[Federal Register Volume 75, Number 66 (Wednesday, April 7, 2010)]
[Proposed Rules]
[Pages 17641-17644]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2010-7810]


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DEPARTMENT OF VETERANS AFFAIRS

38 CFR Parts 17 and 59

RIN 2900-AN57


Updating Fire Safety Standards

AGENCY: Department of Veterans Affairs.

ACTION: Proposed rule.

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SUMMARY: The Department of Veterans Affairs (VA) proposes to amend its 
regulations concerning community residential care facilities, contract 
facilities for certain outpatient and residential services, and State 
home facilities to update the standards for VA approval of such 
facilities, including standards for fire safety and heating and cooling 
systems. The proposed amendments would help ensure the safety of 
veterans in the affected facilities.

DATES: Comments on the proposed rule must be received by VA on or 
before June 7, 2010.

ADDRESSES: Written comments may be submitted through http://www.regulations.gov; by mail or hand-delivery to the Director, 
Regulations Management (02REG), Department of Veterans Affairs, 810 
Vermont Avenue, NW., Room 1068, Washington, DC 20420; or by fax to 
(202) 273-9026. Comments should indicate that they are submitted in 
response to ``RIN 2900-AN57--Updating Fire Safety Standards.'' Copies 
of 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) 461-4902 for an appointment. (This is not a toll-free 
number.) In addition, during the comment period, comments may be viewed 
online through the Federal Docket Management System (FDMS) at http://www.regulations.gov.

FOR FURTHER INFORMATION CONTACT: Brian McCarthy, Office of Patient Care 
Services, Veterans Health Administration, Department of Veterans 
Affairs, 810 Vermont Ave., NW., Washington, DC 20420, 202-461-6759. 
(This is not a toll-free number.)

SUPPLEMENTARY INFORMATION: This document proposes to update VA's 
regulations concerning the codes and standards applicable to community 
residential care facilities, contract facilities for outpatient and 
residential treatment services for veterans with alcohol or drug 
dependence or abuse disabilities, and State homes. Currently, 38 CFR 
17.63(a)(2), 17.81(a)(1), 17.82(a)(1), and 59.130(d)(1) require 
facilities to meet the requirements in certain provisions of specific 
editions of publications produced by the National Fire Protection 
Association (NFPA). These publications are: NFPA 10, Standard for 
Portable Fire Extinguishers; NFPA 99, Standard for Health Care 
Facilities; NFPA 101, Life Safety Code; and NFPA 101A, Guide on 
Alternative Approaches to Life Safety. These publications are currently 
incorporated by reference into Sec. Sec.  17.63, 17.81, 17.82, and 
59.130. However, these sections need to be updated to reflect the 
current editions of these publications. In addition, specific chapters 
of NFPA 101 that are cited in

[[Page 17642]]

the regulations might not apply to all facilities within the programs. 
The regulations that cite these chapters need to be broadened to 
address all facilities.

