[Federal Register Volume 79, Number 190 (Wednesday, October 1, 2014)]
[Proposed Rules]
[Pages 59176-59179]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2014-23330]


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DEPARTMENT OF VETERANS AFFAIRS

38 CFR Part 38

RIN 2900-AO95


Applicants for VA Memorialization Benefits

AGENCY: Department of Veterans Affairs.

ACTION: Proposed rule.

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SUMMARY: The Department of Veterans Affairs (VA) proposes to amend its 
regulations defining who may apply for a headstone or marker. The 
intended effect of this proposed rule would be to expand the types of 
individuals who may request headstones and markers on behalf of 
decedents. This amendment would address concerns that the existing 
applicant definition is too restrictive and results in identified 
veteran gravesites going unmarked.

DATES: Comments must be received on or before December 1, 2014.

ADDRESSES: Written comments may be submitted through 
www.Regulations.gov; by mail or hand-delivery to the Director, 
Regulation Policy and Management (02Reg), Department of Veterans 
Affairs, 810 Vermont Ave. 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-AO95--Applicants for VA Memorialization 
Benefits.'' Copies of comments received will be available for public 
inspection in the Office of Regulation Policy and Management, Room 
1068, between the hours of 8:00 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 www.Regulations.gov.

FOR FURTHER INFORMATION CONTACT: Anita Hanson, Director, Memorial 
Programs Service (41B), National Cemetery Administration, 810 Vermont 
Ave. NW., Washington, DC 20420, (202) 501-3060. (This is not a toll-
free number.)

SUPPLEMENTARY INFORMATION: The National Cemetery Administration (NCA) 
proposes to amend its regulations regarding applications for headstones 
and markers. NCA is proposing, as discussed below, to amend the 
definition of ``applicant,'' set forth in 38 CFR 38.632, as it pertains 
to individuals requesting VA headstones and markers. In 2009, VA 
implemented the existing definition of applicant to include the 
decedent's next of kin (NOK), a person authorized in writing by NOK, or 
a personal representative authorized in writing by the decedent. An 
individual who met the definition was authorized to apply for a 
Government-furnished headstone or marker, or a new emblem of belief for 
inscription on a Government-furnished headstone or marker.
    VA has received a number of requests from individuals who did not 
meet the current definition of applicant for headstones or markers. 
Because of the

[[Page 59177]]

