[Federal Register: May 10, 2005 (Volume 70, Number 89)]
[Proposed Rules]
[Page 24679-24691]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr10my05-14]
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Part II
Department of Veterans Affairs
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38 CFR Part 5
Duties of VA; Rights and Responsibilities of Claimants and
Beneficiaries; Proposed Rule
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DEPARTMENT OF VETERANS AFFAIRS
38 CFR Part 5
RIN 2900-AL82
Duties of VA; Rights and Responsibilities of Claimants and
Beneficiaries
AGENCY: Department of Veterans Affairs.
ACTION: Proposed rule.
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SUMMARY: The Department of Veterans Affairs (VA) proposes to reorganize
and rewrite in plain language its disability compensation and pension
regulations relating to the duties of VA and the rights and
responsibilities of claimants and beneficiaries. These revisions are
proposed as part of VA's rewrite and reorganization of all of its
compensation and pension regulations in a logical, claimant-focused,
and user-friendly format. The intended effect of the proposed revisions
is to assist claimants, beneficiaries, and VA personnel in locating and
understanding these regulations.
DATES: Comments must be received by VA on or before July 11, 2005.
ADDRESSES: Mail or hand-deliver written comments to: Director,
Regulations Management (00REG1), Department of Veterans Affairs, 810
Vermont Avenue, NW., Room 1068, Washington, DC 20420; or fax comments
to (202) 273-9026; or e-mail comments to VAregulations@va.gov or
through http://www.Regulations.gov. Comments should indicate that they
are submitted in response to ``RIN 2900-AL82.'' All comments received
will be available for public inspection in the Office of Regulation
Policy and Management, Room 1063B, between the hours of 8 a.m. and 4:30
p.m., Monday through Friday (except holidays). Please call 202-273-9515
for an appointment.
FOR FURTHER INFORMATION CONTACT: Clay Witt, Chief, Regulations Rewrite
Project (00REG2), Department of Veterans Affairs, 810 Vermont Avenue,
NW., Washington, DC 20420, (202) 273-9515.
SUPPLEMENTARY INFORMATION: The Secretary of Veterans Affairs has
established an Office of Regulation Policy and Management to provide
centralized management and coordination of VA's rulemaking process. One
of the major functions of this office is to oversee a Regulation
Rewrite Project (the Project) to improve the clarity and consistency of
existing VA regulations. The Project responds to a recommendation made
in the October 2001 ``VA Claims Processing Task Force: Report to the
Secretary of Veterans Affairs.'' The Task Force recommended that the
compensation and pension regulations be rewritten and reorganized in
order to improve VA's claims adjudication process. Therefore, the
Project began its efforts by reviewing, reorganizing and redrafting the
content of the regulations in 38 CFR part 3 governing the compensation
and pension program of the Veterans Benefits Administration. These
regulations are among the most difficult VA regulations for readers to
understand and apply.
Once rewritten, the proposed regulations will be published in
several portions for public review and comment. This is one such
portion. It includes proposed rules regarding duties of VA and rights
and responsibilities of claimants and beneficiaries. After review and
consideration of public comments, final versions of these proposed
regulations will ultimately be published in a new part 5 in 38 CFR.
Outline
Overview of New Part 5 Organization
Overview of Proposed Subpart C Organization
Table Comparing Current Part 3 Rules with Proposed Part 5 Rules
Content of Proposed Regulations
Rights of Claimants and Beneficiaries
5.80 Right to representation.
5.81 Submission of information, evidence, or argument.
5.82 Right to a hearing.
5.83 Right to notice of decisions and proposed adverse actions.
5.84 Restoration of benefits following adverse action.
Duties of VA
5.90 [Reserved]
5.91 Medical evidence for disability claims.
5.92 Independent medical opinions.
5.93 Service records which are lost, destroyed, or otherwise
unavailable.
Responsibilities of Claimants and Beneficiaries
5.100 Time limits for claimant or beneficiary responses.
5.101 Requirement to provide Social Security numbers.
5.102 Meeting reexamination requirements.
5.103 Failure to report for VA examination or reexamination.
5.104 Certifying continuing eligibility to receive benefits.
Endnote Regarding Amendatory Language
Paperwork Reduction Act
Regulatory Flexibility Act
Executive Order 12866
Unfunded Mandates
Catalog of Federal Domestic Assistance numbers
List of Subjects in 38 CFR Part 5
Overview of New Part 5 Organization
We plan to organize the part 5 regulations so that all provisions
governing a specific benefit are located in the same subpart, with
general provisions pertaining to all compensation and pension benefits
also grouped together. We believe this organization will allow
claimants, beneficiaries, and their representatives, as well as VA
personnel, to find information relating to a specific benefit more
quickly than the organization provided in current part 3.
The first major subdivision would be ``Subpart A--General
Provisions.'' It would include information regarding the scope of the
regulations in new part 5, delegations of authority, general
definitions, and general policy provisions for this part.
``Subpart B--Service Requirements for Veterans'' would
include information regarding a veteran's military service, including
minimum service requirements, types of service, periods of war, and
service evidence requirements. This subpart was published as proposed
on January 30, 2004. See 69 FR 4820.
``Subpart C--Adjudicative Process, General'' would inform
readers about claims and benefit application filing procedures, VA's
duties, rights and responsibilities of claimants and beneficiaries,
general evidence requirements, and general effective dates for new
awards, as well as revision of decisions and protection of VA ratings.
This subpart will be published as three separate Notices of Proposed
Rulemaking (NPRMs) due to its size. The portion concerning claimants'
and beneficiaries' rights and responsibilities and VA's duties is the
subject of this document.
``Subpart D--Dependents and Survivors'' would inform
readers how VA determines whether an individual is a dependent or a
survivor for purposes of determining eligibility for VA benefits. It
would also provide the evidence requirements for these determinations.
``Subpart E--Claims for Service Connection and Disability
Compensation'' would define service-connected disability compensation,
including direct and secondary service connection. This subpart would
inform readers how VA determines entitlement to service connection. The
subpart would also contain those provisions governing presumptions
related to service connection, rating principles, and effective dates,
as well as several special ratings. This subpart will be published as
three separate NPRMs due
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to its size. The first, concerning presumptions related to service
connection, was published on July 27, 2004. See 69 FR 44614.
``Subpart F--Nonservice-Connected Disability Pensions and
Death Pensions'' would include information regarding the three types of
nonservice-connected pension: Improved Pension, Old-Law Pension, and
Section 306 Pension. This subpart would also include those provisions
that state how to establish entitlement to Improved Pension, and the
effective dates governing each pension. This subpart will be published
as two separate NPRMs due to its size. The portion concerning Old-Law
Pension, Section 306 Pension, and elections of Improved Pension was
published as proposed on December 27, 2004. See 69 FR 77578.
``Subpart G--Dependency and Indemnity Compensation, Death
Compensation, Accrued Benefits, and Special Rules Applicable Upon Death
of a Beneficiary'' would contain regulations governing claims for
dependency and indemnity compensation (DIC); death compensation;
accrued benefits; benefits awarded, but unpaid at death; and various
special rules that apply to the disposition of VA benefits, or proceeds
of VA benefits, when a beneficiary dies. This subpart would also
include related definitions, effective-date rules, and rate-of-payment
rules. This subpart will be published as two separate NPRMs due to its
size. The portion concerning accrued benefits, special rules applicable
upon the death of a beneficiary, and several effective-date rules, was
published as proposed on October 1, 2004. See 69 FR 59072. The portion
concerning DIC benefits and general provisions relating to proof of
death and service-connected cause of death will be the subject of a
separate NPRM.
``Subpart H--Special and Ancillary Benefits for Veterans,
Dependents, and Survivors'' would pertain to special and ancillary
benefits available, including benefits for children with various birth
defects.
``Subpart I--Benefits for Filipino Veterans and
Survivors'' would pertain to the various benefits available to Filipino
veterans and their survivors.
``Subpart J--Burial Benefits'' would pertain to burial
allowances.
``Subpart K--Matters Affecting Receipt of Benefits'' would
contain provisions regarding bars to benefits, forfeiture of benefits,
and renouncement of benefits.
``Subpart L--Payments and Adjustments to Payments'' would
include general rate-setting rules, several adjustment and resumption
regulations, and election of benefit rules. Because of its size,
proposed regulations in subpart L will be published in two separate
NPRMs.
The final subpart, ``Subpart M--Apportionments and Payments to
Fiduciaries or Incarcerated Beneficiaries,'' would include regulations
governing apportionments, benefits for incarcerated beneficiaries, and
guardianship.
