[Federal Register Volume 73, Number 133 (Thursday, July 10, 2008)]
[Proposed Rules]
[Pages 39632-39639]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: E8-15730]


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DEPARTMENT OF JUSTICE

Office of Justice Programs

28 CFR Part 32

[Docket No. OJP (BJA) 1478]
RIN 1121-AA75


Public Safety Officers' Benefits Program

AGENCY: Office of Justice Programs, Justice.

ACTION: Notice of proposed rulemaking with request for comments.

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SUMMARY: The Office of Justice Programs of the U.S. Department of 
Justice proposes this rule to amend the regulation that implements the 
Public Safety Officers' Benefits Act and associated or related 
statutes. Generally speaking, these laws provide financial support to 
certain public safety officers, or their survivors and families, when 
such officers die, or become permanently and totally disabled, as a 
result of line-of-duty injuries, or when they die of heart attacks or 
strokes sustained within statutorily-specified timeframes of engaging 
or participating in certain line-of-duty activity. The proposed rule 
would amend the implementing regulation to reflect internal agency 
policy and practice, recent statutory enactments and court decisions, 
and to make certain technical changes, in order to keep the regulations 
comprehensive and current.

DATES: Comments must be received by no later than 5 p.m., E.S.T., on 
September 8, 2008.

ADDRESSES: Please address all comments regarding this proposed rule, by 
U.S. mail, to: Hope Janke, Counsel to the Director, Bureau of Justice 
Assistance, Office of Justice Programs, 810 7th Street, NW., 
Washington, DC 20531; by telefacsimile transmission, to: Hope Janke, 
Counsel to the Director, at (202) 305-1367. To ensure proper handling, 
please reference OJP Docket No. 1478 on your correspondence. You may 
view an electronic version of this proposed rule at http://www.regulations.gov, and you may also comment by using the http://www.regulations.gov form for this regulation. When submitting comments 
electronically, you must include OJP Docket No. 1478 in the subject 
box.

FOR FURTHER INFORMATION CONTACT: Hope Janke, Counsel to the Director, 
Bureau of Justice Assistance, at (202) 514-6278, or toll-free at 1 
(888) 744-6513.

SUPPLEMENTARY INFORMATION:

I. Posting of Public Comments

    Please note that all comments received are considered part of the 
public record and made available for public inspection online at http://www.regulations.gov. Such information includes personal identifying 
information (such as your name, address, etc.) voluntarily submitted by 
the commenter.
    If you wish to submit personal identifying information (such as 
your name, address, etc.) as part of your comment, but do not wish it 
to be posted online, you must include the phrase ``Personal Identifying 
Information'' in the first paragraph of your comment. You must also 
locate all the personal identifying information you do not want posted 
online in the first paragraph of your comment and identify what 
information you want redacted.
    If you wish to submit confidential business information as part of 
your comment but do not wish it to be posted online, you must include 
the phrase ``Confidential Business Information'' in the first paragraph 
of your comment. You must also prominently identify confidential 
business information to be redacted within the comment. If a comment 
has so much confidential business information that it cannot be 
effectively redacted, all or part of that

[[Page 39633]]

comment may not be posted on http://www.regulations.gov.
    Personal identifying information identified and located as set 
forth above will be placed in the agency's public docket file, but not 
posted online. Confidential business information identified and located 
as set forth above will not be placed in the public docket file. If you 
wish to inspect the agency's public docket file in person by 
appointment, please see the FOR FURTHER INFORMATION CONTACT paragraph.

