M21-1, Part I, Chapter 1 - Veterans Affairs
DEPARTMENT OF
VETERANS AFFAIRS
M21-1
ADJUDICATION PROCEDURES
Compensation and Pension
Dependency and Indemnity Compensation
Accrued Amounts
Burial Allowance
Special Benefits
Veterans Benefits Administration
Washington, DC 20420
PROLOGUE
"to care for him who shall have borne the
battle and for his widow and his orphan...."
Abraham Lincoln
Abraham Lincoln emphasized the debt owed to America's veterans and our citizens have honored that debt by creating the Department of Veterans Affairs whose responsibility it is to place into deeds those words.
Veterans Benefits Administration employees have a unique opportunity to serve America's veterans. Our mission is to see that our country's veterans and their dependents receive the benefits they so richly deserve. We are fortunate to have the opportunity to help repay those who so courageously and unselfishly served their country.
In performing our duties we must be constantly aware of the special status of those we serve. They responded willingly when called to duty to defend the people of the United States, risking their lives and limbs. We must respond just as willingly to their needs and those of their families.
This manual provides procedures for administering compensation and pension benefits. While these procedures are important to our accomplishing our task, VA employees must never lose sight of the humanity of those people we serve. We must commit ourselves to seeing that they are treated sympathetically and with respect and dignity.
As you go about your daily duties, keep in mind Abraham Lincoln's pledge and our commitment.
J. Gary Hickman
FOREWORD
This manual provides procedures for the adjudication of claims for compensation, pension, dependency and indemnity compensation, accrued benefits and burial allowance. Part I, Introduction, presents an overview of the history and organization of the Department of Veterans Affairs (VA). It also describes the organization, positions and responsibilities of an adjudication division. Part II, Clerical Procedures, outlines clerical responsibilities and actions. Part III, Authorization and Clerical Procedures, covers claims development, evidence requests and those areas where clerical and claims examiner functions overlap.
Part IV, Authorization Procedures, pertains to the responsibilities that fall within the realm of the authorization activity, such as award procedures, administrative decisions and benefit authorization. Part V, Computer Processing, explains the concepts of award processing on our computer systems. It gives examples and instructions for each type of transaction processed in adjudication.
Part VI, Rating Board Procedures, covers the responsibilities of the rating activity. It contains instructions for specific types of ratings, explanations of special procedures for certain medical conditions and the overall descriptions of the duties of the rating specialist.
Material is divided into numbered chapters and chapter titles are listed in the table of contents. Specific subjects for each Part are found in the index included with that Part. Chapters are subdivided into subchapters where appropriate. Paragraphs are given a decimal number starting with the digit 1. The digit or digits to the left of the decimal indicate(s) the chapter number, and the digits to the right of the decimal indicate a main paragraph. Pages are numbered from 1 within each chapter and subchapter while paragraphs are numbered from 1 within each chapter.
Revisions will generally be issued in increments no smaller than a subchapter. If a change is needed, the entire subchapter, chapter or part will usually be replaced. Changes will carry the date and number of the change.
Procedural changes requiring immediate implementation may be E-mailed in letter format, over the signature of the Director, Compensation and Pension Service. Those changes will be incorporated into the manual as soon thereafter as possible.
Deviation from any of the prescribed procedures without prior authorization of the Service Director is prohibited.
CONTENTS
PART I. INTRODUCTION
CHAPTER
1. INTRODUCTION TO THE DEPARTMENT OF VETERANS AFFAIRS
2. THE ADJUDICATION DIVISION
3. LAWS - REGULATIONS - DIRECTIVES - RECORDS
CONSOLIDATED INDEX
APPENDIXES