Some of the regulations in this NPRM cross-reference other
compensation and pension regulations. If those regulations have been
published in this or earlier NPRMs as part of the Project, we cite the
proposed part 5 section. However, where a regulation proposed in this
NPRM would cross-reference a proposed part 5 regulation that has not
yet been published, we cite to the current part 3 regulation that deals
with the same subject matter. The current part 3 section we cite may
differ from its eventual part 5 counterpart in some respects, but we
believe this method will assist readers in understanding these proposed
regulations where no part 5 counterpart has yet been published.
Because of its large size, proposed part 5 will be published in a
number of NPRMs, such as this one. VA will not adopt any portion of
part 5 as final until all of the NPRMs have been published for public
comment.
In connection with this rulemaking, VA will accept comments
relating to a prior rulemaking issued as part of the Project, if the
matter being commented on relates to both NPRMs.
Overview of Proposed Subpart C Organization
This NPRM pertains to compensation and pension regulations that
apply to the duties of VA and the rights and responsibilities of
claimants and beneficiaries. These regulations would be contained in
proposed subpart C of new 38 CFR part 5. Although these regulations
have been substantially restructured and rewritten for greater clarity
and ease of use, most of the basic concepts in these proposed
regulations are the same as in their existing counterparts in 38 CFR
part 3. However, a few substantive changes are proposed.
Table Comparing Current Part 3 Rules With Proposed Part 5 Rules
The following table shows the correspondence between the current
regulations in part 3 and the proposed regulations contained in this
NPRM:
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Based in whole or in part on
Proposed part 5 section or paragraph 38 CFR part 3 section or
paragraph (or ``New'')
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5.80...................................... 1st sentence, 3.103(e); 2nd
sentence, new.
5.81(a)................................... 3.103(d)
5.81(b)................................... New.
5.82(a)(1)................................ 3.103(c)(1)
5.82(a)(2)................................ New.
5.82(b)................................... 3.103(c)(2)
5.82(c)................................... 3.103(c)(1)
5.82(d)(1)................................ 3.103(c)(1)
5.82(d)(2)................................ 3.103(c)(2)
5.82(d)(3)................................ New.
5.82(e)(1)................................ 3.103(c)(2)
5.82(e)(2)................................ 3.103(c)(1)
5.82(e)(3)................................ New.
5.82(f)(1)................................ 3.105(i)(1)
5.82(f)(2)................................ 3.105(i)(1)
5.82(f)(3)................................ 3.105(i)(1)
5.82(f)(4)................................ 3.105(i)(1)
5.82(f)(5)................................ 3.105(i)(2)
5.83(a)................................... 3.1(q); 3.103(b)
5.83(a)(1)................................ 3.103(b)(1), (f)
5.83(a)(2)................................ 3.103(b)(1), (f)
5.83(a)(3)................................ 3.103(b)(1), (f)
5.83(a)(4)................................ 3.103(b)(1), (f)
5.83(a)(5)................................ 3.103(b)(1), (f)
5.83(b)................................... 3.103(b)(2)
5.83(c)(1)................................ 3.103(b)(3)(i)
5.83(c)(2)................................ 3.103(b)(3)(ii)
5.83(c)(3)................................ 3.103(b)(3)(iii)
5.83(c)(4)................................ 3.103(b)(3)(iv)
5.83(c)(5)................................ 3.103(b)(3)(v)
5.83(c)(6)................................ 3.103(b)(3)(vi)
5.84...................................... 3.103(b)(4)
5.91(a)................................... 3.326 (b)-(c)
5.91(b)................................... 3.304(c)
5.92...................................... 3.328
5.93...................................... New.
5.100..................................... 3.110
5.101(a).................................. 3.216
5.101(b)(1)............................... 3.216
5.101(b)(2)............................... 3.216
5.101(c).................................. 3.400(w)
5.101(d).................................. New.
5.101(e).................................. 3.216
5.101(f).................................. 3.216
5.102(a).................................. 3.327(a)
5.102(b).................................. 3.327(a)
5.102(c)(1)............................... 3.327(b)(1)
5.102(c)(2)(i)............................ 3.327(b)(2)(i)
5.102(c)(2)(ii)........................... 3.327(b)(2)(ii)-(iii)
5.102(c)(2)(iii).......................... 3.327(b)(2)(iv)
5.102(c)(2)(iv)........................... 3.327(b)(2)(v)
5.102(c)(2)(v)............................ 3.327(b)(2)(vi)
5.102(c)(3)............................... 3.327(b)(1); 4.28
5.102(d)(1)-(2)........................... 3.327(c)
5.103, except for 5.103(e)................ 3.655
5.103(e).................................. 3.330
5.104(a).................................. 3.652(a)
5.104(b).................................. 3.652(a)(1)
5.104(c).................................. 3.652(a)(1)-(2)
5.104(d).................................. 3.652(b)
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Readers who use this table to compare existing regulatory
provisions with the proposed provisions, and who observe a substantive
difference between them, should consult the text that appears later in
this document for an explanation of any significant changes
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in each regulation. Not every paragraph of every current part 3
regulation regarding the subject matter of this rulemaking is accounted
for in the table. In some instances, other portions of the part 3
sections that are addressed in these proposed regulations will appear
in subparts of part 5 that are being published separately for public
comment. For example, a reader might find a reference to paragraph (a)
of a part 3 section in the table, but no reference to paragraph (b) of
that section because paragraph (b) will be addressed in a separate
NPRM. The table also does not include provisions from part 3
regulations that will not be repeated in part 5. Such provisions are
discussed specifically under the appropriate part 5 heading in this
preamble. Readers are invited to comment on the proposed part 5
provisions and also on our proposals to omit those part 3 provisions
from part 5.
Content of Proposed Regulations
Rights of Claimants and Beneficiaries
5.80 Right to Representation
We propose to state the provisions pertaining to claimants' and
beneficiaries' right to representation, located in current Sec.
3.103(e), in Sec. 5.80. We believe that this concept is difficult to
find in the current Part 3 organization and that assigning it a
separate section would make it more prominent than it is in Part 3. We
also propose to add a provision stating that VA will inform a claimant
or beneficiary of this right when VA sends them a decision or a
proposed reduction, discontinuance, or other adverse action. Current 38
CFR 19.25 only requires VA to inform claimants of this right when a
decision is rendered. However, it has been long-standing VA practice to
inform beneficiaries of this right when we propose an adverse action.
To ensure that beneficiaries and their representatives know that VA
will provide such notice, we propose to include this provision in
Sec. Sec. 5.80 and 5.83(a).
5.81 Submission of Information, Evidence, or Argument
We also propose that current Sec. 3.103(d), ``Submission of
evidence,'' be set forth without substantive change in a new
regulation, designated as Sec. 5.81(a). This proposed regulation
states that any information, evidence, or argument offered in support
of a claim is to be made part of the record of proceedings. Also to be
included in the record are any issues raised by the claimant.
New Sec. 5.81(b) clarifies who may submit information, evidence,
or argument. Of course a claimant or beneficiary may make such
submissions, or, where applicable, do so through a fiduciary or
guardian acting as his or her surrogate. In addition, unless provided
otherwise in another part 5 section, we propose to permit a
representative to submit any information, evidence, or argument on
behalf of a claimant or beneficiary pursuant to any part 5 regulation
that allows or requires submission of information, evidence, or
argument. VA's regulations do not explicitly state that a
representative may submit any information, evidence, or argument on
behalf of a claimant or beneficiary, but it has long been VA's practice
to allow such submissions. This practice allows a representative to
properly assist a claimant or beneficiary in submitting items needed by
VA in the adjudication process.
5.82 Right to a Hearing
We also propose a regulation, Sec. 5.82, pertaining to a
claimant's right to a hearing before the agency of original
jurisdiction. The regulation would consist of all the provisions
relating to this right that are currently in Sec. Sec. 3.103(c) and
3.105(i). It is logical to place all provisions pertaining to a single
subject in one regulation.
We propose not to include in Sec. 5.82 the last sentence of
current Sec. 3.103(c)(2), which reads as follows: ``In cases in which
the nature, origin, or degree of disability is in issue, the claimant
may request visual examination by a physician designated by VA and the
physician's observations will be read into the record.'' We believe
that the right of a claimant to request an examination or opinion is no
longer needed because under 38 U.S.C. 5103A(d), enacted in 2000, VA
will provide a medical examination or opinion if it is ``necessary to
make a decision on the claim.'' This statutory provision has been
codified at 38 CFR 3.159(c)(4)(i).
Current 38 CFR 3.103(c)(1) states in relevant part, ``[u]pon
request, a claimant is entitled to a hearing at any time on any issue
or issues involved in a claim.'' We propose to replace the reference to
``a hearing'' with ``one hearing.'' A claimant generally requests a
hearing after receiving an initial decision on a claim or after
receiving an adverse decision affecting the receipt of VA benefits (or
a proposed decision to reduce or discontinue VA benefits). The hearing
is generally requested for the purpose of presenting additional
evidence or argument to substantiate the claim. The VA official
conducting the hearing is obligated to elicit any information or
evidence not already of record in support of the benefits claimed.
