
actually been operated, but rather only administratively classified as
ready for operation, makes the asserted distinction between waiver
and operational beds even less persuasive.

Additionally, MGH’s own actions make clear that there is no rele-
vant or significant difference between operational beds and waiver
beds. MGH initially sought to buy operational beds from the Selling
Providers. It was only after the sale had been effectively finalized that
the Commission reclassified the sale as involving waiver beds. The
reclassification seems to have been motivated by administrative con-
venience, and did not effect a substantive change in MGH’s opera-
tions. MGH was perfectly satisfied with the reclassification at the
time, and now concedes that it would not have been entitled to the
new provider exemption had the original classification not been
changed. It can hardly be concluded that the Secretary’s interpretation
is unreasonable when MGH cannot show any substantive effect on
their operations related to the reclassification of the beds.

IV.

Congress has specifically delegated to the Secretary responsibility
for determining when exemption from routine cost limits for skilled

MARYLAND GENERAL HOSPITAL v. THOMPSON

17

nursing facilities is warranted. 42 U.S.C. § 1395yy(c). The Secretary
has fulfilled his obligation through regulation, 42 C.F.R. § 413.30(e),
and has sought to enforce the regulation through an interpretation that
is neither plainly erroneous nor inconsistent with the language of the
regulation. Accordingly, the Secretary’s interpretation “must be given
controlling weight[.]” Thomas Jefferson Univ., 512 U.S. at 512. I,
therefore, would uphold the Secretary’s interpretation that MGH is
not entitled to the “new provider” exemption set forth in § 413.30(e),
and affirm the district court’s order granting summary judgment to the
Secretary. Accordingly, I respectfully dissent.

McLaren Reg.’l Med. Ctr. v. City of Owosso

McLaren Reg.’l Med. Ctr. v. City of Owosso

S T A T E O F M I C H I G A N

C O U R T O F A P P E A L S

MCLAREN REGIONAL MEDICAL CENTER
and MCLAREN MEDICAL MANAGEMENT,
INC.,

v

Petitioners-Appellants,

Respondent-Appellee.

CITY OF OWOSSO,

Before: Smolenski, P.J., and White and Kelly, JJ.

PER CURIAM.

FOR PUBLICATION
May 3, 2007
9:00 a.m.

No. 244386
Tax Tribunal
LC No. 00-268590

ON REMAND

This case is before us for the second time, on remand from the Supreme Court, after it
construed the charitable institution exemption in Wexford Medical Group v City of Cadillac, 474
Mich 192; 713 NW2d 734 (2006), an appeal that this Court had consolidated with the instant
case when it initially decided the property tax exemption question in McLaren Regional Medical
Ctr v City of Owosso, unpublished opinion per curiam of the Court of Appeals, issued August 24,
2004 (Docket Nos. 244386, 250197). In Wexford, supra, 474 Mich 204-221, the Supreme Court
reversed this Court’s affirmance of the Tax Tribunal’s conclusion that the Wexford Medical
Group did not constitute a charitable institution entitled to a tax exemption. The Supreme Court
additionally “vacate[d] the part of the Court of Appeals judgment that held that petitioner did not
qualify for th[e] [public health purpose] exemption.” Id. at 221.

The Supreme Court vacated this Court’s judgment regarding the McLaren petitioners
“and remand[ed] this case to the Court of Appeals for reconsideration in light of our decision in
Wexford,” supra, 474 Mich 192. McLaren Regional Medical Ctr v City of Owosso, 476 Mich
853 (2006). The Supreme Court instructed this Court to “reconsider petitioners’ claim that they
are entitled to an exemption under MCL 211.7o (charitable institution) or to an exemption under
MCL 211.7r (hospital or public health institution).” Id. at 853-854. We reverse and remand for
entry of judgment in favor of petitioners.

The applicable standard of review is set forth in Wexford, supra, 474 Mich 201-202:

The standard of review for Tax Tribunal cases is multifaceted. Where
fraud is not claimed, this Court reviews the tribunal’s decision for misapplication
of the law or adoption of a wrong principle. Michigan Bell Tel Co v Dep’t of

-1-

Treasury, 445 Mich 470, 476; 518 NW2d 808 (1994). We deem the tribunal’s
factual findings conclusive if they are supported by “competent, material, and
substantial evidence on the whole record.” Id., citing Const 1963, art 6, § 28 and
Continental Cablevision [of Michigan, Inc] v Roseville, 430 Mich 727, 735; 425
NW2d 53 (1988). But when statutory interpretation is involved, this Court
reviews the tribunal’s decision de novo. . . . [Citation omitted.]