II. Background

    The Public Safety Officers' Benefits (PSOB) Program (established 
pursuant not only the Public Safety Officers' Benefits Act of 1976 
proper, but also to certain associated or related statutes, enacted in 
2001) is administered by the Bureau of Justice Assistance (BJA) of the 
Office of Justice Programs, U.S. Department of Justice. The PSOB 
Program provides a one-time financial payment to the statutorily-
eligible survivors of public safety officers who die as the direct and 
proximate result of (actual or presumed) traumatic injuries sustained 
in the line of duty, as well as educational assistance for certain of 
those survivors. Alternatively, the PSOB Program provides a one-time 
financial payment to public safety officers themselves who are 
permanently and totally disabled as the direct result of catastrophic 
injuries sustained in the line of duty, as well as educational 
assistance for their spouses and certain of their children. BJA is 
prepared to pay, as expeditiously as possible, every eligible claim 
relating to an officer, according to the requirements of the law.
    Pursuant to 42 U.S.C. 3796c(a), 3796(a) & (b), 3796d-3(a) & (b), 
and 3782(a) (each of which expressly authorizes the issuance of 
regulations), on August 10, 2006, BJA promulgated a final rule that 
comprehensively revised the implementing regulatory structure for the 
program, a revision largely precipitated by the Hometown Heroes 
Survivors Benefits Act (HHSBA) of 2003, Public Law 108-182, discussed 
at greater length below. Since that final rule went into effect on 
September 11, 2006, one statutory provision (section 6 (div. B, tit. 
II, Public Safety Officers Benefits heading proviso), Public Law 110-
161, 121 Stat 1912) directly affecting the program has been signed into 
law (December 26, 2007); additionally, the U.S. Court of Appeals for 
the Federal Circuit has issued four opinions to date applying the PSOB 
program statute (Hawkins v. United States, 469 F.3d 993 (2006); 
Cassella v. United States, 469 F.3d 1376 (2006); Amber-Messick v. 
United States, 483 F.3d 1316 (2007), cert. denied, ---- U.S. ----, 128 
S.Ct. 648 (2007); Groff v. United States, 493 F.3d 1343 (2007), cert. 
denied, ---- U.S. ----, 128 S.Ct. 1219 (2008)), and four opinions 
relating to the program have been issued by the Court of Federal Claims 
(Hillensbeck v. United States, 74 Fed. Cl. 477 (2006); White ex rel. 
Roberts v. United States, 74 Fed. Cl. 769 (2006) (appeal pending in the 
Federal Circuit); Dawson v. United States, 75 Fed. Cl. 53 (2007); Winuk 
v. United States, 77 Fed. Cl. 207 (2007)).
    As an overarching matter, the main impetus for the present proposed 
rule is the desire to keep the PSOB regulation as useful and reflective 
of program practice as possible. The PSOB rule (prior to the 2006 
overhaul) had largely become disconnected from the reality of how the 
program was actually being implemented, resulting in a regulation which 
was, generously, not very useful. The 2006 comprehensive revision of 
the PSOB rule sought to address this. However, the sheer scope of any 
comprehensive revision to a program's implementing regulation make it 
all-but inevitable that at least some changes (occasioned by the 
discovery--in the back-and-forth of actually working under the new 
regulation--of previously unnoticed flaws, gaps, or ambiguities) will 
be called for, after sufficient time for reflection and discernment. In 
the case of the 2006 revisions to the PSOB program regulation, this 
general rule applies with even more force, as a result of the novel 
incorporation therein of the conceptually- and factually-different 
bases for coverage established by the HHSBA.
    The implementation of the presumption created by the HHSBA-BJA has 
now processed nearly 200 cases since September 11, 2006, when the 
implementing regulations went into effect--has revealed several 
substantive and procedural shortcomings in the current rule that will 
be fixed in this proposed rule. (For example, the current definition of 
heart attack, while commonly accepted, is too narrow to capture some 
types of sudden cardiac-related deaths suffered by public safety 
officers. In addition, the PSOB Office's approach to the term 
``routine'' has changed and it would be helpful to have the regulation 
reflect this.) Over the last year and a half, from the experience 
gleaned from processing, reviewing, and determining these cases, and 
from the myriad public and private comments it has received (both in 
the context of specific claims, and more broadly), BJA's understanding 
of the contours of the HHSBA (and thus its interpretations of 
provisions of that statute, and the practical rules it has developed 
for working under it) has matured.
    Concrete (but by no means exhaustive) indicators of this maturation 
are the two policy memoranda issued by the Director of the BJA on 
October 2, 2007, relating to ``Nonroutine stressful or strenuous 
physical activity,'' and to ``Competent Medical Evidence to the 
Contrary,'' respectively, which established certain practical internal 
guidelines for the processing and determination of particular issues 
arising in claims under the HHSBA. This proposed rule would incorporate 
in the body of the regulation those current agency practices and rules, 
as appropriate for incorporation into a regulation of this kind (see, 
e.g., the proposed new definition of ``Routine'' (from paragraphs 1 & 2 
of the ``Nonroutine'' policy memorandum); proposed new Sec.  32.5(i) 
(from paragraph 2 of the ``Nonroutine policy memorandum); proposed new 
Sec.  32.14(c) (from paragraphs 1 & 2 of the ``Competent Medical 
Evidence'' policy memorandum); and the proposed use of the term 
``Extrinsic circumstances'' (to underscore the notion--which informs 
paragraph 2 of the ``Competent Medical Evidence'' policy memorandum--
that the mere presence of cardio-vascular disease/risk factors is not 
dispositive in analysis of what may be ``competent medical evidence to 
the contrary'' under the HHSBA)). In the case of the two October 2, 
2007 policy memoranda--which remain in full force under this rule--the 
intention is to codify agency practice under the memoranda. Changes in 
terminology or phrasing should not be construed to carry any practical 
significance. And the fact that not all provisions of these two policy 
memoranda are incorporated in the rule's text (primarily because such 
provisions are not appropriate as regulations (e.g., those involving 
purely internal administrative guidance)) should not be understood to 
reflect any policy change.
    For example, one of the guidance letters notes that a response to 
an emergency call ``shall presumptively be treated as non-routine.'' 
This proposed rule would treat such a response as ``prima facie 
evidence'' that the action was non-routine. The sole purpose for the 
change from a ``presumption'' to ``prima facie evidence'' is to conform 
with terminology used in the regulations; there will be no change in 
practice from the standard reflected in the guidance. As another 
example, the guidance provides that the determination of an activity's 
``routineness'' should be informed less

[[Page 39634]]