Therefore, the current regulatory language that provides for multiple
hearing opportunities for a claimant to present information or evidence
is unnecessarily expansive. We also note that this proposed change does
not affect a claimant's right to a hearing before the Board of
Veterans' Appeals. The third sentence of proposed 5.82(a)(1) states,
``A claimant is also entitled to a hearing before the Board of
Veterans'' Appeals. See Sec. 20.700 and Sec. 20.1304 of this
chapter.''
At proposed Sec. 5.82(a)(2), we state that, under certain
circumstances, one additional hearing on an issue will be provided to a
claimant. The additional hearing will be provided if the claimant
asserts that a new witness has been discovered or new evidence found
that could substantiate the claim and that this witness or evidence
could only be presented at a hearing and could not be presented at the
original hearing. This limits the circumstances when the additional
hearing can be requested and serves the interests of claimants,
beneficiaries, and VA in expeditiously handling claims. We believe that
including this exception to the one-hearing rule is fair to claimants
and beneficiaries.
Neither current Sec. 3.103, nor any other part 3 regulation,
generally provides that VA will provide advance notice of a scheduled
hearing to a claimant. (Section 3.105(i)(1) provides for such notice
only of predetermination hearings.) It has long been VA's practice to
provide advance notice of all hearings, and we have put such a
provision in 5.82(d)(1).
In Sec. 5.82(d)(3), we propose to add a provision setting forth
current VA procedure: to make a decision based upon evidence and
testimony presented during the hearing in addition to all other
evidence of record. This is consistent with VA's duty to consider all
evidence of record when making a decision.
In Sec. 5.82(e)(3), we propose to add a provision stating that if
a claimant fails without good cause to report for a scheduled hearing,
VA's decision will be based upon the evidence of record. (Examples of
good cause in our proposed provision include, but are not limited to,
illness or hospitalization of the claimant, or death of an immediate
family member). This provision is similar to a rule in current Sec.
3.105(i)(2), which concerns predetermination hearings. We believe that
establishing a fair, consistent policy for all hearings
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will ensure that all claimants and beneficiaries are treated the same
and will help make the hearing process more efficient.
Current Sec. 3.105(i) contains the rules pertaining to a
claimant's or beneficiary's rights in predetermination hearings. We
propose to place these provisions into paragraph (f) of Sec. 5.82
because it is logical to place those regulations pertaining to
predetermination hearings in the same regulation that covers other
hearing rights.
Current Sec. 3.105(i)(1) provides that if a beneficiary wants a
predetermination hearing, VA must receive the request within 30 days
from the date of VA's notice to the beneficiary of the right to a
hearing. We propose to include the word ``timely'' in proposed
paragraph (f)(1) to reinforce the existence of a time limitation.
In a separate NPRM, ``Subpart A--General Provisions'', we plan to
expand upon the current definition of ``notice'' (found in 38 CFR Sec.
3.1(q)) to state in part 5 that copies of VA notices will be sent to a
claimant or fiduciary, as well as a representative, to the last known
address of record. Therefore, we propose in Sec. Sec. 5.82, 5.83,
5.103 and 5.104, to simply state that VA notices will be sent to
claimants or beneficiaries (as appropriate) to avoid unnecessary
repetition.
5.83 Right to Notice of Decisions and Proposed Adverse Actions
Current Sec. 3.103 is titled, ``Procedural due process and
appellate rights,'' and states the requirements for providing notice of
decisions to claimants. The current section also includes those
provisions that VA must follow when advising a beneficiary of a
proposal to reduce or discontinue benefit payments.
In paragraph (a) of proposed Sec. 5.83, we state the general
notice procedures that VA must follow when advising a claimant or
beneficiary of any decision that affects a benefit payment or the
granting of relief. Proposed paragraphs (a)(1) through (5) provide that
the notice must explain the following: the reason for the decision; the
effective date of the decision; the right to a hearing; the right to
representation; and the right to an appeal. This material is derived
from current Sec. 3.103(b)(1) and (f).
In paragraph (b) of proposed Sec. 5.83, VA proposes to describe
the advance notice that VA must provide to a beneficiary if VA intends
to take action adverse to the beneficiary (e.g., reduce or discontinue
benefits). This paragraph restates provisions in current Sec.
3.103(b)(2) without substantive change, and adds a requirement that VA
will ``inform the beneficiary of the 30-day time limit to request a
predetermination hearing under Sec. 5.82(f).'' We propose to include a
cross-reference in this paragraph to current Sec. 3.105, which governs
the procedures applicable to the type of action VA is taking.
In proposed Sec. 5.83(c), we propose to list the situations in
which VA need not provide notice of an adverse action before VA takes
that action. This list is not new, but is a restatement of those
exceptions found at current Sec. 3.103(b)(3)(i) through (vi). Section
5.83(c) states that, under certain circumstances, VA will send
contemporaneous notice of an adverse action, particularly when the
information leading to the action came from the beneficiary, or the
fiduciary. We propose to list these in paragraphs (c)(1) through (6).
In addition to those listed in the current regulation, there are
two other circumstances in which notice of discontinuance of benefits
is not required. Notice of discontinuance of benefits is not required
if VA receives a Record of Interment from the National Cemetery
Administration or if VA receives an Application for United States Flag
for Burial Purposes. The Record of Interment or the Application for
United States Flag for Burial Purposes are reliable indications of a
beneficiary's death and therefore no notice is required to terminate
benefits. Therefore, we propose to add receipt of such documents to the
proposed list in paragraph (c).
We intend to move current Sec. 3.103(a), which is a statement of
policy, to the beginning of part 5, where it would serve as a general
introductory statement concerning the entire part 5 regulations. This
change will be addressed in a separate NPRM.
5.84 Restoration of Benefits Following Adverse Action
Proposed Sec. 5.84 is derived from current Sec. 3.103(b)(4). No
substantive changes to this regulation are intended.
Duties of VA
5.90 VA Assistance in Developing Claims
Title 38 CFR 3.159 is currently the subject of a separate VA
rulemaking which will implement changes made by section 701 of Pub. L.
108-183, 117 Stat. 2670. When that rulemaking is complete, we plan to
repeat the language of the amended Sec. 3.159 as Sec. 5.90. We
therefore propose in this rulemaking to reserve space for proposed
Sec. 5.90.
5.91 Medical Evidence for Disability Claims
Prosped paragraph (a) of Sec. 5.91 would state rules regarding
alternative sources of medical evidence that VA may rely on in lieu of
a VA medical examination or period of observation, assuming the
evidence is adequate for adjudicating a claim. This paragraph, derived
from current Sec. 3.326(b) and (c), as well as 38 U.S.C. 5125, notes
that VA may rely on a hospital or examination report from another
government agency, private facility, or private physician. We note,
further, that VA will make reasonable efforts to obtain such non-
federal reports under it's Sec. 3.159(c)(1) duty to assist.
The third sentence of current Sec. 3.326(a) requires that a
claimant report to a scheduled VA examination. Because this requirement
is discussed in detail in current Sec. 3.655 and will be addressed in
Sec. 5.103 as proposed in this notice, we believe that restating it in
proposed Sec. 5.91 would be redundant. Therefore, we propose not to
include this sentence in proposed Sec. 5.91.
We also plan to restate the second sentence of current Sec.
3.326(b) and place it in a separate regulation specifically relating to
medical examinations for former prisoners of war. That change will be
addressed in a separate NPRM.
Proposed Sec. 5.91(b) states a rule regarding adjudicating claims
based on combat injuries and conditions that are obviously due to
service. The paragraph provides that VA may rate such injuries and
conditions pending receipt of service records. This paragraph is
derived from the last sentence of current Sec. 3.304(c).
We propose to not include the first two sentences of current Sec.
3.304(c). The first sentence of current Sec. 3.304(c) states, ``The
development of evidence in connection with claims for service
connection will be accomplished when deemed necessary but it should not
be undertaken when evidence present is sufficient for this
determination.'' The second sentence of current Sec. 3.304(c) states,
``In initially rating disability of record at the time of discharge,
the records of the service department, including the reports of
examination at enlistment and the clinical records during service, will
ordinarily suffice.'' We believe that in light of the requirements of
the Veterans Claims Assistance Act of 2000, Pub. L. 106-475, 114 Stat.
2096, and its implementing regulation, current Sec. 3.159, VA is
required to obtain all relevant federal records pertinent to
substantiating a claim, and to make reasonable attempts to obtain non-
federal reports. Because
[[Page 24684]]
current law and regulations define the information and evidence that VA
is required to obtain or try to obtain, the first sentence of current
Sec. 3.304(c) is unnecessary. In addition, because the examinations
conducted by the Department of Defense for service members at the time
of discharge do not ordinarily yield the evidence required for VA to
assign a proper evaluation under 38 CFR part 4, Schedule of Rating
Disabilities, service medical records rarely will ``suffice'' without a
VA examination.