Changes to 38 CFR Part 17

    We propose to amend Sec. Sec.  17.63, 17.81, and 17.82 to refer to 
the 2009 edition of NFPA 101 and the 2010 edition of NFPA 101A, which 
are the current editions of these publications.
    These regulations currently cite specific chapters of NFPA 
publications. For example, Sec.  17.81(a)(1)(i) cites chapters 1-7, 22-
23, and 31, and Appendix A of the 1994 edition of NFPA 101. This can be 
problematic if a cited chapter was intended by NFPA to apply only to 
facilities of a specific type or size, e.g., a residential board and 
care facility for four or more residents, but the VA regulation 
addresses facilities of varying types or sizes. Reference to a specific 
chapter has led to confusion as to whether VA requires smaller 
facilities to meet the requirements in a chapter that NFPA intended 
only to apply to larger facilities, or vice-versa. For example, the 
occupancy chapters (chapters 22-23 of NFPA 101) cited in current Sec.  
17.81(a)(1)(i) were not intended by NFPA to apply to a facility that 
serves fewer than four residents, but VA recognizes facilities of such 
size in contracts for certain residential services. The result has been 
confusion as to whether the regulation requires those NFPA occupancy 
chapters to apply to such small facilities. VA intends to apply the 
NFPA occupancy chapters in the manner intended by NFPA. Where VA has 
additional requirements, these requirements need to be identified in 
the regulations.
    This type of confusion has not been an issue for facilities covered 
by 38 CFR part 59, largely because in current Sec.  59.130(d)(1) we 
require facilities to ``meet the applicable provisions of'' NFPA 101. 
Hence, we propose to amend part 17 to conform to the more general and 
less ambiguous reference format used in part 59. This is not intended 
to be a substantive change and should not create new responsibilities 
for any facilities covered by part 17.
    In addition, some of our regulations reference specific standards 
that are subsumed by NFPA 101. For example, current Sec.  
17.82(a)(1)(v) references NFPA 10, a specific standard related to fire 
extinguishers. However, NFPA provides specific standards for many other 
items related to fire safety, but our regulations do not reference 
them. This has led to confusion as to whether we intended to exclude 
those specific standards we do not reference in our regulations. This 
was not our intent. NFPA 101 contains a chapter that lists other 
publications and states that those publications shall be considered 
part of the requirements of NFPA 101. Hence, by incorporating by 
reference NFPA 101, we would also be incorporating the standards NFPA 
101 relies upon and references.
    Specific NFPA 101 provisions would lead the user to relevant 
specific standards. Again using the example of Sec.  17.82(a)(1)(v)'s 
current reference to NFPA 10, proposed Sec.  17.81(a)(1)(i) would 
require the regulated facilities ``to meet the requirements in the 
applicable provisions of'' NFPA 101, which would include chapters 7 and 
23 of NFPA 101. NFPA 101 section 23-3.3.5.3, ``Portable Fire 
Extinguishers,'' states that ``Portable fire extinguishers in 
accordance with 7-7.4.1 shall be provided near hazardous areas.'' NFPA 
101 section 7-7.4, ``Manual Extinguishing Equipment,'' states that 
``[w]here required by the provisions of another section of this Code, 
portable fire extinguishers shall be installed, inspected, and 
maintained in accordance with NFPA 10.'' Thus, merely requiring 
compliance with NFPA 101 would lead the user to the appropriate 
specific published standards. We note as well that the reference to a 
specific standard, such as NFPA 10, or a specific provision of NFPA 101 
is necessary only if the applicable occupancy chapter in NFPA 101 does 
not reference it. Thus, the reference to NFPA 10 would be added to 
Sec.  17.63 and remain for Sec.  17.81 only for facilities that have 
fewer than four residents, and would be removed from Sec.  17.82.
    In order to clarify the applicability in part 17 of all standards 
that are required by NFPA 101, we would state in our regulatory 
references to NFPA 101 that we require regulated facilities to meet the 
requirements in the applicable provisions of NFPA 101 and the other 
publications referenced in those provisions. This is not intended to be 
a substantive change and would not lead to stricter regulatory 
enforcement. It would merely clarify our regulation.
    Finally, we would continue to reference specifically NFPA 101A in 
proposed Sec.  17.63 because NFPA 101A provides alternative approaches 
to the requirements in NFPA 101. In practice, most facilities being 
inspected would not utilize the alternatives in NFPA 101A; however, we 
believe in some cases it would provide useful and viable alternatives.

Changes to 38 CFR Part 59

    We propose to amend Sec.  59.130 to refer to the 2005 edition of 
NFPA 99 and the 2009 edition of NFPA 101, which are the current 
editions of these documents. This update is necessary to ensure that 
State home facilities meet current industry-wide standards regarding 
fire safety. With respect to State homes, we are not aware of any 
significant changes from the editions referenced in current Sec.  
59.130 to the 2005 edition of NFPA 99 and the 2009 edition of NFPA 101.