by the frequency with which it may be performed than by its stressful 
or strenuous character. This concept is reflected in the proposed 
regulation, with language indicating that the frequency with which an 
activity is performed shall not be the deciding factor in determining 
whether an activity is ``routine.'' What is not reflected in the 
proposed regulation is the guidance's follow-up observation that 
although ``domestic disturbance'' calls may occur with some frequency 
in the law-enforcement context, typically they occasion considerable 
stress, given the many and serious unknowns associated with 
encountering often highly-emotionally charged (and often violent) 
individuals, on their own territory, and under circumstances where the 
mere presence of law-enforcement officers well may be perceived as 
intrusive and insulting. Omission of this example from the regulation 
should not be construed to reflect a change in the Department's 
application of the term ``non-routine''; the sole reason for not 
including this example in the regulation is that it seemed more 
suitable for a guidance document than for a formal regulation.
    The Department invites comment on whether the proposed rule 
successfully codifies the policies enunciated in the guidance memoranda 
issued on October 2, 2007.
    In sum, this rule now is being proposed--(1) to conform the 
regulation to the statutory change (which, among other things, confers 
exclusive jurisdiction over judicial appeals (and ``related matters'') 
on the Court of Appeals for the Federal Circuit, removing it from the 
Court of Federal Claims); (2) to incorporate (so as to increase 
programmatic transparency) into the body of the regulation certain 
statutory and regulatory interpretations (many relating to the HHSBA; 
e.g., relating to official training programs) that currently inform 
BJA's claim determinations under the program, in keeping with the 
holdings of the Federal Circuit in Amber-Messick and Groff that such 
interpretations already have ``the force of law''; and (3) to make 
certain refining, clarifying, conforming, or technical changes to the 
regulation so as to--(a) correct language that would or might have had 
the unintended effect of making the regulation more restrictive than 
the statute, (b) make the regulation more clearly consonant with the 
four Federal Circuit holdings listed above and the Federal Claims 
holding in Dawson, (c) remove ambiguities in the regulation, (d) 
conform the rules applicable to death-benefit claims where the HHSBA 
presumption does not apply, and the rules applicable to those where it 
does, more closely together (and thus counter any suggestion that 
claims under the HHSBA really are not ``regular'' PSOB death-benefit 
claims), (e) eliminate language in the regulation that merely is 
repetitive of statutory provisions, (f) counter unsatisfactory Court of 
Federal Claims constructions of the program statutes and implementing 
regulations, and (g) enhance programmatic and administrative 
efficiency.
    Although many of the changes proposed in the rule are important 
(mainly for reasons of programmatic transparency and efficiency of 
claims processing), very few actually are substantive in character; 
e.g., very few of the proposed provisions would alter the determination 
of a claim. The proposed substantive changes to the regulation--whose 
general tendency would be to make it somewhat easier for affected 
claimants to establish their claims--are the following:
     Definition of Authorized commuting in Sec.  32.3: The 
proposed rule would add two circumstances (not currently encompassed) 
to the bases for line-of-duty coverage: Specifically, travel in 
response to a specific request by the employer to perform public safety 
activity would be treated the same as travel in response to a fire-, 
rescue-, or police emergency currently is; and travel between work 
sites would be treated the same as travel between home and work 
currently is.
     Definition of Biological in Sec.  32.3: The proposed rule 
would provide a simplified evidentiary mechanism for determination of 
beneficiary status under certain circumstances relating to filial or 
parental status.
     Definition of Heart attack in Sec.  32.3: The proposed 
rule would expand this definition to cover other cardiac events--beyond 
myocardial infarctions and sudden cardiac arrests (the only two 
circumstances currently covered)--caused by pathological conditions of 
the heart or coronary arteries.
     Definition of Injury date in Sec.  32.3: The proposed rule 
would make this definition applicable (for purposes of determining 
beneficiaries) to claims covered by the HHSBA, where the injuries are 
statutorily presumed; under the proposed rule, beneficiaries under 
these claims would be able--for the first time--to receive the 
advantages of this definition.
     Definition of Line of duty activity or action in Sec.  
32.3: The proposed rule would expand this definition to cover 
situations where ``secondary-function'' law-enforcement officers, -
firefighters, and -members of rescue squads or ambulance crews, take 
part as trainers in official training programs; currently, only 
participants who are trainees are covered.
     Definition of Voluntary intoxication at the time of death 
or catastrophic injury in Sec.  32.3: The proposed rule would provide 
additional evidentiary mechanisms for evaluating potentially-
disqualifying facts relating to whether or not a public safety officer 
was intoxicated at the time of death or catastrophic injury.
     Sec.  32.5(c) & (h): The proposed rule would provide for 
simplified authentication of certain evidence during the administrative 
claims process and would (by establishing a kind of regulatory 
presumption relating to endorsement of representations made in 
connection with their claims) eliminate the need for claimants to 
provide certain paperwork otherwise necessary to establish the legal 
sufficiency of their claims.
     Sec.  32.6(a): The proposed rule would provide a 
simplified evidentiary mechanism for determination of beneficiary 
status under certain circumstances relating to spousal status.
     Sec.  32.15(d): The proposed rule would eliminate the 
current prerequisite certification requirement (requiring that the 
public agency certify as to the factual circumstances of the death and 
that all benefits available from the agency for similarly situated 
officers were paid) under certain circumstances where the presumption 
established by the HHSBA is applicable.
     Sec.  32.42(c): The proposed rule would eliminate a 
potential trap for unwary disability claimants by removing a redundant 
filing requirement.
    As is evident, the majority of the changes tend to make it easier 
for claimants to establish their claims (see the definitions of 
Authorized commuting and Heart attack for example). The rest of the 
changes are generally proposed in order more accurately to give notice 
to claimants, through the regulations, as to BJA's current practice in 
determining claims (see the definitions of Designation on file, 
Official training program, and Routine, for example). Many of the 
changes are simply grammatical and syntactical changes, but are still 
important for the sake of clarity and usefulness of the document.

II. Regulatory Certifications

Regulatory Flexibility Act

    The Office of Justice Programs, in accordance with the Regulatory 
Flexibility Act (5 U.S.C. 605(b)), has reviewed this regulation and by

[[Page 39635]]

approving it certifies that this regulation will not have a significant 
economic impact on a substantial number of small entities for the 
following reasons: This proposed rule addresses Federal agency 
procedures; furthermore, this proposed rule makes amendments to clarify 
existing regulations and agency practice concerning death, disability, 
and education payments and assistance to eligible public safety 
officers and their survivors and does nothing to increase the financial 
burden on any small entities.