5.92 Independent Medical Opinions
We propose to repeat the content of Sec. 3.328 in Sec. 5.92
without change.
5.93 Service Records Which Are Lost, Destroyed, or Otherwise
Unavailable
We propose to establish a new rule to apply if potentially relevant
service records which were in the custody of specified U.S. Government
entities are lost or destroyed, or otherwise became unavailable. Our
goal is to help claimants and adjudicators identify sources of
alternative evidence. The proposed rule is derived from existing VA
procedures and policies.
As indicated in paragraph (a) of the proposed rule, in certain
cases records in the custody of the Department of Defense have been
destroyed or are otherwise unavailable due to no fault of the claimant.
In such cases, VA attempts to obtain alternative evidence in order to
assist the claimant in developing the evidence necessary to
substantiate his or her claim. Proposed paragraph (a) requires VA to
attempt to obtain potentially relevant alternative evidence before
denying a claim based on a lack of evidence that may have been
contained in the unavailable records.
Proposed paragraph (b) describes the most common situation in which
VA must seek alternative evidence, which is when the original records
were destroyed in the 1973 fire at the National Personnel Records
Center. That fire destroyed approximately 80 percent of the stored
records for Army veterans who served between November 1, 1912, and
January 1, 1960. The United States Court of Appeals for Veterans Claims
(CAVC) has taken judicial notice of certain provisions of the VA
Veterans Benefits Administration Adjudication Procedures Manual,
(Manual M21-1), which detail the assistance that VA generally provides
if a claimant's records were destroyed in the 1973 fire. See McCormick
v. Gober, 14 Vet. App. 39, 44-45 (2000) (remanding for VA consideration
of Manual M21-1 provisions); Dixon v. Derwinski, 3 Vet. App. 261, 263
(1992) (holding that VA ``had a duty to advise appellant that, even
though his service records could not be found, alternative methods of
supporting the claim would be considered,'' and citing Manual M21-1
provisions). In proposed paragraph (b) we identify the records most
likely to have been affected by the 1973 fire.
In proposed paragraph (c), we state some of the sources of
alternative evidence that VA uses when the primary records are
unavailable due to the 1973 fire. The list of sources in this paragraph
is not all-inclusive; it is intended to assist claimants by alerting
them to potential sources of relevant evidence.
Responsibilities of Claimants and Beneficiaries
5.100 Time Limits for Claimant or Beneficiary Responses
We propose to repeat the content of Sec. 3.110 in Sec. 5.100
without change.
5.101 Requirement To Provide Social Security Numbers
Section 5101(c)(1) of title 38, United States Code, requires
claimants applying for disability compensation or pension benefits, as
well as persons already in receipt of such benefits, to provide VA, on
request, the Social Security numbers for themselves and any dependent
or beneficiary on whose behalf, or based upon whom, the claimant or
beneficiary receives or has applied for benefits. Further, 38 U.S.C.
5101(c)(2) requires that VA deny the claims of, or discontinue paying
benefits to, those persons who fail to provide such Social Security
number upon request. Pursuant to 38 U.S.C. 1822, these requirements
also apply to claims for or awards of monetary benefits under chapter
18 of title 38, United States Code. VA has implemented these statutes
in current Sec. 3.216.
Section 5101(c)(2) of title 38, United States Code, and current
Sec. 3.216 both refer only to terminating payments when a person fails
to disclose a requested Social Security number to VA. We have proposed
in 38 CFR Sec. 5.101(b) that VA may reduce rather than discontinue
payments in certain circumstances (for example, when we have a
beneficiary's Social Security number but not the number of a dependent
for whom additional benefits are being paid). Although 38 U.S.C.
5101(c)(2) refers to termination of payments, we believe it is
reasonable to construe it to require only a reduction in cases where we
have the beneficiary's Social Security number but not a dependent's.
According to VAOPGCPREC 24-95, 38 U.S.C. 5101(c)(2) was enacted to
prevent fraudulent payments by allowing for the verification of the
existence and income of beneficiaries and their dependents. We believe
it is reasonable to conclude that Congress did not intend that a
beneficiary who has provided his or her own Social Security number
would forfeit all of his or her benefits based on the failure to
provide the Social Security number of a dependent for whom or based
upon whom additional benefits were being paid.
We propose to rewrite Sec. 3.216 in plain language and reorganize
its provisions logically but without substantive change. In addition,
current Sec. 3.500(w) provides the effective date of a discontinuance
or reduction of benefits based upon the failure to provide a Social
Security number. VA proposes to include this brief effective date
provision in proposed 38 CFR 5.101(c) to allow the reader to easily
find the effective date provisions for a discontinuance or reduction of
benefits based on a failure to provide VA with a Social Security
number.
Section 5101(c)(2) of title 38, U.S.C., states that VA may
reinstate benefits if a beneficiary whose benefits have been
discontinued for failure to provide a Social Security number
subsequently provides it. We propose to add a provision, in 38 CFR
5.101(d), that clarifies that VA will reinstate benefits from the date
VA received the Social Security number if the number is ultimately
provided. This is consistent with VA practice and with the authorizing
statute.
Current Sec. 3.216 gives beneficiaries 60 days to submit a
requested Social Security number. We believe this a reasonable time
limit and propose to apply it to claimants as well, in 38 CFR 5.101(e).
5.102 Meeting Reexamination Requirements
In Sec. 5.102, we propose to include provisions in current Sec.
3.327, which governs the circumstances under which beneficiaries may be
required to report for reexaminations to verify the continued presence
and/or current level of a disability. In proposed Sec. 5.102, we would
restate the language used in Sec. 3.327 to clarify some terms, to
illustrate those situations that would warrant a reexamination, and to
increase readability.
At Sec. 5.102(a) we propose to replace the phrase ``material
change,'' which may be ambiguous, with the phrase ``if reexamination is
otherwise necessary to ensure that the disability is accurately
evaluated.''
[[Page 24685]]
We also propose to more clearly refer to the three types of
circumstances under which VA would request periodic future
reexaminations. Current Sec. 3.327(a) states that ``reexaminations
will be required if it is likely that a disability has improved, or if
evidence indicates there has been a material change in a disability or
that the current rating may be incorrect.'' We propose to clarify that
these examinations are needed to: verify that the beneficiary still has
the disability at issue; ascertain whether or not a disability has
improved to the point that a reduction in rating would be warranted; or
otherwise ensure that the disability is accurately evaluated. This
language is broad enough to encompass those disabilities that are
evaluated under the criteria in the Schedule for Rating Disabilities,
as well as those that are not, such as disabilities for which VA is
paying special monthly compensation or special monthly pension. This
would also include both ratings for disability compensation and
pension. The third circumstance encompasses those situations where a
disability still exists and has not improved, but reexamination is
still necessary because the rating schedule or other pertinent
regulations have changed, or there is an indication that the rating
assigned was based on inaccurate or incomplete information.
We also propose to expand the rule contained in current Sec.
3.327(a) that a beneficiary is required to report for VA
reexaminations. We propose to include a cross-reference to Sec. 5.103
in proposed Sec. 5.102(b), and also propose to state that if the
beneficiary fails to report for a scheduled VA examination, a
determination of the claim will be made based upon the other evidence
of record. This would help ensure that the reader is made aware of the
consequences of failing to report for a VA examination.
Current Sec. 3.327(b)(2) lists six circumstances when a periodic
future reexamination will not be requested in disability compensation
cases. Current Sec. 3.327(b)(2)(i) states that in service-connected
cases, no periodic future examinations will be scheduled when the
disability is static. Current Sec. 3.327(b)(2)(iii) states that in
service-connected cases, no periodic future examinations will be
scheduled where the disability from disease is permanent in character
and of such nature that there is no likelihood of improvement. We
believe that paragraphs (b)(2)(i) and (b)(2)(iii) address essentially
the same situation, that no reexamination is necessary if the
disability is ``static'' or is ``permanent'' and unlikely to improve.
Therefore, we propose to consolidate these two provisions into one
paragraph, (c)(2)(i).
We also propose to revise the provisions governing
``prestabilization ratings'' found in current paragraph (b)(1) and to
use terms from the chart in current Sec. 4.28. In order to clarify the
meaning of ``prestabilization ratings,'' we propose to refer, in Sec.
5.102(c)(3), more specifically to ratings assigned to ``a disability
that has not yet become stable'' and to ``a disability caused by a
wound or injury that has not yet completely healed.''