Approval of Incorporations by Reference

    The Office of the Federal Register, in accordance with 5 U.S.C. 
552(a) and 1 CFR part 51, approved our incorporation by reference of 
previous editions of NFPA 99, 101, 101A into current regulations. We 
propose to amend our regulations to require facilities seeking VA 
approval to meet the applicable requirements of NFPA 99, Standard for 
Health Care Facilities (2005 edition); NFPA 101, Life Safety Code (2009 
edition); and NFPA 101A, Guide on Alternative Approaches to Life Safety 
(2010 edition). These changes merely reflect updates to the standards 
that are currently incorporated by reference. This action is necessary 
to ensure that facilities meet current industry-wide standards 
regarding fire safety. We are not aware of any significant changes from 
the previous editions to the current editions. We will request that the 
Office of the Federal Register approve our incorporation by reference 
of updated NFPA 99, 101, and 101A.
    These materials for which we are seeking incorporation by reference 
are available for inspection at the Department of Veterans Affairs, 
Office of Regulation Policy and Management (02REG), 810 Vermont Avenue, 
NW., Room 1063B, Washington, DC 20420. Please call (202) 461-4902 for 
an appointment. (This is not a toll-free number.) These materials are 
also available at the National Archives and Records Administration 
(NARA). For information on the availability of this material at NARA, 
call (202) 741-6030, or go to: http://www.archives.gov/federal_register/code_of_federal_regulations/ibr_locations.html. Copies may 
be obtained from the National Fire Protection Association, 1 
Batterymarch Park, Quincy, MA 02269. (For ordering information, call 
toll-free 1-800-344-3555.)

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 issuing any rule that may result in an expenditure by 
State, local, and Tribal governments, in the aggregate, or by the

[[Page 17643]]

private sector, of $100 million or more (adjusted annually for 
inflation) in any given year. This rule would have no such effect on 
State, local, and Tribal governments, or on the private sector.

Paperwork Reduction Act

    This document contains no collections of information under the 
Paperwork Reduction Act of 1995 (44 U.S.C. 3501-3521).

Executive Order 12866

    Executive Order 12866 directs agencies to assess all costs and 
benefits of available regulatory alternatives and, when regulation is 
necessary, to select regulatory approaches that maximize net benefits 
(including potential economic, environmental, public health and safety, 
and other advantages; distributive impacts; and equity). The Executive 
Order classifies a ``significant regulatory action,'' requiring review 
by the Office of Management and Budget as any regulatory action that is 
likely to result in a rule that may: (1) Have an annual effect on the 
economy of $100 million or more, or adversely affect in a material way 
the economy, a sector of the economy, productivity, competition, jobs, 
the environment, public health or safety, or State, local, or Tribal 
governments or communities; (2) create a serious inconsistency or 
otherwise interfere with an action planned or taken by another agency; 
(3) materially alter the budgetary impact of entitlements, grants, user 
fees, or loan programs or the rights and obligations of recipients 
thereof; or (4) raise novel legal or policy issues arising out of legal 
mandates, the President's priorities, or the principles set forth in 
the Executive Order.
    The economic, interagency, budgetary, legal, and policy 
implications of this proposed rule have been examined, and it has been 
determined not to be a significant regulatory action under Executive 
Order 12866.

Regulatory Flexibility Act

    The Secretary hereby certifies that this proposed rule would 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. In addition to having an effect on individuals 
(veterans), the proposed rule would have an insignificant economic 
impact on a few small entities. The changes to Sec.  17.63 would likely 
affect fewer than 100 of the 2,800 community residential care 
facilities approved for referral of veterans under the regulations. 
Also, any additional costs for compliance with the proposed rule would 
constitute an inconsequential amount of the operational costs of such 
facilities. The changes to Sec. Sec.  17.81 and 17.82 would affect only 
small entities; however, most, if not all, of these entities are 
already in compliance with the current NFPA codes and therefore should 
not be significantly impacted by this rule. The changes to part 59 
would affect State homes. The State homes that would be subject to this 
rulemaking are State government entities under the control of State 
governments. All State homes are owned, operated and managed by State 
governments except for a small number operated by entities under 
contract with State governments. These contractors are not small 
entities. Accordingly, pursuant to 5 U.S.C. 605(b), this rule would be 
exempt from the initial and final regulatory flexibility analysis 
requirements of sections 603 and 604.