Executive Order 12866

    This proposed rule has been drafted and reviewed in accordance with 
Executive Order No. 12866 (Regulatory Planning and Review), Sec.  1(b), 
Principles of Regulation. The costs of implementing this proposed rule 
are minimal. The only costs to OJP consist of appropriated funds, and 
the benefits of the proposed rule far exceed the costs. As discussed in 
more detail in the ``Background'' section above, all of the substantive 
regulatory changes in this proposed rule tend to relieve unnecessary 
burdens and restrictions placed on claimants by the current rule. The 
non-substantive changes largely incorporate existing law and clarify 
the regulation so that it reflects current agency practice. The rest of 
the changes are grammatical and syntactical
    The Office of Justice Programs has determined that this proposed 
rule is a ``significant regulatory action'' under Executive Order No. 
12866 (Regulatory Planning and Review), section 3(f), and accordingly 
this proposed rule has been reviewed by the Office of Management and 
Budget.

Executive Order 13132

    This proposed rule will not have substantial direct effects on the 
States, on the relationship between the national government and the 
States, or on distribution of power and responsibilities among the 
various levels of government. The PSOB Act provides benefits to 
individuals and does not impose any special or unique requirements on 
States or localities. Therefore, in accordance with Executive Order No. 
13132, it is determined that this proposed rule does not have 
sufficient federalism implications to warrant the preparation of a 
Federalism Assessment.

Executive Order 12988--Civil Justice Reform

    This proposed rule meets the applicable standards set forth in 
Sec. Sec.  3(a) & (b)(2) of Executive Order No. 12988.

Unfunded Mandates Reform Act of 1995

    This proposed rule will not result in the expenditure by State, 
local and tribal governments, in the aggregate, or by the private 
sector, of $100,000,000 or more in any one year, and it will not 
significantly or uniquely affect small governments. The PSOB Act is a 
federal benefits program that provides benefits directly to qualifying 
individuals. Therefore, no actions were deemed necessary under the 
provisions of the Unfunded Mandates Reform Act of 1995.

Small Business Regulatory Enforcement Fairness Act of 1996

    This proposed rule is not a major rule as defined by section 804 of 
the Small Business Regulatory Enforcement Fairness Act of 1996. This 
proposed rule will not result in an annual effect on the economy of 
$100,000,000 or more; a major increase in costs or prices; or 
significant adverse effects on competition, employment, investment, 
productivity, innovation, or on the ability of United States-based 
companies to compete with foreign-based companies in domestic and 
export markets.

Paperwork Reduction Act

    This proposed rule contains no new information collection or 
record-keeping requirements under the Paperwork Reduction Act of 1995 
(44 U.S.C. 3501, et seq.).

List of Subjects in 28 CFR Part 32

    Administrative practice and procedure, Claims, Disability benefits, 
Education, Emergency medical services, Firefighters, Law enforcement 
officers, Reporting and recordkeeping requirements, Rescue squad.

    Accordingly, for the reasons set forth in the preamble, part 32 of 
chapter I of Title 28 of the Code of Federal Regulations is proposed to 
be amended as follows:

PART 32--PUBLIC SAFETY OFFICERS' DEATH, DISABILITY, AND EDUCATIONAL 
ASSISTANCE BENEFIT CLAIMS

    1. Revise the authority citation for part 32 to read as follows:

    Authority: 42 U.S.C. ch. 46, subch. XII; 42 U.S.C. 3782(a), 
3787, 3788, 3791(a), 3793(a)(4) & (b), 3795a, 3796c-1, 3796c-2; sec. 
1601, title XI, Pub. L. 90-351, 82 Stat. 239; secs. 4 through 6, 
Pub. L. 94-430, 90 Stat. 1348; secs. 1 and 2, Pub. L. 107-37, 115 
Stat. 219.

    2. Revise Sec.  32.0 to read as follows:


Sec.  32.0  Scope of part.

    This part implements the Act, which, as a general matter, 
authorizes the payment of three different legal gratuities:
    (a) Death benefits;
    (b) Disability benefits; and
    (c) Educational assistance benefits.
    3. Amend Sec.  32.3 as follows:
    a. Amend the definition of ``Act'' as follows:
    i. Remove ``section 5 thereof (rule of construction and 
severability))'' and add in its place ``sections 4 through 6 thereof 
(payment in advance of appropriations, rule of construction and 
severability, and effective date and applicability))''.
    ii. Remove ``sections 611 and 612'' and add its place ``section 
611''.
    iii. Remove ``all three'' and add in its place ``both''.
    iv. Remove ``in connection with terrorist attacks)'' and add in its 
place ``in connection, respectively, with the terrorist attacks of 
Sept. 11, 2001, or with terrorist attacks, if any, occurring after Oct. 
26, 2001)''.
    v. Add ``, as well as the proviso under the Public Safety Officers 
Benefits heading in title II of division B of section 6 of Public Law 
110-161'' before the final period.
    b. Amend the definition of ``Authorized commuting'' as follows:
    i. In the introductory text, add ``(not being described in the Act, 
at 42 U.S.C. 3796a(1), and not being a frolic or detour)'' after 
``travel''.
    ii. In paragraph (1), remove ``responding to a fire, rescue'' and 
add in its place ``responding (as authorized) to a fire-, rescue-,'', 
and add ``, or to a particular and extraordinary request (by the public 
agency he serves) for that specific officer to perform public safety 
activity, within his line of duty'' after ``emergency''.
    iii. In paragraph (2), add ``, or between any such authorized or 
required situs and another'' after ``serves)''.
    c. Amend the definition of ``Determination'' by removing ``or'', 
the third place it occurs, and by adding ``, or any recommendation 
under Sec.  32.54(c)(3)'' before the final period.
    d. Amend the introductory text in the definition of ``Divorce'' by 
removing ``a living individual'' and adding in its place ``an 
individual'', and by removing ``individual, the spouse'' and adding in 
its place ``individual (and while that individual is living), the 
spouse''.
    e. Amend the definition of ``Eligible payee'' as follows:
    i. In paragraph (1), remove ``A beneficiary'' and add in its place 
``An individual (other than the officer)''.
    ii. In paragraph (2), remove ``A beneficiary'' and add in its place 
``An individual''.