The crux of the question presented in this appeal is whether during the 1999 and 2000 tax

years, the McLaren petitioners fell within the scope of statutorily defined tax exemptions in
MCL 211.7o1 and MCL 211.7r.2 When engaging in statutory construction, a court’s “paramount
concern is identifying and effecting the Legislature’s intent. And where a tax exemption is

1 In 1999, the charitable institution exemption was defined as follows in MCL 211.7o:

(1) Property owned and occupied by a nonprofit charitable institution
while occupied by that nonprofit charitable institution solely for the purposes for
which it was incorporated is exempt from the collection of taxes under this act.

(3) Property owned by a nonprofit charitable institution or charitable trust that is
leased, loaned, or otherwise made available to another nonprofit charitable
institution or charitable trust or to a nonprofit hospital or a nonprofit educational
institution that is occupied by that nonprofit charitable institution, charitable trust,
nonprofit hospital, or nonprofit educational institution solely for the purposes for
which that nonprofit charitable institution, charitable trust, nonprofit hospital, or
nonprofit educational institution was organized or established and that would be
exempt from taxes collected under this act if the property were occupied by the
lessor nonprofit charitable institution or charitable trust solely for the purposes for
which the lessor charitable nonprofit institution was organized or the charitable
trust was established is exempt from the collection of taxes under this act.

In 2000, the Legislature replaced the term “property” with “real and personal property.” 2000
PA 309.
2 The public health purpose exemption provides as follows:

The real estate and building of a clinic erected, financed, occupied, and
operated by a nonprofit corporation or by the trustees of health and welfare funds
is exempt from taxation under this act, if the funds of the corporation or the
trustees are derived solely from payments and contributions under the terms of
collective bargaining agreements between employers and representatives of
employees for whose use the clinic is maintained. The real estate with the
buildings and other property located on the real estate on that acreage, owned
and occupied by a nonprofit trust and used for hospital or public health purposes
is exempt from taxation under this act, but not including excess acreage not
actively utilized for hospital or public health purposes and real estate and
dwellings located on that acreage used for dwelling purposes for resident
physicians and their families. [Emphasis added.]

-2-

sought, [a court should] recall that because tax exemptions upset the desirable balance achieved
by equal taxation, they must be narrowly construed.” Wexford, supra, 474 Mich 204.

Charitable Institution Exemption

In Wexford, supra, 474 Mich 203, the Supreme Court reviewed the language of MCL

211.7o(1), and discerned three basic elements comprising the statutory exemption: “(1) The real
estate must be owned and occupied by the exemption claimant; (2) the exemption claimant must
be a nonprofit charitable institution; and (3) the exemption exists only when the buildings and
other property thereon are occupied by the claimant solely for the purposes for which it was
incorporated.”

We first address the ownership and occupancy issue. In the 1999 and 2000 tax years,
petitioners utilized different portions of the property, 216 East Comstock Street in Owosso. The
parties do not dispute the following findings of fact by the Tax Tribunal regarding the various
property uses during the tax years in question:

The [McLaren Community] Medical Center building on the subject
property was separated operationally into three areas for tax years 1999 and 2000.
(Pet Exh 22). The east portion (5,874 sq. ft.) was occupied and used by MMM for
the operation of a family medical practice. (Tr. Vol. I, pp. 183). The west portion
(4,365 sq. ft.) of the building was occupied and used by MRMC for a laboratory
draw station and weight management program. (Tr. Vol. I, pp. 183, 207).
MRMC also occupied and used the center portion (6,848 sq. ft.) of the building
for a physical therapy program that was discontinued for the tax year 2000. (Tr.
Vol. I, pp. 183, 208). No exemption is claimed for the center portion for the tax
year 2000.

