Most patients are not comfortable with a lower full denture. Although an upper denture usually can be sufficient for most patients, the lower need anchorage to be stable. The simplest solution in my practice is placing 4 mini dental implants in the lower jaw. Sometimes I am able to use the patients existing lower denture and attach the implants. It is extremely rare for be to make a lower denture without implants of some kind to hold it in place.
As you've seen from other comments, medicaid will not cover dental implants. If you hope to have medicaid pay for any dental care you will need to go to a dentist that participates with medicaid. Medicaid reimbursement rates are so low that most dentists do not participate with the government program. Consider medicaid for only very basic dental services and please find a reputable dentist that happens to participate if you must. If you desire dental implants then an alternative for you may be a dentist who offers payment plans. Some will offer 2 years to pay without interest. Seek them out instead. Also, choose a dentist with lots of experience. Dentists who advertise dental implants usually see many cases a day. Hope that helps.