[[Page 39636]]

    f. Amend paragraph (2) of the definition of ``Fire protection'' and 
paragraph (1)(ii) of the definition of ``Firefighter'', respectively, 
by removing ``Hazardous-materials emergency'' and adding in its place 
``Hazardous-material''.
    g. Amend the definition of ``Fire, rescue, or police emergency'', 
by removing ``Fire, rescue,'' in the term defined, and adding in its 
place ``Fire-, rescue-,''.
    h. Amend the definition of ``Hazardous-materials emergency 
response'', by removing ``Hazardous-materials emergency'' in the term 
defined, and adding in its place ``Hazardous-material''.
    i. Revise the definition of ``Heart attack'' to read as set forth 
below.
    j. Amend the definition of ``Injury'' by adding ``directly and 
proximately'' after ``body)''.
    k. Amend the introductory text in the definition of ``Injury date'' 
by adding ``--Except with respect to claims under the Act, at 42 U.S.C. 
3796(k) (where, for purposes of determining beneficiaries under the 
Act, at 42 U.S.C. 3796(a), it generally means the time of the heart 
attack or stroke referred to in the Act, at 42 U.S.C. 3796(k)(2)), 
injury date'' before ``means''.
    l. Amend the introductory text in the definition of ``Intentional 
misconduct'' by removing ``Except with respect to voluntary 
intoxication at the time of death or catastrophic injury, a'' and 
adding in its place ``A''.
    m. Revise paragraph (3) of the definition of ``Law enforcement'' to 
read as set forth below.
    n. Amend the definition of ``Line of duty activity or action'' as 
follows:
    i. In paragraph (1)(i) and the introductory text of paragraph 
(1)(ii), respectively, remove ``law enforcement, fire protection, 
rescue activity, or the provision of emergency medical services'' and 
add in its place ``public safety activity''.
    ii. In paragraphs (1)(i) and (1)(ii)(A), respectively, remove ``to 
be so'' and add in its place ``to have been so'', add ``at the time 
performed'' before ``(or, at'' and remove ``to be such'' and add in its 
place ``to have been such''.
    iii. In paragraph (1)(i), remove ``training programs'' and add in 
its place ``official training programs of his public agency''.
    iv. In paragraphs (1)(ii)(B), (2), (3)(i), and (3)(ii), 
respectively, remove ``as such'' and add in its place ``to have been 
such at the time performed'', and remove ``to be such'' and add in its 
place ``to have been such''.
    v. In paragraph (1)(ii)(B), remove ``law enforcement, providing 
fire protection, engaging in rescue activity, or providing emergency 
medical services, or training for one of the foregoing'' and add in its 
place ``public safety activity, or taking part (as a trainer or 
trainee) in an official training program of his public agency for such 
activity''.
    vi. In paragraph (3)(ii), remove ``fire, rescue,'' and add in its 
place ``fire-, rescue-,''.
    o. Amend the definition of ``Occupational disease'' by adding 
``(including an ailment or condition of the body)'' after ``disease''.
    p. Amend paragraph (2) of the definition of ``Posthumous child'' by 
removing ``Not alive at'' and adding in its place ``Deceased at or 
before''.
    q. Amend paragraph (1) of the definition of ``Qualified 
beneficiary'', by adding ``final agency'' before ``determination''.
    r. Add ``wound, condition, cardiac-event,'' after ``disability,'' 
the three places it occurs in the definition of ``Substantial factor''.
    s. Amend the definition of ``Voluntary intoxication at the time of 
death or catastrophic injury'' as follows:
    i. In the introductory text, add ``, as shown by any commonly-
accepted tissue, -fluid, or -breath test or by other competent 
evidence'' before the colon.
    ii. In paragraph (2), remove ``a disturbance of mental or physical 
faculties resulting from their introduction into the body of a public 
safety officer, as evidenced by the presence therein, as of the injury 
date--'' and add in its place ``intoxication as defined in the Act, at 
42 U.S.C. 3796b(5), as evidenced by the presence (as of the injury 
date) in the body of the public safety officer--''.
    t. Add the following definitions in alphabetical order:


Sec.  32.3  Definitions.

* * * * *
    Biological means genetic, but does not include circumstances where 
the genetic donation (under the laws of the jurisdiction where the 
offspring is conceived) does not (as of the time of such conception) 
legally confer parental rights and obligations.
* * * * *
    Certification means a formal assertion of a fact (or facts), in a 
writing that is--
    (1) Expressly intended to be relied upon by the PSOB determining 
official in connection with the determination of a claim specifically 
identified therein;
    (2) Expressly directed to the PSOB determining official;
    (3) Legally subject to the provisions of 18 U.S.C. 1001 (false 
statements) and 1621 (perjury), and 28 U.S.C. 1746 (declarations under 
penalty of perjury), and expressly declares the same to be so;
    (4) Executed by a natural person with knowledge of the fact (or 
facts) asserted and with legal authority to execute the writing (such 
as to make the assertion legally that of the certifying party), and 
expressly declares the same (as to knowledge and authority) to be so;
    (5) In such form as the Director may prescribe from time to time;
    (6) True, complete, and accurate (or, at a minimum, not known or 
believed by the PSOB determining official to contain any material 
falsehood, incompleteness, or inaccuracy); and
    (7) Unambiguous, precise, and unequivocal, in the judgment of the 
PSOB determining official, as to any fact asserted, any matter 
otherwise certified, acknowledged, indicated, or declared, and any 
provision of this definition.
    Certification described in the Act, at 42 U.S.C. 3796c-1 or Public 
Law 107-37, means a certification, acknowledging all the matter 
specified in Sec.  32.5(f)(1) and (2)--
    (1) In which the fact (or facts) asserted is the matter specified 
in Sec.  32.5(f)(3);
    (2) That expressly indicates that all of the terms used in making 
the assertion described in paragraph (1) of this definition (or used in 
connection with such assertion) are within the meaning of the Act, at 
42 U.S.C. 3796c-1 or Public Law 107-37, and of this part; and
    (3) That otherwise satisfies the provisions of the Act, at 42 
U.S.C. 3796c-1 or Public Law 107-37, and of this part.
* * * * *
    Commonly accepted means generally agreed upon within the medical 
profession.
    Consequences of an injury that permanently prevent an individual 
from performing any gainful work means an injury whose consequences 
permanently prevent an individual from performing any gainful work.
* * * * *
    Direct and proximate cause--Except as may be provided in the Act, 
at 42 U.S.C. 3796(k), something directly and proximately causes a 
wound, condition, or cardiac-event, if it is a substantial factor in 
bringing the wound, condition, or cardiac-event about.
* * * * *
    Emergency response activity means response to a fire-, rescue-, or 
police emergency.
* * * * *
    Employment in a civilian capacity refers to status as a civilian, 
rather than to the performance of civilian functions.
* * * * *
    Heart attack means--