MMM maintained before the Tax Tribunal and in the prior appeal in this Court that it
owned the real property. This Court did not reach the real property ownership question in the
prior appeal. McLaren Regional Medical Ctr, supra, slip op at 4. The Tax Tribunal rejected
MMM’s claim that it owned 216 East Comstock:

A threshold issue in this appeal concerns the ownership of the subject

property. On the relevant tax days, December 31, 1998 and 1999, title to the
subject real property was vested in MRMC by warranty deed executed by THI
Associates dated June 9, 1995 (Pet Exh 1). The deed was executed and delivered
pursuant to a real estate purchase and sale agreement of June 5, 1995 between
MRMC and THI Associates (Pet Exh 6) in connection with MRMC’s purchase of
the medical practice and designated assets of the Antoynatan Group, P.C. (Pet
Exh 5), consisting of three doctors engaged in the practice of internal medicine at
the subject property. Nonetheless, MMM claims that it owned the subject
property. MMM argues that a memorandum of understanding (Memorandum)
entered into as of October 1, 1996 between MRMC, MMM and McLaren Health
Care Corporation, the parent and sole member of MRMC and MMM, operated as
a conveyance of the subject property from MRMC to MMM. (Pet Exh 7).

Section 2.03 of the Memorandum provides:

-3-

“2.03 Premises. The Medical Center (MRMC) assigns, transfers,

conveys, and delivers to the Parent (MHCC), and Parent accepts from the
Medical Center, the real property described on attached Exhibit E (the
“Premises”).” (Emphasis added)

The subject property is among those described on Exhibit E to the Memorandum.

Section 3 of the Memorandum provides:

“3. Contributions.

“The Parent contributes to MMM the Practices, the Assets to be

Transferred, and [$10,000,000] cash. It is the intent of the parties that the Parent
immediately divest itself of all interest in the Practices and that MMM assume all
aspects of the ownership and operation of the Practices.”

While Section 3 of the Memorandum provides that the Parent, McLaren Health
Care Corporation, contributes to MMM the [sic] “the Practices, the Assets to be
Transferred and cash,” such terms as used in the Memorandum do not include
“Premises.” No deed was ever executed by MRMC conveying the subject
property to either the Parent, McLaren Health Care Corporation, or to MMM
even though Section 9 of the Memorandum provides for the preparation and
execution of deeds to convey the premises as may be necessary to effectuate the
transfer and document the transactions contemplated in the Memorandum. The
Tribunal finds and concludes that Petitioners have failed to prove by a
preponderance of the evidence that MMM, and not MRMC, was the owner of the
subject real property on the relevant tax days.

Because (1) the parties do not dispute that in June 1995, MRMC obtained a warranty deed to 216
East Comstock; (2) petitioners introduced no evidence contradicting that the only relevant deed
to MMM was executed in November or December 2002; (3) the Tax Tribunal accurately
characterized the contents of the October 1996 memorandum, which distinguished between
“Assets to be Transferred” and “premises,” and did not expressly purport to transfer from parent
company McLaren Health Care Corporation to MMM any real property or “premises”; and (4)
respondent’s assessor testified that “even on the 2000 record, we still show that the owner of
record is McLaren Regional Medical Center,” we conclude that the Tax Tribunal’s factual
findings regarding ownership had competent, material and substantial evidentiary support in the
record, and that the tribunal did not misapply the law in reaching its conclusion regarding
ownership. Wexford, supra, 474 Mich 201-202. In summary, we accept the Tax Tribunal’s
determination that MRMC, not MMM, owned the property during the 1999 and 2000 tax years.

Notwithstanding that MMM did not own 216 East Comstock in 1999 and 2000, as
required for exemption purposes under MCL 211.7o(1), MMM still may qualify for a 1999 and
2000 tax exemption if it and the property’s true owner each qualifies as a “charitable institution.”
This scenario is contemplated by MCL 211.7o(3), which currently provides:

Real or personal property owned by a nonprofit charitable institution or

charitable trust that is leased, loaned, or otherwise made available to another

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nonprofit charitable institution or charitable trust or to a nonprofit hospital or a
nonprofit educational institution that is occupied by that nonprofit charitable
institution, charitable trust, nonprofit hospital, or nonprofit educational institution
solely for the purposes for which that nonprofit charitable institution, charitable
trust, nonprofit hospital, or nonprofit educational institution was organized or
established and that would be exempt from taxes collected under this act if the
real or personal property were occupied by the lessor nonprofit charitable
institution or charitable trust solely for the purposes for which the lessor
charitable nonprofit institution was organized or the charitable trust was
established is exempt from the collection of taxes under this act. [Emphasis
added.]3