5.103 Failure To Report for VA Examination or Reexamination
Proposed Sec. 5.103 includes provisions of Sec. Sec. 3.330 and
3.655. Current Sec. 3.655(b) provides for two possible consequences of
a claimant's or beneficiary's failure to report for a scheduled VA
examination. If an ``original disability compensation claim'' is
pending and a claimant fails to report for an examination, VA will
decide the claim based upon the evidence of record. If, however, ``any
other original claim,'' a ``reopened claim,'' or a ``claim for
increase'' is pending and a veteran fails to report for a scheduled VA
examination, VA denies the claim. We propose to retain this distinction
in proposed paragraph (b).
In current Sec. 3.655(c)(1), when a beneficiary fails to report
for a scheduled reexamination, and, as a result, VA proposes to reduce
or discontinue benefits, VA is required to issue a ``pretermination
notice.'' The pretermination notice currently must, among other things,
advise the beneficiary of his or her ``procedural and appellate
rights.'' We believe that it is unnecessary and potentially misleading
to refer to the provision of ``appellate rights'' in a pretermination
notice, which is not, by its nature, an appealable decision. We
therefore propose to eliminate the reference to ``appellate rights.''
Additionally, we propose to change the term ``pretermination notice''
to ``notice of proposed discontinuance or reduction.'' The term
``pretermination notice'' could be confusing, as current Sec. 3.655(c)
contemplates notice of not only discontinuance of benefits, but also
notice of a proposed reduction of benefits. For example, current Sec.
3.655(c)(1) states, ``[s]uch notice shall also include the prospective
date of discontinuance or reduction, the reason therefore and a
statement of the claimant's procedural and appellate rights.'' We
believe the phrase ``notice of proposed discontinuance or reduction''
is more accurate.
Current Sec. 3.330 applies to resumption of disability ratings
following a period during which benefit payments were discontinued or
reduced because of a beneficiary's failure to report for a
reexamination. The resumption is triggered by the beneficiary's
subsequent willingness to undergo a reexamination. We consider this
material to fit logically into the substance of Sec. 3.655, and we
therefore propose to integrate Sec. 3.330 into proposed Sec.
5.103(e).
We propose not to include in part 5 paragraph (a) of current Sec.
3.655. We regard the initial clause of current paragraph (a), ``[w]hen
entitlement or continued entitlement to a benefit cannot be established
or confirmed without a current VA examination or reexamination,'' as
unnecessary. VA generally will schedule an examination or reexamination
when it appears necessary to do so in order to establish or confirm
entitlement to a benefit. However, it may be the case that, since the
scheduling of the examination or reexamination, additional evidence
associated with the claims file indicates that the claim may be granted
or the benefit continued without recourse to an examination or
reexamination. In such a case, it would be unfair to penalize the
claimant or beneficiary for failure to report for the examination or
reexamination by denying the claim or reducing or discontinuing the
benefit when there is otherwise sufficient evidence to grant the claim
or continue to provide the benefit.
In proposed paragraph (f), we propose to add language that would
emphasize that the examples of good cause described therein are not
exclusive--that other circumstances not listed may be considered as
``good cause'' provided their gravity is similar to that of the
currently listed examples of illness or hospitalization of the claimant
or beneficiary, and death of an immediate family member. We propose to
include a statement that VA will make these determinations on a case-
by-case basis.
5.104 Certifying Continuing Eligibility To Receive Benefits
We propose to amend those regulations that pertain to informing
beneficiaries of the need to submit specific information to VA to
certify continuing eligibility to receive benefits or the amount of
benefits payable. These provisions are contained in current Sec. 3.652
and are proposed as Sec. 5.104. We believe that these provisions may
be revised to more clearly inform beneficiaries of the procedures that
must be followed to certify eligibility and the types of information
that must
[[Page 24686]]
be provided upon the request of VA. We propose to revise the language
so that it would be clear to beneficiaries that they must submit, upon
request, information such as marital status, income, number of
dependents or any other information that is necessary to establish
continuing eligibility to receive benefits. We also believe that
current Sec. 3.652 could more clearly inform beneficiaries of the
consequences of failing to provide the information requested, such as
the reduction or discontinuance of benefits. We would include in Sec.
5.104 appropriate clarification.
Current Sec. 3.500(v), ``Failure to furnish evidence of continued
eligibility,'' simply refers the reader back to current Sec. 3.652
(proposed Sec. 5.104). Therefore, we will not include this paragraph
in any part 5 regulation.
Endnote Regarding Amendatory Language
We intend to ultimately remove part 3 entirely, but we are not
including amendatory language to accomplish that at this time. VA will
provide public notice before removing part 3.
Paperwork Reduction Act
Although this document contains provisions constituting a
collection of information, at 38 CFR 5.82, 5.101, and 5.104, under the
provisions of the Paperwork Reduction Act (44 U.S.C. 3501-3521), no new
or proposed revised collections of information are associated with this
proposed rule. The information collection requirements for Sec. Sec.
5.82, 5.101, and 5.104 are currently approved by the Office of
Management and Budget (OMB) and have been assigned OMB control numbers
2900-0001, 2900-0004, 2900-0005, 2900-0006, 2900-0085, 2900-0572, and
2900-0624.
Regulatory Flexibility Act
The Secretary hereby certifies that this regulatory amendment will
not have a significant economic impact on a substantial number of small
entities as they are defined in the Regulatory Flexibility Act, 5
U.S.C. 601-612. This amendment would not significantly affect any small
entities. Therefore, pursuant to 5 U.S.C. 605(b), this amendment is
exempt from the initial and final regulatory flexibility analysis
requirements of sections 603 and 604.
Executive Order 12866
This document has been reviewed by the Office of Management and
Budget under Executive Order 12866.
Unfunded Mandates
The Unfunded Mandates Reform Act of 1995 requires, at 2 U.S.C.
1532, that agencies prepare an assessment of anticipated costs and
benefits before developing any rule that may result in an expenditure
by State, local, or tribal governments, in the aggregate, or by the
private sector of $100 million or more (adjusted annually for
inflation) in any given year. This proposed rule would have no such
effect on State, local, or tribal governments, or the private sector.
Catalog of Federal Domestic Assistance Numbers
The Catalog of Federal Domestic Assistance program numbers for this
proposal are 64.100-.102, 64.104-.110, 64.115, and 64.127.
List of Subjects in 38 CFR Part 5
Administrative practice and procedure, Claims, Disability benefits,
Health care, Pensions, Veterans.
Approved: January 31, 2005.
Anthony J. Principi,
Secretary of Veterans Affairs.
For the reasons set out in the preamble, VA proposes to further
amend 38 CFR part 5 as proposed to be added at 69 FR 4832, January 30,
2004, by adding subpart C to read as follows:
PART 5--COMPENSATION, PENSION, BURIAL, AND RELATED BENEFITS
Subpart C--Adjudication Process, General
Rights of Claimants and Beneficiaries
Sec.
5.80 Right to representation.
5.81 Submission of information, evidence, or argument.
5.82 Right to a hearing.
5.83 Right to notice of decisions and proposed adverse actions.
5.84 Restoration of benefits following adverse action.
Duties of VA
5.90 [Reserved]
5.91 Medical evidence for disability claims.
5.92 Independent medical opinions.
5.93 Service records which are lost, destroyed, or otherwise
unavailable.
Responsibilities of Claimants and Beneficiaries
5.100 Time limits for claimant or beneficiary responses.
5.101 Requirement to provide Social Security numbers.
5.102 Meeting reexamination requirements.
5.103 Failure to report for VA examination or reexamination.
5.104 Certifying continuing eligibility to receive benefits.
Authority: 38 U.S.C. 501(a) and as noted in specific sections.
Subpart C--Adjudicative Process, General
Rights of Claimants and Beneficiaries
Sec. 5.80 Right to representation.
Subject to the provisions of Sec. Sec. 14.626 through 14.635 of
this chapter, a claimant or beneficiary is entitled to the
representation of his or her choice at every stage in the claims
process. When VA notifies a claimant or beneficiary under Sec. 5.83 of
a decision or a proposed reduction, discontinuance, or other adverse
action, VA will also notify him or her of the right to representation.
(Authority: 38 U.S.C. 501, 5901-5904)
Cross Reference: Section 19.25 of this chapter (concerning
notification of the right to appeal, which includes notification of the
right to representation).
Sec. 5.81 Submission of information, evidence, or argument.
(a) Submissions included in the record. VA will include in the
record of proceedings any information, evidence (whether documentary,
testimonial, or in other form), and any argument that a claimant offers
in support of a claim. VA will also include in the record of
proceedings with respect to the claim any issues a claimant raises,
either in writing or at a hearing.