[[Page 39637]]

    (1) A myocardial infarction; or
    (2) A cardiac-event (i.e., cessation, interruption, arrest, or 
other similar disturbance of heart function), not included in paragraph 
(1) of this definition, that is--
    (i) Acute; and
    (ii) Directly and proximately caused by a pathology (or 
pathological condition) of the heart or the coronary arteries.
* * * * *
    Law enforcement * * *
    (3) Prison security activity; and
* * * * *
    Official training program of a public agency means a program--
    (1) That is officially sponsored, -conducted, or -authorized by the 
public agency; and
    (2) Whose purpose is to train public safety officers in (or to 
improve their skills in), specific activity or actions encompassed 
within their respective lines of duty.
* * * * *
    Prison security activity means correctional or detention activity 
(in a prison or other detention or confinement facility) of individuals 
who are alleged or found to have violated the criminal laws.
* * * * *
    Public safety activity means any of the following:
    (1) Law enforcement;
    (2) Fire protection;
    (3) Rescue activity; or
    (4) The provision of emergency medical services.
* * * * *
    4. Amend Sec.  32.5 as follows:
    a. Amend paragraph (c) as follows:
    i. Add ``301 (presumptions),'' before ``401''.
    ii. Remove ``1008'' and add in its place ``1007''.
    iii. Add ``, mutatis mutandis,'' after ``apply''.
    iv. Add ``No extrinsic evidence of authenticity as a condition 
precedent to admissibility shall be required with respect to any 
document purporting to bear the signature of an expert engaged by the 
BJA.'' after the period.
    b. Amend paragraph (d) as follows:
    i. In paragraph (d)(1)(ii), remove ``or'' at the end.
    ii. In paragraph (d)(2)(ii), remove the period at the end and add 
in its place ``; or''.
    c. Amend paragraph (f) as follows:
    i. In paragraph (f)(1)(ii), add ``and'' after ``agency;''.
    ii. In paragraph (f)(1)(iii)(E), remove ``and'' after the semi-
colon.
    iii. Redesignate paragraph (f)(1)(iv) as paragraph (f)(3), remove 
``Killed'' therein and add in its place ``That the public safety 
officer was killed'', and remove ``; and'' therein and add in its place 
``, and that such injury was sustained in connection with public safety 
activity (or otherwise with efforts described in the Act, at 42 U.S.C. 
3796c-1 or Pub. L. 107-37) related to a terrorist attack (under the 
former statute) or to the terrorist attacks of September 11, 2001 
(under the latter statute).''.
    iv. In paragraph (f)(2), remove ``That'' and add in its place ``Of 
the public agency's acknowledgment that'', remove the final period, and 
add ``; and'' at the end.
    d. add paragraphs (d)(3), (g), (h), and (i), to read as follows:


Sec.  32.5  Evidence.

* * * * *
    (d) * * *
    (3) A claimant under subpart B or C of this part fails or refuses 
to apply for the benefits, if any, described in Sec.  32.15(a)(1)(i) or 
Sec.  32.25(a)(1)(i), respectively.
* * * * *
    (g) In determining a claim, the PSOB determining official shall 
have, in addition to the hearing-examiner powers specified at 42 U.S.C. 
3787 (hold hearings, issue subpoenas, administer oaths, examine 
witnesses, and receive evidence), and to the authorities specified at 
42 U.S.C. 3788(b)-(d) (use of experts, consultants, other government 
resources) and in this part, the authority otherwise and in any 
reasonable manner to conduct his own inquiries, as appropriate.
    (h) Acceptance of payment (by a payee (or on his behalf)) shall 
constitute prima facie evidence that the payee (or the pay agent)--
    (1) Endorses as his own (to the best of his knowledge and belief) 
the statements and representations made, and the evidence and 
information provided, pursuant to the claim; and
    (2) Is aware (in connection with the claim) of no--
    (i) Fraud;
    (ii) Concealment or withholding of evidence or information;
    (iii) False, incomplete, or inaccurate statements or 
representations;
    (iv) Mistake, wrongdoing, or deception; or
    (v) Violation of 18 U.S.C. 287 (false, fictitious, or fraudulent 
claims), 1001 (false statements), 1621 (perjury), or 42 U.S.C. 3795a 
(falsification or concealment of facts).
    (i) A public safety officer's response to an emergency call from 
his public agency for him to perform public safety activity shall 
constitute prima facie evidence of such response's non-routine 
character.