MCL 211.7o(1) and MCL 211.7o(3) contain similar elements. The plain statutory
language of MCL 211.7o(3) conditions exemption on ownership of the property by a “charitable
institution,” and occupancy of the property by another “charitable institution” “solely for the
purposes for which that nonprofit charitable institution . . . was organized or established.” And,
echoing § 7o(1), § 7o(3) also imposes the condition that the property would be exempt if
occupied by its owner “solely for the purposes for which the lessor charitable nonprofit
institution [MRMC] was organized.” Consequently, the exemption in MCL 211.7o(3) does not
apply unless (1) MRMC, the owner of 216 East Comstock in 1999 and 2000, meets the definition
of a “nonprofit charitable institution;” (2) MMM, the occupant, also meets that definition; (3)
MMM’s occupancy of the property was solely for the purposes for which it was organized or
established, and (4) the property would be exempt if MRMC occupied it itself solely for the
purposes for which MRMC was organized or established.

Thus, we turn to the important question whether MMM and MRMC are charitable
institutions as delineated by the Michigan Supreme Court in Wexford, supra, 474 Mich 215.
Respondent concedes that petitioners meet the requirements of factors 1, 4 and 5, but contends
that they do not meet the requirements of factors 2, 3 and 6.

1) A “charitable institution” must be a nonprofit institution

The articles incorporating MRMC and MMM as Michigan corporations declare them to
be nonprofit entities, and respondent does not dispute that petitioners are nonprofit institutions.

2) A “charitable institution” is one that is organized chiefly, if not solely, for charity

We conclude that during the 1999 and 2000 tax years, both MRMC and MMM were
organized chiefly, if not solely, for charity. The articles incorporating MMM, as restated in
1996, list among its organizational purposes “[t]o establish, maintain, operate, support, and carry
on activities and services designed to advance or support the provision of effective and efficient
health care services” [Article II(B)], “[t]o engage in, promote or support any activity designed to

3 Before its amendment by 2000 PA 309, MCL 211.7o(3) referred to “property,” instead of “real
or personal property.”

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promote quality of care and the general health and welfare of the communities served by the
Corporation” [Article II(D)], and “[t]o engage in charitable, scientific, educational, and research
activities designed to promote the health of the public” [Article II(H)]. The articles
incorporating MRMC, as restated in 1994, similarly identify medical-related purposes of
incorporation, including “[t]o establish, construct, own, . . . operate, and support either directly,
through subsidiary or affiliate organizations, or in cooperation with other organizations, such
facilities and services providing care and treatment for sick, injured, disabled, aged or indigent
persons and providing for the preservation of health . . . ” [Article II(A)], “[t]o establish,
maintain, operate, support, and carry on activities and services designed to advance or support
the provision of health care services, including without limitation, programs involving scientific
research, preventative health activities, and other health-related education [Article II(B)], “[t]o
carry on, sponsor or participate in programs . . . for the education of the communities served by
the Corporation in the preservation of health” [Article II(C)], and “[t]o engage in, promote or
support any activity designed to promote the general health or welfare of the communities served
by the Corporation . . . .” [Article II(D).]

Provided that petitioners dispense gifts of medical services, such services meet the
definition of “charity” restated by the Supreme Court in Wexford, supra, 474 Mich 214:

(Charity) . . . (is) a gift, to be applied consistently with existing laws, for

the benefit of an indefinite number of persons, either by bringing their minds or
hearts under the influence of education or religion, by relieving their bodies from
disease, suffering or constraint, by assisting them to establish themselves for life,
or by erecting or maintaining public buildings or works or otherwise lessening the
burdens of government. [Internal quotations omitted, emphasis added.]

With respect to the gift element of the “charity” definition, petitioners’ articles of
incorporation also contain the following identical provision declaring their intent to organize
exclusively for charitable purposes:

Article VII

Notwithstanding any other provision of these Articles, the Corporation

shall be organized and operated exclusively for charitable, scientific, and
educational purposes within the meaning of Section 501(c)(3) of the Code. The
Corporation shall not conduct or carry on any activities not permitted to be
conducted or carried on by an organization exempt under Section 501(a) of the
Code and described in Section 501(c)(3) of the Code, or by an organization
contributions to which are deductible under Section 170(c)(2) of the Code. No
substantial part of the activities of the Corporation shall consist of carrying on
propaganda or otherwise attempting to influence legislation, nor shall the
Corporation participate in or intervene in (including the publication or distribution
of statements) any political campaign on behalf of (or in opposition to) any
candidate for public office. [Emphasis added.]