regulatory restriction, VA denied the requests for headstones or 
markers which has frustrated the efforts of individuals to ensure the 
unmarked graves of veterans, particularly those from historic eras, are 
appropriately marked. VA shares the goal of these individuals to ensure 
appropriate recognition of veterans who served the United States and 
proposes to revise the definition of applicant to ease the restrictive 
aspects of the definition and allow more individuals to apply for 
headstones and markers, including memorial headstones and markers.
    We propose to place this revised definition in Sec.  38.600(a). 
Section 38.600(b) contains other definitions that are used elsewhere in 
part 38, including the definition of one term that we intend to use in 
the revised definition of applicant, so putting all the definitions 
together is a logical step.
    The revised definition of applicant recognizes that VA is 
authorized to provide two types of headstones or markers. Under 38 
U.S.C. 2306(a), VA provides ``appropriate Government headstones or 
markers . . . for the unmarked graves'' of certain eligible 
individuals. Under section 2306(b), VA provides ``an appropriate 
memorial headstone or marker for the purpose of commemorating an 
eligible individual whose remains are unavailable.'' We do not believe 
we need to supply additional definitions of these items, since the 
statute has clearly identified the use for each, but for ease of 
identification in our regulations, we adopt the term ``burial headstone 
and marker'' for those items provided under section 2306(a) and 
``memorial headstone and marker'' for those provided under section 
2306(b).
    We propose to recognize five categories of individuals who may 
submit requests for burial headstones and markers. In proposed Sec.  
38.600(a)(1), we would ensure that any family member can request a 
burial headstone or marker. We believe that burial and memorialization 
are among the most personal decisions that individuals make, and that 
family members generally make these decisions. However, as we have 
stated above, we understand that our current definition, which relies 
on the phrase ``next of kin,'' is too restrictive because it would not 
allow for extended relatives, such as fifth cousins and great-nieces or 
great-great-nephews, to request a headstone or marker for their 
relatives. We have chosen to use ``family member,'' and we provide 
clarification that this phrase would include the decedent's spouse, or 
the child, parent, or sibling of the decedent, whether biological, 
adopted, or step relation. In addition, because we may receive requests 
to provide burial headstones and markers for veterans who served 
decades and even centuries ago, we would allow for requests from a 
lineal or collateral descendant of the decedent. This would allow 
families who have recently discovered the military service of an 
ancestor to apply for memorialization of their deceased relative.
    In addition to family members, we are also proposing that 
``personal representatives'' would be allowed to apply for headstones 
or markers. Currently, our regulation limits applications by personal 
representatives to those who are specifically authorized by NOK or the 
decedent. This has also been the source of many denied applications. We 
propose to continue to allow personal representatives to apply, but we 
update the regulation by using an existing definition of the term 
contained in Sec.  38.600(b). Our intent is to allow an individual who 
is responsible for the burial or memorialization of a deceased 
individual to apply for a headstone or marker. The current definition 
in Sec.  38.600(b) requires the individual to identify himself or 
herself to an NCA cemetery director as ``the person responsible for 
making decisions concerning the interment of the remains of or 
memorialization of a deceased individual.'' In addition to referencing 
the definition in Sec.  38.600(b), we would update Sec.  38.600(b) by 
removing the requirement that the individual notify a cemetery director 
of their responsibilities toward the decedent. Our current processing 
of applications for headstones and markers, and burial benefits as 
well, generally involves contact first with the National Cemetery 
Scheduling Office or the Memorial Programs Service, located in NCA's 
central office. The removal of ``cemetery director'' from this 
definition reflects the current practice. Use of the revised definition 
of personal representative would allow for application for headstones 
and markers not only by family members, but also by individuals who 
have no familial relationship to the veteran but to whom the 
responsibility for final disposition of the remains or other related 
activities have fallen. For example, a close friend or a fellow veteran 
who served with the decedent may be called upon to make final 
arrangements for a veteran with no living family members. We want to 
make it possible for this individual to request memorialization of the 
veteran. Similarly, groups such as the Missing in America Project have 
made a significant contribution to finding the unclaimed remains of 
veterans and ensuring that they are provided with a final resting 
place. It is a logical step that the same individual who made the 
burial arrangements should be able to request memorialization as well. 
We note, however, that if these veterans are buried in a national 
cemetery, or in a state or tribal cemetery that has received a VA 
grant, no additional request for memorialization is necessary; a 
headstone or marker will be ordered as part of the burial process at 
all such cemeteries.
    A particular type of personal representative, and one that we 
provide for separately here, is a congressionally charted Veterans 
Service Organization (VSO). Because these organizations provide 
numerous activities in service to veterans and families of veterans, we 
would accept applications from a VSO for a headstone or marker to mark 
the grave of an eligible deceased individual.
    We also propose, in Sec.  38.600(a)(1)(iv), to accept applications 
from individuals who have authority under state or local laws to make 
final arrangements for decedents. As may be expected, states and 
localities have varying laws on this topic, and we cannot detail each 
variation. However, some examples include an individual who is 
appointed by a county within a state to arrange burial of homeless or 
indigent individuals, or someone to whom a court of competent 
jurisdiction has issued an order providing the individual with 
authority to arrange burial or memorialization. We also include in this 
group funeral home directors, crematory operators, or those responsible 
for the operation and maintenance of a cemetery, because their 
activities are regulated by state or local laws. Any individual who 
provides documentation of such lawful duty would be eligible to apply 
for a headstone or marker for an eligible deceased individual.
    In proposed Sec.  38.600(a)(1)(v), we would address applicants for 
burial headstones and markers for graves of veterans whose service 
ended prior to April 6, 1917, or on whose service prior to April 6, 
1917, the eligibility of another individual for memorialization is 
based. We chose to use April 6, 1917, because it is the date on which 
the United States entered World War I. We are aware that many 
individuals are interested in researching genealogy, either for 
themselves or others, or have broad interest in researching military 
history, including the burial of veterans. We know that many 
individuals have taken up the task of identifying burial places of 
veterans to obtain for them a lasting memorial to their service. We