Sec.  32.6  [Amended]

    5. Amend Sec.  32.6 as follows:
    a. In paragraph (a), add the following at the end: ``If more than 
one should qualify, payment shall be made to the one with whom the 
officer considered himself, as of the injury date, to have the closest 
relationship, except that the individual (if any) who was a member of 
the officer's household (as of such date) shall be presumed rebuttably 
to be such one, unless legal proceedings (by the officer against such 
member, or vice versa) shall have been pending then in any court.''.
    b. In paragraph (d)(1), remove ``or inaccurate statements'' and add 
in its place ``, incomplete, or inaccurate statements or 
representations''.


Sec. Sec.  32.12 and 32.22  [Amended]

    6. Amend Sec. Sec.  32.12(a)(2) and 32.22(a)(2), respectively, by 
removing ``the receipt or denial of any benefits'' and adding in its 
place ``a final determination of entitlement to receive, or of denial 
of, the benefits, if any,''.


Sec. Sec.  32.12, 32.22, 32.32, 32.42, and 32.52  [Amended]

    7. Amend Sec. Sec.  32.12(b), 32.22(b), 32.32(c), 32.42(b), and 
32.52(b), respectively, by adding ``documentary, electronic, video, or 
other non-physical'' after ``supporting''.
    8. Amend Sec.  32.13 as follows:
    a. Amend the definitions of ``Beneficiary of a life insurance 
policy of a public safety officer'' and ``Beneficiary under the Act, at 
42 U.S.C. 3796(a)(4)(A)'', respectively as follows:
    i. In the introductory text, add ``or otherwise unterminated'' 
after ``law)''.
    ii. In the introductory text of paragraph (1), remove ``--not 
having taken place as of such date of death--'' and ``when scheduled''.
    iii. In paragraph (1)(i), remove ``The alteration in schedule was'' 
and add in its place ``It did not take place''.
    b. In paragraph (2) of the definition of ``Beneficiary of a life 
insurance policy of a public safety officer'', remove ``individual)'' 
and add in its place ``spouse (or purported spouse))''.
    c. Amend the definition of ``Circumstances other than engagement or 
participation'' as follows:
    i. Remove the term defined, ``Circumstances other than engagement 
or participation'' and add in its place ``Extrinsic circumstances''.
    ii. Redesignate the definition to the appropriate place, in 
alphabetical order, in this section, as set forth below.
    d. Remove the definition of ``Commonly accepted''.

[[Page 39638]]

    e. Amend the definition of ``Competent medical evidence to the 
contrary'' to remove ``circumstances other than any engagement or 
participation described in the Act, at 42 U.S.C. 3796(k)(1)'' and add 
in its place ``extrinsic circumstances''.
    f. Amend the definition of ``Engagement in a situation'' as 
follows:
    i. Remove ``Engagement in a situation--A public safety officer is 
engaged in a situation only'' in the introductory text and add in its 
place ``Engagement in a situation involving law enforcement, fire 
suppression, rescue, hazardous material response, emergency medical 
services, prison security, disaster relief, or other emergency response 
activity--A public safety officer is so engaged only''.
    ii. Remove ``hazardous-materials'' in paragraph (1)(iii) and add in 
its place ``hazardous-material''.
    iii. Remove ``or'' at the end of paragraph (1)(v).
    iv. Remove ``responding to a fire, rescue, or police emergency'' in 
paragraph (1)(vii) and add in its place ``engaging in emergency 
response activity''.
    v. In paragraph (2), remove ``to be in'' and add in its place ``to 
have been in'', add ``at the time of such engagement'' before the first 
``(or'', and remove ``so to be'' and add in its place ``so to have 
been''.
    g. Amend paragraph (2) of the definition of ``Most recently 
executed life insurance policy of a public safety officer'' by removing 
``in effect'' and adding in its place ``unrevoked (by such officer or 
by operation of law) or otherwise unterminated''.
    h. Amend the definition of ``Participation in a training exercise'' 
by removing ``if it is a formal part of an official training program 
whose purpose is to train public safety officers in, prepare them for, 
or improve their skills in, particular activity or actions encompassed 
with their respective lines of duty.'' in the introductory text and 
adding in its place ``when actually taking formal part in a mandatory, 
structured activity within an official training program of his public 
agency.''
    i. Amend the definition of ``Public safety agency, organization, or 
unit'' by removing ``organization, or unit'' in the term defined, and 
adding in its place ``-organization, or -unit''.
    j. Add the following definitions in alphabetical order:


Sec.  32.13  Definitions.

* * * * *
    Designation on file--A designation of beneficiary under the Act, at 
42 U.S.C. 3796(a)(4)(A), is on file with a public safety agency, -
organization, or -unit, only if it is deposited with the same by the 
public safety officer making the designation, for it to maintain with 
its personnel or similar records pertaining to him.
* * * * *
    Extrinsic circumstances means--
    (1) An event or events; or
    (2) An intentional risky behavior or intentional risky behaviors.
    Life insurance policy on file--A life insurance policy is on file 
with a public safety agency, -organization, or -unit, only if--
    (1) It is issued through (or on behalf of) the same; or
    (2) The original (or a copy) of one of the following is deposited 
with the same by the public safety officer whose life is insured under 
the policy, for it to maintain with its personnel or similar records 
pertaining to him:
    (i) The policy (itself);
    (ii) The declarations page or -statement from the policy's issuer;
    (iii) A certificate of insurance (for group policies);
    (iv) Any instrument whose execution constitutes the execution of a 
life insurance policy; or
    (v) The substantial equivalent of any of the foregoing.
* * * * *
    Routine--Neither of the following shall be the decisive factor in 
determining whether an activity shall be understood to be performed as 
a matter of routine:
    (1) Being described by a public agency as being routine or 
ordinary; or
    (2) The frequency with which it may be performed.
* * * * *
    9. Amend Sec.  32.14 by adding a paragraph (c) to read as follows:


Sec.  32.14  PSOB Office determination.