Article VIII governing both corporations also provides that “[n]o part of the net earnings of the
Corporation shall inure to the benefit of any private person,” except that petitioners may “pay
reasonable compensation for services rendered and . . . make such lawful payments and

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distributions in furtherance of the purposes of the Corporation, subject to limitations on the
nature and extent of such activities applicable to organizations exempt under Section 501(a) of
the Code and described in Section 501(c)(3) of the Code.” Additionally, § 1.01 of MMM’s
corporate bylaws and § 1.1 of the 1994 amended bylaws of MRMC reinforce that “[t]he
Corporation shall be operated exclusively for charitable, scientific, and educational purposes as
set forth in the Articles of Incorporation.”

In light of these consistent statements of organizational purpose to provide medical

services and to “operate[] exclusively for charitable, scientific, and educational purposes,” we
conclude that both MMM and MRMC satisfy the requirement that they be organized chiefly, if
not solely, for charity. Wexford, supra, 474 Mich 215 (observing that Wexford Medical Group
was “organized as a charitable institution as reflected in its statement of purpose and bylaws”);
Pheasant Ring v Waterford Twp, 272 Mich App 436, 440; 726 NW2d 741 (2006) (considering
articles of incorporation in determining whether the petitioner had organized for charity).

Respondent insists that neither petitioner has organized solely or chiefly for charity
because they “only claim[] charity when a debt cannot be collected.” However, respondent’s
contention does not relate to the nature of petitioners’ organization, but rather their operation.

3). A “charitable institution” does not offer its charity on a discriminatory basis by choosing
who, among the group it purports to serve, deserves the services. Rather, a “charitable
institution” serves any person who needs the particular type of charity being offered

Petitioners satisfy the nondiscrimination element of the “charitable institution” inquiry.
The 1996 bylaws of MMM and the 1994 amended bylaws of MRMC contain similar clauses
specifically prohibiting “discrimination against any person because of race, color, religion,
national origin, age handicap, ability to pay, or sex,” and providing that the “prohibition applies
to all phases of operation of the Corporation . . . .” MMM’s president, Dennis D. Krzeminski,
testified that MMM never turned away patients because of their inability to pay for medical
services. Additionally, a list of patient rights adopted by MMM and MRMC enshrines each
patient’s “right to care without regard for . . . source of payment.” Respondent presented no
evidence suggesting that petitioners did not adhere to their stated nondiscrimination policies in
providing medical services. The fact that MMM may have made efforts to attempt the collection
of debt owed from some particular patient or patients does not reasonably suggest that MMM
provided medical services only to those who could afford to pay for them.

4) A “charitable institution” brings people’s minds or hearts under the influence of education
or religion; relieves people’s bodies from disease, suffering, or constraint; assists people to
establish themselves for life; erects or maintains public buildings or works; or otherwise lessens
the burdens of government

As discussed above, both MMM and MRMC were organized to provide the community
with medical services, and respondent acknowledges that petitioners’ provision of medical
services relieves people’s bodies from disease, suffering or constraint.

5) A “charitable institution” can charge for its services as long as the charges are not more
than what is needed for its successful maintenance

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Respondent does not dispute that petitioners’ service charges do not exceed the amounts
of revenue they need for successful maintenance. Krzeminski averred that although MMM
charged patients who could afford to pay for medical services, MMM never had earned a profit,
and depended for its existence on subsidization by its parent, McLaren Health Care Corporation.

6) A “charitable institution” need not meet any monetary threshold of charity to merit the
charitable institution exemption; rather, if the overall nature of the institution is charitable, it is
a “charitable institution” regardless of how much money it devotes to charitable activities in a
particular year