Catalog of Federal Domestic Assistance

    The Catalog of Federal Domestic Assistance numbers and titles for 
the programs affected by this document are 64.005, Grants to States for 
Construction of State Home Facilities; 64.007, Blind Rehabilitation 
Centers; 64.008, Veterans Domiciliary Care; 64.009, Veterans Medical 
Care Benefits; 64.010, Veterans Nursing Home Care; 64.011, Veterans 
Dental Care; 64.012, Veterans Prescription Service; 64.013, Veterans 
Prosthetic Appliances; 64.014, Veterans State Domiciliary Care; 64.015, 
Veterans State Nursing Home Care; 64.016, Veterans State Hospital Care; 
64.018, Sharing Specialized Medical Resources; 64.019, Veterans 
Rehabilitation Alcohol and Drug Dependence; 64.022, Veterans Home Based 
Primary Care.

Signing Authority

    The Secretary of Veterans Affairs, or designee, approved this 
document and authorized the undersigned to sign and submit the document 
to the Office of the Federal Register for publication electronically as 
an official document of the Department of Veterans Affairs. John R. 
Gingrich, Chief of Staff, Department of Veterans Affairs, approved this 
document on March 1, 2010 for publication.

List of Subjects in 38 CFR Parts 17 and 59

    Administrative practice and procedure, Alcohol abuse, Alcoholism, 
Claims, Day care, Dental health, Drug abuse, Foreign relations, 
Government contracts, Grant programs--health, Grant programs--veterans, 
Health care, Health facilities, Health professions, Health records, 
Homeless, Medical and dental schools, Medical devices, Medical 
research, Mental health programs, Nursing homes, Philippines, Reporting 
and recordkeeping requirements, Scholarships and fellowships, Travel 
and transportation expenses, Veterans.

    Dated: April 1, 2010.
Robert C. McFetridge,
Director, Regulation Policy and Management.

    For the reasons set out in the preamble, VA proposes to amend 38 
CFR parts 17 and 59 as follows:

PART 17--MEDICAL

    1. The authority citation for part 17 continues to read as follows:

    Authority: 38 U.S.C. 501, 1721, and as noted in specific 
sections.

    2. Add Sec.  17.1 to part 17 to read as follows:


Sec.  17.1  Incorporation by reference.

    (a) Certain materials are incorporated by reference into this part 
with the approval of the Director of the Federal Register under 5 
U.S.C. 552(a) and 1 CFR part 51. To enforce an edition of a publication 
other than that specified in this section, VA will publish notice of 
change in the Federal Register and the material will be made available 
to the public. All approved materials are available for inspection at 
the Department of Veterans Affairs, Office of Regulation Policy and 
Management (02REG), 810 Vermont Avenue, NW., Room 1068, Washington, DC 
20420, or at the National Archives and Records Administration (NARA). 
For information on the availability of approved materials at NARA, call 
(202) 741-6030, or go to: http://www.archives.gov/federal_register/code_of_federal_regulations/ibr_locations.html. Copies may be 
obtained from the National Fire Protection Association, 1 Batterymarch 
Park, Quincy, MA 02269. (For ordering information, call toll-free 1-
800-344-3555.)
    (b) The following materials are incorporated by reference into this 
part.
    (1) NFPA 101, Life Safety Code (2009 edition), Incorporation by 
Reference (IBR) approved for Sec. Sec.  17.63, 17.81, 17.82.
    (2) NFPA 101A, Guide on Alternative Approaches to Life Safety (2010 
edition), IBR approved for Sec.  17.63.

    Authority: 5 U.S.C. 552(a), 38 U.S.C. 501, 1721.

    3. Amend Sec.  17.63 as follows:
    a. Revise paragraph (a)(2); and
    b. Add a new paragraph (a)(4).
    The revision and addition read as follows:

[[Page 17644]]

Sec.  17.63  Approval of community residential care facilities.