* * * * *
    (c) In connection with the determination of the existence of 
competent medical evidence to the contrary, pursuant to a filed claim--
    (1) Where there is an affirmative suggestion under paragraph (c)(2) 
of this section, which indicates the existence of a potential ground 
for denial of the claim, the PSOB Office shall serve the claimant with 
notice thereof, to request that he file such documentary, electronic, 
video, or other non-physical evidence (such as medical-history records, 
as appropriate) and legal arguments in support of his claim as he may 
wish to provide;
    (2) There is an affirmative suggestion within the meaning of 
paragraph (c)(1) of this section, where the evidence before the PSOB 
Office affirmatively suggests that--
    (i) The public safety officer actually knew or should have known 
that he had cardio-vascular disease risk factors and appears to have 
worsened or aggravated the same through his own intentional and 
reckless behavior (as opposed to where the evidence affirmatively 
suggests merely that cardio-vascular disease risk factors were 
present); or
    (ii) It is more likely than not that a public safety officer's 
heart attack or stroke was imminent; and
    (3) The PSOB Office shall not request medical history records to 
supplement a filed claim, unless the criteria in paragraphs (c)(1) and 
(2) of this section are satisfied; and
    (4) Any mitigating evidence provided under paragraph (c) of this 
section will be considered by the PSOB Office.
    10. Amend Sec.  32.15 as follows:
    a. In paragraph (a)(1), remove ``paragraph (b)'' and add in its 
place ``paragraphs (b) and (d)''.
    b. In paragraph (b), remove ``paragraph (a)(1)'' and add in its 
place ``paragraphs (a)(1) and (d)''.
    c. In the introductory text of paragraph (c), add ``for purposes of 
this section'' after ``complete''.
    d. Add a paragraph (d) to read as follows:


Sec.  32.15  Prerequisite certification.

* * * * *
    (d) Subject to paragraphs (b) and (c) of this section, if the 
Director finds that the conditions specified in the Act, at 42 U.S.C. 
3796(k), are satisfied with respect to a particular public safety 
officer's death, and that no circumstance specified in the Act, at 42 
U.S.C. 3796a(1), (2), or (3), applies with respect thereto--
    (1) The certification as to death, described in paragraph (a)(1) of 
this section, shall not be required; and
    (2) The certification as to benefits, described in paragraph 
(a)(1)(ii) of this section, shall be deemed complete for purposes of 
this section if it--
    (i) Describes the public agency's understanding of the 
circumstances (including such causes of which it may be aware) of the 
officer's death; and
    (ii) States that, in connection with deaths occurring under the 
circumstances described in paragraph (d)(2)(i) of this section, the 
public agency is not legally authorized to pay any benefits described 
in paragraph (a)(1)(i) of this section.
    11. Amend Sec.  32.16 by adding a paragraph (c) to read as follows:


Sec.  32.16  Payment.

* * * * *

[[Page 39639]]

    (c) If more than one individual should qualify for payment--
    (1) Under the Act, at 42 U.S.C. 3796(a)(4)(1), payment shall be 
made to each of them in equal shares, except that, if the designation 
itself should manifest a different distribution, payment shall be made 
to each of them in shares in accordance with such distribution; or
    (2) Under the Act, at 42 U.S.C. 3796(a)(4)(2), payment shall be 
made to each of them in equal shares.


Sec.  32.29  [Amended]

    12. Amend Sec.  32.29(a)(1)(ii) by removing ``The'' and adding in 
its place ``Consistent with Sec.  32.42(c), the''.


Sec.  32.41  [Amended]

    13. Amend Sec.  32.41 by adding ``, and of claims remanded (or 
matters referred) under Sec.  32.54(c)'' before the final period.
    14. Amend Sec.  32.42 as follows:
    a. In the introductory text of paragraph (a), remove ``Unless'' and 
add in its place ``Subject to paragraph (c) of this section, and 
unless''.
    b. Add a paragraph (c) to read as follows:


Sec.  32.42  Time for filing request for determination.

* * * * *
    (c) The timely filing of a motion for reconsideration under Sec.  
32.28(a) shall be deemed to constitute a timely filing, under paragraph 
(a) of this section, of a request for determination with respect to any 
grounds described in Sec.  32.29(a)(1)(ii) that may be applicable.


Sec.  32.43  [Amended]

    15. Amend Sec.  32.43(b) by adding ``(or upon remand or referral)'' 
after ``determination''.


Sec.  32.45  [Amended]

    16. Amend Sec.  32.45(a) by removing ``At'' and adding in its place 
``Except with respect to a remand or referral, at''.
    17. Amend Sec.  32.54 by adding paragraph (c) to read as follows:


Sec.  32.54  Director determination.

* * * * *
    (c) With respect to any claim before him, the Director, as 
appropriate, may--
    (1) Remand the same to the PSOB Office, or to a Hearing Officer;
    (2) Vacate any related determination under this part; or
    (3) Refer any related matters to a Hearing Officer (as a special 
master), to recommend factual findings and dispositions in connection 
therewith.


Sec.  32.55  [Amended]

    18. Amend Sec.  32.55(a) by removing ``under 28 U.S.C. 1491(a) 
(claims against the United States)'' and adding in its place ``pursuant 
to the Act, at 42 U.S.C. 3796c-2''.

    Dated: July 7, 2008.
Jeffrey L. Sedgwick,
Acting Assistant Attorney General.
[FR Doc. E8-15730 Filed 7-9-08; 8:45 am]
BILLING CODE 4410-18-P