The testimony at the Tax Tribunal hearing establishes that MMM, which as discussed
above is organized for charitable purposes, provided charity during the 1999 and 2000 tax years.
Krzeminski, MMM’s president, described that MMM placed no limitation on the number of
Medicaid and Medicare patients it treated at 216 East Comstock, that the government reimbursed
MMM for treatment of Medicaid patients at a rate of approximately 27 to 30 cents per dollar of
MMM’s standard charges, and that MMM accepted the government’s reimbursements as
“payment in full” and did not pursue Medicaid and Medicare patients for the differences between
MMM’s standard charges and the government reimbursement rates. The testimony of
Krzeminski, Dr. Carol Vorenkamp, who had worked at MMM’s Owosso clinic since February
1997, and Tracey Lynn Minarik, who had worked as clinical coordinator of the Owosso site from
the time that MMM acquired 216 East Comstock until she became the site’s office manager in
August 1998, reflects that apart from MMM’s official charity care policy, for which patients had
to fill out applications for assistance, MMM provided charitable care as follows: (1) consistent
with MMM policy, Dr. Vorenkamp saw and treated all patients irrespective of their ability to pay
or whether they owed money to MMM, (2) Dr. Vorenkamp had discretion to dispense with
charges for, or “no charge,” visits by patients who appeared to lack resources or expressed an
inability to pay for the services, (3) in MMM’s 1998 and 1999 fiscal years, respectively, Dr.
Vorenkamp documented 287 and 168 “no charge” visits, which she explained as typically
involving rechecks of various ailments and conditions, (4) according to Krzeminski, MMM
additionally sometimes wrote “off [amounts] that we accepted as payment in full with respect to
services rendered patients with no insurance,” (5) MMM dispensed free medication samples to
low-income patients and those without insurance, (6) in 1998 and 1999, MMM performed
physicals for local high school athletes for a $5 fee, which funds they donated to the high
schools, and (7) MMM also offered free health screenings, including breast examinations in
October 1998, and in 1999, free blood pressure, glucose and cholesterol testing at a local factory.

This evidence supports that during the 1999 and 2000 tax years, MMM devoted
substantial resources to charitable activities, and that MMM thus constitutes an institution of
overall charitable nature. The nature of MMM’s charitable activities in the 1999 and 2000 tax
years closely parallels the conduct of the petitioner in Wexford, which the Supreme Court found
qualified Wexford as an institution having an overall charitable nature:

Petitioner has a charity care program that offers free and reduced-cost
medical care to the indigent with no restrictions. It operates under an open-access
policy under which it accepts any patient who walks through its doors, with
preferential treatment given to no one. Although petitioner sustains notable
financial losses by not restricting the number of Medicare and Medicaid patients it
accepts, it bears those losses rather than restricting its treatment of patients who

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cannot afford to pay.

Petitioner more closely matches hospitals examined in [Auditor General v

R B Smith Mem Hosp Ass’n, 293 Mich 36; 291 NW 213 (1940),] and Michigan
Sanitarium & Benevolent Ass’n v Battle Creek, 138 Mich 676; 101 NW 855
(1904),] hospitals we found qualified for the charitable institution exemption.
Just as in those cases, the overall nature of petitioner’s organization is charitable.
The losses the institution sustains are not fully subsidized by the patients, but by
petitioner’s parent corporations, patients who can afford to pay, and, to some
extent, by government reimbursements. And the fact that petitioner receives
government reimbursements has little bearing on the analysis because, despite any
government aid, the beneficiary of the medical care receives a gift. . . .

Moreover, it is clear in this case that the reimbursements petitioner
receives from government funding fall well short of defraying the costs petitioner
incurs to render medical care. Thus, not only are Medicare and Medicaid patients
receiving a gift from petitioner, but petitioner is not fully recouping its costs from
the government because of the government’s underpayments. [Wexford, supra,
474 Mich 216-217 (emphasis added).]

Lastly, Section 7o(3) allows for an exemption only when the building is occupied by the
charitable institution solely for the purposes for which the charitable institution was
incorporated. The record contains ample evidence that in the 1999 and 2000 tax years, MMM
occupied 216 East Comstock solely for the primarily charitable health care purposes for which it
was incorporated.

MRMC

Still, however, MMM does not qualify for a property tax exemption under MCL
211.7o(3) unless MRMC, the owner of 216 East Comstock during the 1999 and 2000 tax years,
likewise proves that its “overall nature . . . is charitable.” While the evidence regarding MRMC
was not as extensive as regarding MMM, the record supports that MRMC services the MMM
patients as a lab drawing station, and in providing weight management and physical therapy, and
that MRMC accepted patients on the same basis as MMM.

We therefore conclude that under Wexford, supra, the portions of 216 East Comstock at

issue, for the years at issue, were 1) owned by MRMC, a nonprofit charitable institution; and 2)
either a) occupied by MRMC solely for the purposes for which MRMC was organized, or b)
made available to MMM, also a nonprofit charitable institution, and occupied by MMM solely
for the purposes for which MMM was organized. As to the portion of the property occupied by
MMM, had MRMC occupied this portion solely for the purposes for which it was organized, the
property would likewise be exempt.4

4 In light of this conclusion, we do not address the public health exemption, MCL 211.7r.

-9-

Reversed and remanded to the Tax Tribunal for entry of judgment in favor of petitioners.
We do not retain jurisdiction.