(b) Who may submit information, evidence, or argument. Information,
evidence, or argument may be submitted by a claimant or beneficiary,
or, where applicable, through a guardian or fiduciary acting on his or
her behalf. Unless specifically provided otherwise in this part, a
claimant's or beneficiary's authorized representative may submit
information, evidence, or argument pursuant to any section of this part
that allows or requires submission of information, evidence or
argument.
(Authority: 38 U.S.C. 501)
Sec. 5.82 Right to a hearing.
(a) General--(1) The one-hearing rule. Upon request, a claimant is
entitled to one hearing before the agency of original jurisdiction at
any time on any issue or issues involved in a pending claim before the
agency of original jurisdiction. When VA notifies a claimant or
beneficiary of a decision or a proposed reduction, discontinuance, or
other adverse action under Sec. 5.83, VA will also notify the claimant
or beneficiary of the right to a hearing. A claimant is also entitled
to a hearing before the Board of Veterans' Appeals. See Sec. Sec.
20.700 and 20.1304 of this
[[Page 24687]]
chapter. Except as provided in paragraph (a)(2) of this section, a
claimant who received a hearing before the claim was reviewed by the
Board of Veterans' Appeals (Board) is not entitled to an additional
hearing after that claim is remanded by the Board to the agency of
original jurisdiction.
(2) Exception to the one-hearing rule. A claimant will be provided
one additional hearing on any issue involved in a claim when the
claimant asserts that: He or she has discovered a new witness or new
evidence to substantiate the claim; he or she can present that witness
or evidence only at an oral hearing; and the witness or evidence could
not have been presented at the original hearing.
(b) Purpose of hearings; requirement for oath or affirmation. The
purpose of a hearing under this section is to provide the claimant with
an opportunity to introduce into the record of proceedings, in person,
any available evidence, arguments, or contentions which he or she
considers important to the case. Testimony at a hearing will be under
oath or affirmation.
(c) Where VA will conduct hearings. The hearing will be held in the
VA office that has jurisdiction over the claim or in the VA office with
adjudicative functions nearest the claimant's home. Subject to
available resources and solely at the option of VA, the hearing may be
held at any other VA facility or Federal building at which suitable
hearing facilities are available.
(d) VA responsibilities in conjunction with hearings. (1) VA will
provide advance notice to a claimant of the time and place of the
hearing. If the hearing arises in the context of a proposed reduction,
discontinuance, other adverse action or an appeal, a VA employee or
employees having decision-making authority and who did not previously
participate in the case will conduct the hearing. The employee or
employees will establish a record of the hearing and will issue a
decision after the hearing.
(2) The VA employee or employees conducting the hearing will
explain fully the issues and suggest the submission of evidence the
claimant may have overlooked that would tend to prove the claim. To
assure clarity and completeness of the hearing record, questions
directed to the claimant and to witnesses will be framed to explore
fully the basis for entitlement rather than with an intent to refute
evidence or to discredit testimony. The employee, or employees,
conducting the hearing will ensure that all testimony is given under
oath or affirmation.
(3) If a hearing is conducted, VA will make a decision based upon
evidence and testimony presented during the hearing in addition to all
other evidence of record.
(e) Claimant rights and responsibilities in conjunction with
hearings. (1) The claimant is entitled to have witnesses testify. The
claimant and witnesses must appear at the hearing, either in person or
by videoconferencing. Normally, VA will not schedule a hearing for the
sole purpose of receiving argument from a representative.
(2) All expenses incurred by the claimant in conjunction with the
hearing are the responsibility of the claimant.
(3) If a claimant fails without good cause to report for a
scheduled hearing, VA will decide the claim based upon the evidence of
record. Examples of good cause include, but are not limited to, illness
or hospitalization of the claimant, or death of an immediate family
member.
(f) Requirements for predetermination hearings. Except as otherwise
provided in Sec. 5.83(c), VA will provide notice of the right to a
hearing before VA reduces, discontinues, or otherwise adversely affects
benefits. A predetermination hearing will not be provided unless VA
receives a request for one no more than 30 days after the date of the
notice of the proposed action.
(1) If the beneficiary does not timely request a predetermination
hearing, or fails without good cause to report for a scheduled
predetermination hearing, VA will make a determination on the proposed
action based on the evidence of record. Examples of good cause include,
but are not limited to, illness or hospitalization of the beneficiary,
or death of an immediate family member.
(2) If VA receives a request for a predetermination hearing no more
than 30 days after the date of the notice of the proposed action, VA
will send the beneficiary written notice of the time and place for the
hearing.
(3) VA will send the notice of the time and place for the
predetermination hearing at least 10 days before the scheduled hearing
date. This 10-day advance notice requirement may be waived by the
beneficiary or representative.
(4) If a predetermination hearing is timely requested, VA will not
make a final determination reducing, discontinuing, or otherwise
adversely affecting benefits before the scheduled date of the hearing.
(5) If a predetermination hearing is conducted, VA will make the
determination based upon evidence and testimony presented during the
hearing in addition to all other evidence of record.
Cross Reference: See Sec. 3.105 of this chapter for the procedures
VA follows when revising decisions and the effective date of these
decisions.
(Authority: 38 U.S.C. 501(a)(1))
Sec. 5.83 Right to notice of decisions and proposed adverse actions.
(a) General. VA will send to a claimant or beneficiary written
notice of any decision, or proposed adverse action, that affects the
payment of benefits or the granting of relief to that claimant or
beneficiary. The notice will explain:
(1) If a claim is not fully granted, the reason for the decision
and a summary of the evidence considered;
(2) The effective date of any adjustment of benefits;
(3) The right to a hearing on any issue involved in the claim;
(4) The right to representation; and
(5) The right to appeal, including how and when to exercise this
right to appeal. (Appellate procedures are found in part 20 of this
chapter.)
(b) VA will send an advance notice of adverse action. Except as
otherwise provided in paragraph (c) of this section, VA will notify a
beneficiary at least 60 days before it reduces, discontinues, or
otherwise adversely affects the beneficiary's receipt of VA benefits.
The notice will inform the beneficiary of the 30-day time limit to
request a predetermination hearing under Sec. 5.82(f). VA will allow
the beneficiary 60 days after the date of the notice to submit evidence
and/or argument to show why the adverse action should not be taken.
Cross Reference: See Sec. 3.105 of this chapter for procedures
applicable to the type of action VA is taking.
(c) When VA will send a contemporaneous notice of reduction,
discontinuance, or other adverse action. VA will send a written notice
to a beneficiary at the same time it reduces, discontinues, or
otherwise takes an adverse action under any of the circumstances
described in paragraphs (c)(1) through (c)(6) of this section.
(1)(i) The adverse action results solely from information or
statements, provided orally or in writing to VA by the beneficiary or
the fiduciary, as to income, net worth, dependency, or marital status;
(ii) The information or statements are factual and unambiguous; and
(iii) The beneficiary or fiduciary has knowledge or notice that
such information or statements may be used to calculate benefit
amounts. See Sec. 3.217
[[Page 24688]]
of this chapter for procedures governing the submission by a
beneficiary or his or her fiduciary of oral or written information or
statements.
(2) The adverse action results from the beneficiary's or
fiduciary's failure to return an eligibility verification report as
required by Sec. 3.277 of this chapter.
(3) VA receives credible evidence indicating that a beneficiary has
died. However, VA is not required to send a notice of discontinuance of
benefits (contemporaneous or otherwise) if VA receives:
(i) A death certificate;
(ii) A terminal hospital report verifying the death of a
beneficiary;
(iii) A claim for VA burial benefits;
(iv) An ``Application for United States Flag for Burial Purposes'';
or
(v) A ``Record of Interment'' from the National Cemetery
Administration.
(4) The adverse action results from a beneficiary's written and
signed statement renouncing VA benefits (see Sec. 3.106 of this
chapter on renouncement).
(5) The adverse action results from a veteran's written and signed
statement that he or she has returned to active service. The statement
must include each of the following:
(i) The branch of service;
(ii) The date of reentry into service;
(iii) The veteran's acknowledgement that receipt of active military
service pay precludes receipt at the same time of VA disability
compensation or pension. See Sec. 3.654 of this chapter regarding
active service pay.
(6) The adverse action results from a garnishment order issued
under 42 U.S.C. 659(a), allowing the U.S. to consent to garnishment or
withholding of pay for members of the Armed Forces and, in certain
circumstances, disability compensation, to enforce child support and
alimony obligations. See 42 U.S.C. 659(h)(1)(A)(ii)(V) for the limited
circumstance of garnishing certain disability pay.
(Authority: 38 U.S.C. 501, 5104)
Sec. 5.84 Restoration of benefits following adverse action.
(a) If VA reduces or discontinues benefits, or takes other action
adverse to a beneficiary, based upon information or an oral statement
provided by the beneficiary or fiduciary, VA will retroactively restore
such benefits if the beneficiary or fiduciary asserts no more than 30
days after the date of the VA notice of adverse action either of the
following:
(1) The information or statement is inaccurate.
