GREG N. STIVERS, District Judge.
Plaintiff Galen E. Langston ("Langston") brings this action for judicial review of two decisions issued by the Department of Labor ("DOL"). For the reasons discussed below, neither decision is reviewable, and Langston's claim is
The Energy Employees Occupational Illness Compensation Program Act of 2000 ("EEOICPA"), 42 U.S.C. §§ 7384 to 7385s-16, allows individuals who suffer from illnesses as a result of exposure to toxic substances during the course of their work for the Department of Energy ("DOE") and its predecessor agencies to seek monetary benefits. To obtain benefits under Part B of the Act, a claimant must file a claim with the DOL's Office of Workers' Compensation Programs ("OWCP") demonstrating that he developed chronic beryllium disease ("CBD") or cancer as a result of his exposure to beryllium or other toxic substances while employed at a DOE facility.
After a claimant submits an application for benefits, the OWCP district office issues a recommended decision informing the claimant of its recommended findings of fact and conclusions of law. 20 C.F.R. §§ 30.300, -.306. Thereafter, the claimant may file written objections to the recommended decision with the Final Adjudication Branch ("FAB"). Id. § 30.310. The FAB will consider any objections and issue a final decision on the claim. Id. §§ 30.300, -.316. The claimant then has 30 days to request that the FAB reconsider its decision. Id. § 30.319(a). "If the FAB denies the request for reconsideration, the FAB's original decision is considered `final' on the date the request is denied. . . ." Id. § 30.319(c)(2).
At any time thereafter, a claimant may file a written request with the Director of the OWCP's Division of Energy Employees Occupational Illness Compensation to reopen a claim based on new evidence demonstrating covered employment or exposure to a toxic substance. Id. § 30.320(b). If the Director decides that the matter raised by the request is material to the claim, the Director will reopen the claim and return it to the district office for further development. Id. § 30.320(b)(1). The Director's decision as to whether to reopen a claim is discretionary and not subject to administrative review, and the decision to deny a reopening request is not subject to judicial review when based on the fact that the claimant submitted no new evidence. Id. § 30.320(c); Berry v. U.S. Dep't of Labor, 832 F.3d 627, 636 (6th Cir. 2016).
Langston worked for the DOE in various roles at the Paducah Gaseous Diffusion Plant ("PGDP") from March 18, 1973 until September 17, 2002. (Administrative R. 1546-47, 2731 [hereinafter AR]). He claims that he was exposed to toxic substances during that time, and that he developed several illnesses as a result. (See, e.g., Compl. ¶ 9, DN 1). Over the past seventeen years, Langston has sought—but been unable to obtain—EEOICPA benefits for his illnesses. (See, e.g., Compl. ¶ 10). The attempts relevant to his claims for judicial review are as follows:
In July 2001, Langston filed a claim under Part B, alleging that he developed brain cancer as a result of his exposure to toxic substances while working at the PGDP. (AR 1585). On November 25, 2002, the FAB denied his claim, reasoning that the medical evidence he submitted in support of this claim was insufficient to establish a diagnosis of brain cancer. (AR 1504).
Langston then submitted two new claims. First, Langston filed a claim for Part B benefits, arguing that he developed CBD as a result of his work at the PGDP. (AR 1070-72). The district office denied this claim, as did the FAB.
On October 6, 2011, Langston's representative, Gary Vander Boegh ("Vander Boegh") asked the District Director to reopen a few of Langston's claims, including his: (1) Part B claim for brain cancer, (2) Part E claim for chronic bronchitis,
In response, the District Director granted in part and denied in part Langston's reopening request. Specifically, on May 3, 2012, the District Director reopened Langston's brain cancer and chronic bronchitis claims. (AR 652-56). On May 6, 2012, however, the District Director denied Langston's request to reopen his Part B claim for CBD. (AR 644-50).
Despite having reopened Langston's Part B claim for brain cancer and Part E claim for chronic bronchitis, the district office denied both claims on the merits, and, in a decision issued August 23, 2013, the FAB concurred. (AR 290-307, 467-77). With respect to Langston's claim for brain cancer, the FAB concluded that the medical evidence was insufficient to establish that Langston had brain cancer. (AR 303). In addition, the FAB held that Langston's exposure to toxic substances at the PDGP did not cause that condition. (AR 303, 306).
Then, on April 4, 2014, Vander Boegh asked the District Director to reopen Langston's CBD claims under Parts B and E. (AR 19-21). In support of the request, Vander Boegh submitted an excerpt from the DOL's Site Exposure Matrices ("SEM"), which listed welding fumes as a potential cause of CBD. (AR 19-21). On May 22, 2014, the District Director denied the request. (AR 12-16). Specifically, the District Director reasoned that Langston's CBD claims had been previously denied for want of medical evidence demonstrating that he had CBD, and that the extract from the SEM supplied exposure evidence rather than evidence indicating a CBD diagnosis. (AR 12-16).
Langston then filed suit in this Court seeking judicial review of two decisions. First, he sought review of the District Director's May 22, 2014, decision declining to reopen his claim for CBD under Parts B and E. (Compl. ¶ 1; Pl.'s Br. 6-10, DN 29). Second, he sought review of the FAB's December 4, 2006, decision denying his claim for CBD under Part B. (Pl.'s Br. 10-24). Langston's claims for judicial review are ripe for adjudication.
The Court has jurisdiction under 28 U.S.C. § 1331 because a federal question under the Administrative Procedures Act ("APA"), 5 U.S.C. §§ 701-706, is presented.
As noted, Langston seeks review of two of the DOL's decisions. The Court will address Langston's claims for judicial review separately.
First, Langston seeks review of the District Director's May 22, 2014, decision declining to reopen the FAB's earlier decisions denying his claims for CBD under EEOICPA Parts B and E.
In this instance, the Court cannot review the District Director's decision declining to reopen the FAB's decisions denying Langston's CBD claims. The only document Langston attached to his reopening request was a one-page excerpt from the SEM identifying toxic substances that can cause CBD. (AR 19-21). The FAB, however, did not deny Langston's CBD claims on the ground that he failed to establish that he was exposed to toxic substances; rather, the FAB denied his claim because Langston failed to prove that he suffered from CBD. (AR 710-16, 916-21). As a result, the SEM Langston submitted with his reopening request was not new evidence. See Featherston, 2016 WL 4746211, at *5. Therefore, the Court concludes that Langston's reopening request was based on a purported material error in the FAB's decisions. Under Berry, the denial of such reopening requests is not reviewable.
Second, Langston asks the Court to assess the propriety of the FAB's decision denying him Part B benefits for CBD. (Pl.'s Br. 10-23). As this Court has explained: "Part B of the EEOICPA does not contain any provision either allowing or precluding judicial review. . . ." Featherston, 2016 WL 4746211, at *2. As a result, district courts use the APA's standards and procedures—including the APA's six-year statute of limitations period—in determining whether judicial review of a Part B claim is warranted. See id.; see also 28 U.S.C. 2401(a).
Here, the FAB issued its final decision regarding Langston's Part B claims for CBD on December 4, 2006, and he filed his claim for judicial review of that decision on July 10, 2014. (AR 916-21, 988-92). Thus, Langston's claim for judicial review falls well outside the APA's six-year limitations period, and, as such, the FAB's decision is unreviewable.
In sum, neither the District Director's May 22, 2014, decision declining to reopen the FAB's earlier decisions denying his CBD claims, nor the FAB's December 4, 2006 decision denying his Part B CBD claim, are reviewable. Accordingly, this case is