/s/ Michael R. Smolenski
/s/ Helene N. White
/s/ Kirsten Frank Kelly

-10-

McMeans v. Scripps Health Inc.,

McMeans v. Scripps Health Inc.,

McMeans v. Scripps Health Inc.,
No. D035486 (Cal. Ct. App. March 26, 2002)

Patients
who were injured in automobile accidents brought a class action suit against
a hospital. The patients were seeking a declaratory judgment that the hospital
was not entitled to liens on the patients’ tort recoveries. The Court of Appeal
of California ruled that any right of the hospital to collect from a tort recovery
would have to be defined by the contract between the injured party’s insurance
company and the health care provider. Therefore, the amount a hospital would
be entitled to collect would be limited to the amount it agreed to accept in
payment from the insurer.

Md. Gen. Hosp., Inc. v. Thompson,

Md. Gen. Hosp., Inc. v. Thompson,

Md. Gen. Hosp., Inc. v. Thompson,
No. 01-2012 (4th Cir. Oct. 9, 2002).

A
hospital established a hospital-based skilled nursing facility by purchasing
the bed rights from three other skilled nursing facilities. The hospital applied
for, and was denied, a "new provider exemption" by HHS which allows
higher Medicare reimbursement rates during the first years of operation. The
District Court upheld the decision of HHS, the hospital appealed, and the United
States Court of Appeals for the Fourth Circuit reversed. The Fourth Circuit
concluded that the hospital was entitled to the exemption because it had not
operated a skilled nursing facility in the past, even though it had purchased
the bed rights from skilled nursing facilities that had been in operation in
the past. Also, the Fourth Circuit found that the HHS interpretation of the
regulation at issue was entitled to no deference because it was plainly erroneous
and inconsistent with the plain meaning of the statute.

McLaren Reg.’l Med. Ctr. v. City of Owosso

McLaren Reg.’l Med. Ctr. v. City of Owosso

TAX EXEMPTION

McLaren Reg’l Med. Ctr. v. City of Owosso, Docket No. 244386
(Mich. Ct. App. May 3, 2007)

The Michigan Court of Appeals held that, during the 1999 and 2000
tax years, a medical center and its tax-exempt subsidiary fell within the
scope of statutorily defined property tax exemptions under state law.

Based on a recent decision by the Michigan Supreme Court discussing the charitable
institution tax exemption, the Court of Appeals held that the real property
at issue was owned during the years at issue by the medical center, a nonprofit
charitable institution, and either occupied by the medical center solely for
the purposes for which the medical center was organized, or made available
to a tax-exempt subsidiary, which occupied the space solely for the purposes
for which the subsidiary was organized. The court ruled that the property would
be exempt regardless of whether it was occupied by the medical center or by
a tax-exempt subsidiary.

The court also analyzed and determined that the medical center and its subsidiary
corporation were "nonprofit charitable institutions" because they
met all of the factors delineated by the Michigan Supreme Court that a charitable
institution must meet: (1) they were nonprofit institutions; (2) during the
tax years in question, they were organized chiefly, if not solely, for charity;
(3) they adhered to their stated nondiscrimination policies in providing medical
services; (4) they were organized to provide the community with medical services
and relieve people’s bodies from disease, suffering or constraint; (5) their
service charges did not exceed the amounts of revenue they needed for successful
maintenance; and (6) they provided charity during the tax years in question.
Accordingly, the court remanded the matter to the Tax Tribunal for entry of
judgment in favor of the medical center.

 

McMeans v. Scripps Health,

McMeans v. Scripps Health,

McMeans v. Scripps Health,
No. D035486 (Cal. App. July 24, 2002)

The
California Court of Appeals held that, under the Hospital Lien Act, a hospital’s
lien rights could not exceed the amount it agreed to accept from an insurance
carrier as payment in full for the services provided (the amount the patient
is indebted to the hospital). Accordingly, since one patient’s insurance policy
covered and paid for the procedures performed, and the hospital agreed to accept
payment from the insurance company as payment in full, the hospital could not
place a lien on a settlement that the patient received from a personal injury
lawsuit. However, for two other patients whose insurance policies did not cover
the procedures performed, the hospital had the right to place a lien on a settlement
in order to recover the "reasonable cash value of the benefits."