(2) The information or statement was not provided by the
beneficiary or his or her fiduciary.
(b) Restoration of benefits under this section does not preclude VA
from later taking action that adversely affects the beneficiary's
receipt of benefits based on the information or oral statements
referred to in paragraph (a) of this section.
(Authority: 38 U.S.C. 501, 5104)
Duties of VA
Sec. 5.90 [Reserved]
Sec. 5.91 Medical evidence for disability claims.
(a) Medical evidence rendering VA examination unnecessary. If they
are adequate for purposes of adjudicating a claim, VA may rely on
hospital or examination reports from a government or private facility,
or reports from private physicians. When such reports are of record, VA
does not need to provide a VA examination or period of hospital
observation.
(b) Rating injuries and conditions obviously incurred in service.
VA may assign an evaluation for combat injuries or other conditions
that obviously were incurred in service as soon as sufficient evidence
to rate the severity of the condition is available, even if VA has not
yet received the claimant's enlistment examination and other service
records.
(Authority: 38 U.S.C. 1154, 5103A, 5125)
Sec. 5.92 Independent medical opinions.
(a) General. When warranted by the medical complexity or
controversy involved in a pending claim, an advisory medical opinion
may be obtained from one or more medical experts who are not employees
of VA. Opinions shall be obtained from recognized medical schools,
universities, clinics or medical institutions with which arrangements
for such opinions have been made, and an appropriate official of the
institution shall select the individual expert(s) to render an opinion.
(b) Requests. A request for an independent medical opinion in
conjunction with a claim pending at the regional office level may be
initiated by the office having jurisdiction over the claim, by the
claimant, or by his or her representative. The request must be
submitted in writing and must set forth in detail the reasons why the
opinion is necessary. All such requests shall be submitted through the
Veterans Service Center Manager of the office having jurisdiction over
the claim, and those requests which in the judgment of the Veterans
Service Center Manager merit consideration shall be referred to the
Compensation and Pension Service for approval.
(c) Approval. Approval shall be granted only upon a determination
by the Compensation and Pension Service that the issue under
consideration poses a medical problem of such obscurity or complexity,
or has generated such controversy in the medical community at large, as
to justify solicitation of an independent medical opinion. When
approval has been granted, the Compensation and Pension Service shall
obtain the opinion. A determination that an independent medical opinion
is not warranted may be contested only as part of an appeal on the
merits of the decision rendered on the primary issue by the agency of
original jurisdiction.
(d) Notification. The Compensation and Pension Service shall notify
the claimant when the request for an independent medical opinion has
been approved with regard to his or her claim and shall furnish the
claimant with a copy of the opinion when it is received. If, in the
judgment of the Secretary, disclosure of the independent medical
opinion would be harmful to the physical or mental health of the
claimant, disclosure shall be subject to the special procedures set
forth in Sec. 1.577 of this chapter.
(Authority: 5 U.S.C. 552a(f)(3); 38 U.S.C. 5109, 5701(b)(1))
Sec. 5.93 Service records which are lost, destroyed, or otherwise
unavailable.
(a) Records in the custody of the Department of Defense. When
records that are potentially relevant to a claim for benefits and that
were in the custody of the Department of Defense have been lost or
destroyed, or otherwise have become unavailable, VA will not deny the
claim without attempting to obtain potentially relevant alternative
evidence. (Examples of sources of alternative evidence are listed in
paragraph (c) of this section).
(b) Destruction due to fire at the National Personnel Records
Center. On July 12, 1973, there was a fire at the National Archives and
Records Administration's National Personnel Records Center (NPRC). When
the NPRC reports that it does not have the claimant's records because
they were destroyed by this fire, VA will not deny the claim without
attempting to obtain potentially relevant alternative evidence.
(Examples of sources of alternative evidence are listed in paragraph
(c) of this section). The following are the two main groups of records
destroyed by the NPRC fire:
(1) Army. Records for certain Army veterans who served between
November
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1, 1912, and January 1, 1960. Records of Army retirees who were alive
on July 12, 1973, were not destroyed by the fire because they were
stored at a different location.
(2) Air Force. Records for certain Air Force veterans with surnames
``Hubbard'' through Z who were discharged between September 25, 1947
and January 1, 1964, and had no retired or Reserve status.
(c) Alternative evidence development. Depending on the facts of the
case, sources of potentially relevant alternative evidence for records
described in paragraphs (a) or (b) of this section include the
following:
(1) A claimant's personal copies of discharge papers, service
medical records, or other evidence of military service;
(2) State Adjutant Generals' offices or State historical
commissions;
(3) The Office of Personnel Management (if the veteran was employed
by a Federal or State agency), a private employer, or the Railroad
Retirement Board (if the veteran was employed by a railroad);
(4) The Social Security Administration;
(5) VA or military files or records relating to an earlier claim
filed with VA;
(6) Service medical personnel or people who knew the veteran during
his or her service;
(7) State or local accident and police reports from the time and
place the veteran served;
(8) Employment physical examinations or insurance examinations;
(9) Hospitals, clinics, or private physicians who treated a
veteran, especially soon after separation, or pharmacies that filled
prescriptions;
(10) Letters written during service or photographs taken during
service.
(Authority: 38 U.S.C. 501)
Responsibilities of Claimants and Beneficiaries
Sec. 5.100 Time limits for claimant or beneficiary responses.
(a) In computing the time limit for any action required of a
claimant or beneficiary, including the filing of claims or evidence
requested by VA, the first day of the specified period will be excluded
and the last day included. This rule is applicable in cases in which
the time limit expires on a workday. Where the time limit would expire
on a Saturday, Sunday, or holiday, the next succeeding workday will be
included in the computation.
(b) The first day of the specified period referred to in paragraph
(a) of this section shall be the date of mailing of notification to the
claimant or beneficiary of the action required and the time limit
therefor. The date of the letter of notification shall be considered
the date of mailing for purposes of computing time limits. As to
appeals, see Sec. Sec. 20.302 and 20.305 of this chapter.
(Authority: 38 U.S.C. 501)
Sec. 5.101 Requirement to provide Social Security numbers.
(a) General requirement to provide Social Security number. If
requested to do so by VA, each claimant for, or beneficiary of,
compensation, pension, dependency and indemnity compensation, or a
monetary benefit under 38 U.S.C. chapter 18 must provide to VA his or
her Social Security number, as well as the Social Security number of
any dependent or other person on whose behalf, or based upon whom,
benefits are sought or received.
(b) Individuals receiving VA benefits. If 60 days after VA requests
a Social Security number, the beneficiary fails either to provide the
requested Social Security number or to show that no Social Security
number was assigned, VA will take the following action:
(1) If the beneficiary fails to provide his or her own Social
Security number, VA will discontinue benefits.
(2) If the beneficiary fails to provide the Social Security number
for any dependent, VA will reduce the benefits payable by the amount
payable to or on behalf of such dependent; however, VA may still
consider that dependent's income for purposes of determining
entitlement to income-based benefits.
(c) Effective date of reduction or discontinuance. VA's
discontinuance or reduction of benefits under paragraph (b) of this
section will be effective on the first day of the first month beginning
more than 60 days after the date VA requested the Social Security
number.
(d) Effective date of resumed payments. If a claimant or
beneficiary provides VA with the requested Social Security number, VA
will resume payment of benefits at the prior rate, effective on the
date VA received the Social Security number, provided that payment of
benefits at that rate is otherwise in order.
(e) Claimant's application for VA benefits. If 60 days after VA
requests a Social Security number, the claimant fails either to provide
the requested Social Security number or to show that no Social Security
number was assigned, VA will deny the claim. If a claimant fails to
provide to VA the Social Security number of a dependent, then VA will
deny benefits that are based on the existence of the dependent.
(f) When a Social Security number is not required. A claimant or
beneficiary is not required to provide a Social Security number for any
person to whom a Social Security number has not been assigned.
(Authority: 38 U.S.C. 501, 1822, 5101(c))
Sec. 5.102 Meeting reexamination requirements.
(a) General. VA may reexamine a beneficiary, or require a period or
periods of hospital observation, at any time to ensure that the
beneficiary's disability rating is accurate. For example, VA may
reexamine a beneficiary if evidence indicates that the disability for
which VA is making payments may no longer exist or may have improved to
such a degree that a reduced rating might be appropriate; or if
reexamination is otherwise necessary to ensure that the disability is
accurately evaluated. Paragraphs (c) and (d) of this section provide
general guidelines for scheduling reexaminations, but do not limit VA's
authority to schedule reexaminations or periods of hospital observation
at any time in order to ensure that a disability is accurately rated.