* * * * *
    (a) * * *
    (2) Meet the requirements in the applicable provisions of NFPA 101 
and NFPA 101A (incorporated by reference, see Sec.  17.1) and the other 
publications referenced in those provisions. The institution shall 
provide sufficient staff to assist patients in the event of fire or 
other emergency. Any equivalencies or variances to VA requirements must 
be approved by the appropriate Veterans Health Administration Veterans 
Integrated Service Network (VISN) Director;
* * * * *
    (4) Meet the following additional requirements, if the provisions 
for One and Two-Family Dwellings, as defined in NFPA 101, are 
applicable to the facility:
    (i) Portable fire extinguishers must be installed, inspected, and 
maintained in accordance with NFPA 10; and
    (ii) The facility must meet the requirements in section 33.7 of 
NFPA 101.
* * * * *
    4. Amend Sec.  17.81(a)(1) as follows:
    a. Revise paragraph (a)(1)(i);
    b. Remove paragraphs (a)(1)(v) through (a)(1)(viii);
    c. Add a new paragraph (a)(1)(v); and
    d. Redesignate paragraph (a)(1)(ix) as paragraph (a)(1)(vi).
    The revision and addition read as follows:


Sec.  17.81  Contracts for residential treatment services for veterans 
with alcohol or drug dependence or abuse disabilities.

    (a) * * *
    (1) * * *
    (i) The building must meet the requirements in the applicable 
provisions of NFPA 101 (incorporated by reference, see Sec.  17.1) and 
the other publications referenced in those provisions. Any 
equivalencies or variances to VA requirements must be approved by the 
appropriate Veterans Health Administration Veterans Integrated Service 
Network (VISN) Director.
* * * * *
    (v) The facility must meet the following additional requirements, 
if the provisions for One and Two-Family Dwellings, as defined in NFPA 
101, are applicable to the facility:
    (A) Portable fire extinguishers shall be installed, inspected, and 
maintained in accordance with NFPA 10.
    (B) The facility shall meet the requirements in section 33.7 of 
NFPA 101.
* * * * *
    5. Amend Sec.  17.82(a)(1) as follows:
    a. Revise paragraph (a)(1)(i) and (iv);
    b. Remove paragraphs (a)(1)(v) and (a)(1)(vi); and
    c. Redesignate paragraph (a)(1)(vii) as (a)(1)(v).
    The revisions read as follows:


Sec.  17.82  Contracts for outpatient services for veterans with 
alcohol or drug dependence or abuse disabilities.

    (a) * * *
    (1) * * *
    (i) The building must meet the requirements in the applicable 
provisions of the NFPA 101 (incorporated by reference, see Sec.  17.1) 
and the other publications referenced in those provisions. Any 
equivalencies or variances to VA requirements must be approved by the 
appropriate Veterans Health Administration Veterans Integrated Service 
Network (VISN) Director.
* * * * *
    (iv) As a minimum, fire exit drills must be held at least 
quarterly, and a written plan for evacuation in the event of fire shall 
be developed and reviewed annually. The plan shall outline the duties, 
responsibilities and actions to be taken by the staff in the event of a 
fire emergency. This plan shall be implemented during fire exit drills.
* * * * *

PART 59--GRANTS TO STATES FOR CONSTRUCTION OR ACQUISITION OF STATE 
HOMES

    6. The authority citation for part 59 continues to read as follows:

    Authority: 38 U.S.C. 101, 501, 1710, 1742, 8105, 8131-8137.


Sec.  59.130  [Amended]

    7. Amend Sec.  59.130 as follows:
    a. Remove the phrase ``(2000 edition)'' and add, in its place, 
``(2009 edition)''; and
    b. Remove the phrase ``(1999 edition)'' and add, in its place, 
``(2005 edition)''.

[FR Doc. 2010-7810 Filed 4-6-10; 8:45 am]
BILLING CODE 8320-01-P