[[Page 59178]]

applaud the efforts of these individuals and seek to recognize those 
efforts by allowing them to make an application if they identify an 
unmarked grave of an eligible individual. We believe that if the grave 
belongs to a veteran who served during World War I or later, it is more 
likely that a living family member (as defined in proposed paragraph 
(a)(1)) could be found. To ensure that family wishes are respected, we 
believe that an unrelated individual who identifies an unmarked grave 
of an eligible veteran who served during or after World War I should 
attempt to identify and contact family rather than making the 
application for a burial headstone or marker directly to VA.
    Memorial headstones and markers, under section 2306(b), are 
distinct from burial headstones and markers and are authorized to 
commemorate an eligible individual whose remains are unavailable for 
burial. When an individual dies and is buried, the gravesite provides a 
place for family to gather to mourn and remember their loved one. The 
burial headstone or marker, particularly in a national cemetery, offers 
the family a physical remembrance of the individual and of the 
contribution of a veteran to our country. When a family has no remains 
to bury, they have no similar place to mourn. The memorial marker 
provides such a location. We believe this is why Congress limited the 
availability of the memorial headstones and markers to locations in 
cemeteries. We are proposing to limit the definition of applicant for 
memorial headstones and markers to family members, with the same 
parameters for that term as discussed above, so that a memorial 
headstone or marker retains the same symbolism and purpose that a 
burial headstone would have. It is a commemoration of an individual, 
not the service of the individual. The nation honors the service of 
veterans in many ways; the memorial headstone or marker allows families 
to honor their loved one individually.
    We also propose to make several technical corrections to current 
regulations necessitated by this rulemaking. First, we would update the 
introductory paragraph in Sec.  38.600(b) to make the definitions that 
follow pertain to all of part 38. These definitions were placed in 
Sec.  38.600(b) as part of a rulemaking that promulgated Sec.  38.617 
and Sec.  38.618, which bar burial benefits for individuals who 
committed capital crimes. However, a few of the terms defined in Sec.  
38.600(b) are used elsewhere in part 38, including interment, 
memorialization, and notably, personal representative. As discussed 
above, we propose to use this term in Sec.  38.600(a). In addition, 
making these definitions apply to all of part 38 is a step we are 
making in anticipation of a general rewrite of part 38. We anticipate 
adding other definitions to this paragraph in future rulemakings 
designed to clarify our regulations and may consider relocation of the 
definitions in Sec.  38.600, including the revised definition of 
applicant.
    Second, as discussed above, we are proposing to remove the phrase 
``cemetery director'' from the definition of personal representative in 
Sec.  38.600(b), so that individuals may make themselves known to NCA 
in ways other than through the cemetery directors.
    Finally, we propose to remove the phrase ``a Government-furnished 
headstone or marker and, in appropriate instances,'' from Sec.  
38.632(b)(1). The current regulation applies to applicants for 
headstones and markers and emblems of belief. We propose to remove the 
indicated language because the new definition we introduce in this 
rulemaking would apply to headstones and markers, and we propose to 
leave intact, at least for the present time, the definition of 
applicant in Sec.  38.632 as it applies to emblems of belief (EOBs). We 
have received no negative feedback regarding use of this definition for 
EOBs. We may reconsider the definition in a future rulemaking as we 
rewrite part 38. We alert interested parties, however, that we are not 
accepting comments at this time on the definition of applicant as it 
pertains to EOBs. Such comments will be considered outside the scope of 
this rulemaking.

Effect of Rulemaking

    The Code of Federal Regulations, as proposed to be revised by this 
rulemaking, would represent the exclusive legal authority on this 
subject. No contrary rules or procedures would be authorized. All VA 
guidance would be read to conform with this proposed rulemaking if 
possible or, if not possible, such guidance would be superseded by this 
rulemaking.

Paperwork Reduction Act

    This proposed rule contains no provisions constituting a collection 
of information under the Paperwork Reduction Act of 1995 (44 U.S.C. 
3501-3521).

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. This proposed rule directly affects only individuals 
and would not directly affect small entities. Therefore, pursuant to 5 
U.S.C. 605(b), this rulemaking is exempt from the initial and final 
regulatory flexibility analysis requirements of 5 U.S.C. 603 and 604.