(b) Beneficiaries are required to report for scheduled
reexaminations. A beneficiary must report for a VA-scheduled
reexamination. If he or she does not report, VA will take the steps
described in Sec. 5.103 of this part, ``Failure to report for VA
examination or reexamination.''
(c) Scheduling reexaminations in disability compensation cases. The
following rules apply to disability compensation cases:
(1) General rule. As a general rule, if periodic future
reexaminations are warranted, VA may schedule such reexaminations to
occur between two and five years after the date on which VA last
examined the beneficiary, unless some other law or regulation specifies
another time period.
(2) When VA will not schedule periodic reexaminations. VA will not
schedule periodic future reexaminations under the following
circumstances:
(i) The disability is static;
(ii) Medical examinations or hospital reports show that the
symptoms and findings of the disability have persisted without
significant improvement for at least five years;
(iii) The beneficiary has attained the age of 55, except in unusual
circumstances;
(iv) The disability in question is rated at a prescribed mandatory
minimum level under the Schedule for Rating Disabilities in part 4 of
this chapter; or
[[Page 24690]]
(v) The combined disability rating would not decrease even if a
reexamination for the specific disability at issue would result in a
decreased rating for that disability; however, if a reexamination
potentially would reduce an award of special monthly compensation,
reexamination may be warranted even if the combined disability rating
would not be reduced.
Cross Reference: See Sec. 4.25 of this chapter for information on
``combined ratings'' and how they are calculated.
(3) Discharge from service with unstabilized disability. If a
person is discharged from military service with a disability that has
not yet become stable or with a disability caused by a wound or injury
that has not yet completely healed, VA may, pursuant to Sec. 4.28 of
this chapter, temporarily assign a prestabilization disability rating
of either 100 percent or 50 percent to the disability. If VA assigns a
prestabilization rating under Sec. 4.28 of this chapter, VA will
schedule a reexamination to occur 6 to 12 months after the date the
person separates from service, to determine the appropriate schedular
evaluation under the Schedule for Rating Disabilities in part 4 of this
chapter.
(d) Pension cases. The following rules apply to pension cases:
(1) If the beneficiary has attained the age of 55, VA will schedule
a reexamination only in unusual circumstances.
(2) VA generally will not schedule a reexamination if it is obvious
that the disability is unlikely to improve over the long term or the
medical history has confirmed the presence of a permanent and total
nonservice-connected disability. In other cases, VA will reexamine only
in unusual circumstances.
(Authority: 38 U.S.C. 501)
Sec. 5.103 Failure to report for VA examination or reexamination.
(a) General. VA will schedule a VA examination when needed to
establish entitlement to a benefit or an increased disability
evaluation. VA will schedule a VA reexamination when needed to confirm
continued entitlement to a benefit or continued entitlement to a
particular disability evaluation. See Sec. 3.159(c)(4) of this
chapter, ``Providing medical examinations or obtaining medical
opinions.'' If a claimant or beneficiary, with good cause, fails to
report for a VA examination or reexamination, VA will reschedule the
examination or reexamination. Examples of good cause are listed in
paragraph (f) of this section.
(b) Failure without good cause to report for a scheduled
examination. If a claimant or beneficiary, without good cause, fails to
report for a VA examination, VA will decide the claim as follows:
(1) For an original disability compensation claim, VA will make a
decision based on the evidence in the claims file.
(2) For any other original claim, a new claim, a reopened claim, or
a claim for increase, VA will deny the claim.
(c) Failure without good cause to report for a scheduled
reexamination--(1) Continuing entitlement to a benefit. If a
beneficiary fails, without good cause, to report for a VA reexamination
and continuing entitlement to the benefit cannot be confirmed without a
VA reexamination, VA will propose to discontinue the benefit.
(2) Continuing entitlement to a particular evaluation. If a
beneficiary fails, without good cause, to report for a VA reexamination
and continuing entitlement to a particular disability evaluation for
one or more of the beneficiary's disabilities cannot be confirmed
without a VA reexamination, VA will propose to reduce the evaluation
for the disability or disabilities at issue to one of the following, as
applicable:
(i) The highest disability evaluation assigned to that disability
that is protected under Sec. 3.951(b) of this chapter.
(ii) The evaluation specified as the minimum evaluation permitted
for that disability under the Schedule for Rating Disabilities in part
4 of this chapter.
(iii) Zero percent if there is neither an evaluation protected
under the provisions of Sec. 3.951 of this chapter nor a minimum
evaluation specified in the Schedule for Rating Disabilities in part 4
of this chapter.
Cross Reference: See Sec. 3.344 of this chapter, ``Stabilization
of disability evaluations.''
(d) Advance notice of proposed discontinuance or reduction--(1)
Notice. If VA proposes to discontinue or reduce payment under paragraph
(b) or (c) of this section, VA will notify the beneficiary by letter of
its intended action. The letter must include the date on which the
proposed discontinuance or reduction will be effective, and the
beneficiary's procedural rights. See Sec. Sec. 5.80 through 5.83.
(2) Time period during which the beneficiary must respond. No more
than 60 days after the date of VA's notice, VA must receive either
notification that the beneficiary will report for reexamination or
evidence showing that VA should not discontinue or reduce payments. If
VA receives notification that the beneficiary will report for
reexamination, it will schedule a reexamination. If VA receives
evidence showing that VA should not discontinue or reduce payments, it
will not do so.
(3) No response or inadequate response. If VA does not receive the
notification or evidence required by paragraph (d)(2) of this section,
VA will take the action described in the letter referred to in
paragraph (d)(1) of this section. The action will be effective on the
date identified in the letter or the day after the date of the last
payment made by VA to the beneficiary, whichever is later.
(4) Hearing. The beneficiary may request a hearing to challenge
VA's proposed adverse action as provided in Sec. 5.82(f). If, within
30 days after the date on the notice letter, VA does not receive the
beneficiary's request for a hearing, then VA will discontinue or reduce
payments effective on the date the notice letter specified or the date
of VA's last payment, whichever is later, unless evidence is presented
which warrants a different determination.
(5) Rescheduled reexamination. The beneficiary may ask VA to
schedule another date for reexamination, either instead of or in
addition to asking for a hearing. If VA receives the request to
reschedule before the payments are discontinued or reduced, VA will
halt its action to discontinue or reduce payments and will schedule a
new reexamination date. VA will notify the beneficiary that if he or
she fails to report for the rescheduled reexamination, then VA will
immediately discontinue or reduce the payments as of the date of the
last payment.
(e) Resumption of payments. If VA discontinues or reduces payments
for failure to report for a reexamination, VA will issue a new decision
after the beneficiary reports for a VA reexamination. VA will notify
the beneficiary of any period of time for which it could not pay
benefits at the previous level and the reason(s) why, and identify the
period of time for which it has resumed paying such benefits.
(f) Examples of good cause. Examples of good cause for failure to
report for a VA examination or reexamination include a claimant's or
beneficiary's illness or hospitalization, and the death of an immediate
family member. VA will determine on a case-by-case basis whether good
cause is established.
(Authority: 38 U.S.C. 501)
[[Page 24691]]
Sec. 5.104 Certifying continuing eligibility to receive benefits.
Except as otherwise provided, the following rules govern the
certification of continuing eligibility.
(a) Responsibility to certify continuing eligibility upon request.
Each beneficiary, if requested to do so by VA, must certify whether the
factual basis that established entitlement to benefits still exists.
The requested certification may concern marital status, income, number
of dependents, or any other fact affecting entitlement to a benefit or
the amount of benefits payable. VA must receive the beneficiary's
certification, including any requested information, not later than 60
days after the date of VA's request.
(b) If VA does not receive the certification within 60 days. If VA
does not receive the requested certification within 60 days after the
date of VA's request, VA will assume that the fact(s) about which the
certification was requested ceased to exist as of the end of the month
in which VA received the last evidence of record establishing or
confirming the fact(s).
(c) Additional 60 days provided. If VA does not receive the
requested certification within 60 days after the date of VA's request,
VA will notify, in writing, the beneficiary that VA proposes to reduce
or discontinue the benefits and will allow the beneficiary 60 days in
which to provide VA with the required certification. The notice must
include the effective date of the proposed reduction or discontinuance.
If the beneficiary does not provide the required certification within
the additional 60 days, VA will reduce or discontinue the benefit,
according to the appropriate effective date provisions of Sec. Sec.
3.500 through 3.504 of this chapter in effect on the date the
eligibility factor(s) is considered to have ceased to exist.
(d) VA action when the evidence is received. When the certification
requested is provided, VA will adjust the benefits, if necessary,
according to the information provided and the other evidence in the
claims file.
(Authority: 38 U.S.C. 501)
[FR Doc. 05-9230 Filed 5-9-05; 8:45 am]
BILLING CODE 8320-01-P