Executive Order 12866 and 13563

    Executive Orders 12866 and 13563 direct agencies to assess the 
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 effects, and other advantages; distributive impacts; 
and equity). Executive Order 13563 (Improving Regulation and Regulatory 
Review) emphasizes the importance of quantifying both costs and 
benefits, reducing costs, harmonizing rules, and promoting flexibility. 
Executive Order 12866 (Regulatory Planning and Review) defines a 
``significant regulatory action,'' requiring review by the Office of 
Management and Budget (OMB), unless OMB waives such review, 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 
taken or planned 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 this Executive Order.''
    The economic, interagency, budgetary, legal, and policy 
implications of this regulatory action have been examined, and it has 
been determined not to be a significant regulatory action under 
Executive Order 12866. VA's impact analysis can be found as a 
supporting document at http://www.regulations.gov, usually within 48 
hours after the rulemaking document is published. Additionally, a copy 
of the rulemaking and its impact analysis are available on VA's Web 
site at http://www1.va.gov/orpm, by following the link for ``VA 
Regulations Published.''

[[Page 59179]]

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 the expenditure by 
State, local, and tribal governments, in the aggregate, or by the 
private sector, of $100 million or more (adjusted annually for 
inflation) in any 1 year. This proposed rule would have no such effect 
on State, local, and tribal governments, or on the private sector.

Catalog of Federal Domestic Assistance

    There are no Catalog of Federal Domestic Assistance numbers and 
titles for the programs affected by this document.

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. Jose D. 
Riojas, Chief of Staff, Department of Veterans Affairs, approved this 
document on September 18, 2014, for publication.

List of Subjects in 38 CFR Part 38

    Administrative practice and procedure, Cemeteries, Claims, Crime, 
Veterans.

    Dated: September 26, 2014.
William F. Russo,
Acting Director, Office of Regulation Policy & Management, Office of 
the General Counsel, U.S. Department of Veterans Affairs.

    For the reasons set out in the preamble, VA proposes to amend 38 
CFR part 38 as follows:

PART 38--NATIONAL CEMETERIES OF THE DEPARTMENT OF VETERANS AFFAIRS

0
1. The authority citation for part 38 continues to read as follows:

    Authority: 38 U.S.C. 107, 501, 512, 2306, 2402, 2403, 2404, 
2408, 2411, 7105.

0
2. Amend Sec.  38.600 by:
0
a. Adding paragraph (a).
0
b. Removing ``Sec. Sec.  38.617 and 38.618'' and adding in its place 
``part 38'' in paragraph (b) introductory text.
0
c. Removing ``cemetery director'' from the definition of ``personal 
representative'' in paragraph (b).
    The addition reads as follows:


Sec.  38.600  Definitions.

    (a)(1) Applicant defined--burial headstones and markers. An 
applicant for a headstone or marker that will mark the gravesite or 
burial site of an eligible deceased individual may be:
    (i) A decedent's family member, which includes the decedent's 
spouse; a child, parent, or sibling of the decedent, whether 
biological, adopted, or step relation; and any lineal or collateral 
descendant of the decedent;
    (ii) A personal representative, as defined in paragraph (b) of this 
section;
    (iii) A representative of a Congressionally-chartered Veterans 
Service Organization;
    (iv) Any individual who is responsible, under the laws of the 
relevant state or locality, for the disposition of the unclaimed 
remains of the decedent or for other matters relating to the interment 
or memorialization of the decedent; or
    (v) Any individual, if the dates of service of the veteran to be 
memorialized, or on whose service the eligibility of another individual 
for memorialization is based, ended prior to April 6, 1917.
    (2) Applicant defined--memorial headstones and markers. An 
applicant for a memorial headstone or marker to commemorate an eligible 
individual must be a member of the decedent's family, which includes 
the decedent's spouse; a child, parent, or sibling of the decedent, 
whether biological, adopted, or step relation; and any lineal or 
collateral descendant of the decedent.
* * * * *


Sec.  38.632  [Amended]

0
3. Amend Sec.  38.632(b)(1) by removing ``a Government-furnished 
headstone or marker and, in appropriate instances,''.

[FR Doc. 2014-23330 Filed 9-30-14; 8:45 am]
BILLING CODE 8320-01-P