A. DISABILITY AND DEATH RATING CODE PROCEDURES
B. RATE TABLES AND CODES
C. TABLE AND CODES
RESCISSIONS
1. Manuals
M8-1 Revised
M8-2, dated December 15, 1955
M8-3, Revised, dated August 20, 1954
M8-5, Revised, dated October 1, 1954
M8-8 Revised, dated November 1, 1954
2. Interim Issues
II 20-69-2
II 20-69-7
II 20-70-2, paragraph C-2
II 20-70-12
II 20-72-4
II 20-72-7
3. Circulars
Circular 20-66-36, Appendix B and changes 3 through 10 Circular 20-72-54
Circular 20-67-77 and erratum, Appendixes A, B, and Circular 20-72-71
erratum and Appendix C Circular 20-72-73 and Change 1
Circular 20-68-79 Circular 20-72-78
Circular 20-68-106 Circular 20-72-79
Circular 20-68-108 Circular 20-72-91
Circular 20-69-118 Circular 20-72-92 and Change 1
Circular 20-69-16 Circular 20-72-96
Circular 20-69-40 Circular 20-73-45 and Appendix A
Circular 20-69-42 Circular 20-73-79
Circular 20-69-48 Circular 20-73-84
Circular 20-69-53 Circular 20-73-113 and Appendixes and Change 1
Circular 20-60-59 Circular 20-74-16
Circular 20-69-72 Circular 20-74-20
Circular 20-69-81 Circular 20-74-36
Circular 20-70-14 Circular 20-74-45
Circular 20-70-40 Circular 20-74-56
Circular 20-70-46 Circular 20-74-62 and Appendixes
Circular 20-70-51 Circular 20-74-84, Pars. 1 through 4 and
Circular 20-70-57 Changes 2 and 3
Circular 20-70-71 Circular 20-74-95
Circular 20-70-72 Circular 20-75-5 and Appendixes A and B and
Circular 20-70-73 Change 1
Circular 20-70-74 Circular 20-75-21
Circular 20-70-86 Circular 20-75-39
Circular 20-70-88 Circular 20-75-56
Circular 20-70-90 Circular 20-75-75 and Changes 1 and 2
Circular 20-70-92 Circular 20-75-83
Circular 20-71-12 Circular 20-75-85 and Appendixes
Circular 20-71-29 Circular 20-75-108
Circular 20-71-31 Circular 20-76-2 and Appendixes
Circular 20-71-40 Circular 20-76-81 and errata, Exhibits and Appendixes
Circular 20-71-44 Circular 20-76-93
Circular 20-71-59 Circular 20-76-102 and Appendixes and Change 1
Circular 20-71-93 Circular 20-77-7
Circular 20-71-97 Circular 20-77-18 and Exhibits A and B
Circular 20-71-114 Circular 20-77-39
Circular 20-72-1 Circular 20-77-102, Change 1 and Appendix A
Circular 20-72-6 Paragraphs 1,2,3,4,6,7,8,9,12,13,14 and
Circular 20-72-21 Appendixes B,C, and D of
Circular 20-72-25 Circular 20-78-18
Circular 20-72-33 Circular 20-82-6
Circular 20-82-39 Circular 21-81-1
Circular 20-83-20,Revised paragraphs 1 through 4 and Circular 21-81-10 and Change 2
6 through 9 Circular 21-81-14
Circular 20-85-18 Revised and Changes 1 through 5 Circular 21-82-11 and Change 1
Circular 21-66-24 Circular 21-82-17, Paragraph 10 of
Circular 21-66-35 Circular 21-83-16 and Change 1
Circular 21-69-2 Circular 21-83-19, Paragraphs 1,2,3,5, of
Circular 21-69-6 Circular 21-84-5 and
Circular 21-69-13 Circular 21-84-7 and Change 1
Circular 21-69-21 Circular 21-84-9 Revised and Change 1
Circular 21-70-2 Circular 21-85-2
Circular 21-70-17 Circular 21-85-6 Revised and Changes 1 through 6
Circular 21-78-5 Circular 21-85-7 Revised
Circular 21-78-10,Changes 1 and 2 and Appendix A Circular 21-85-10
Circular 21-79-5 Revised Circular 21-86-6
Circular 21-79-6 Circular 21-86-10 and Change 1
Circular 21-79-13 and Change 1 Circular 21-87-13
Circular 21-80-1 Circular 21-87-17 and Change 1
Circular 21-80-4 and Changes 1 and 2 Circular 21-88-6
Circular 20-89-5
Circular 21-86-9
4. Transmittal Letters (M21-1). (Keep all Transmittal Letters.) All transmittal Letters A through V and errata have been rescinded.
5. Changes (M21-1). (Keep All Transmittal Sheets.)
Changes (and errata) 1 through 112, 114, 115 and errata, 116 through 124, 126 through 131, 134 through 136, 139, 140, 143, 145 through 151, 153, 154, erratum to 155, 156, 158 through 162, 163, 164, 165, 167, 168, and erratum, 169 through 172, 175, 176, 178, erratum to change 179, 180, 181, 183, 184, 187 through 192, 194, 195, 196 and errata, 197, through 199, 201, 203, 204, 206, 208, 210, 213, 214, 217, 219 through 222, 224, 226, 229, 230 and erratum 233, 234, 236, 238, 242 and errata, 243 and erratum, 245, 246, 248, 250, 251, 252 and erratum, 254, 255, 257, 258 and erratum, 259, 260, errata to 266, 267 and erratum, 270, 271, 273, 274, 277, 278, 280, 281, 284, 285, 287, 289, 293, 295, 296, 298, 300, 305, 307 through 312, 315, 316, 317, 319, 321, 331, 335, 338, 340, 345, 352, 355, 357, 360 and erratum, 374, 376, 384, (per C-480) 390, errata to 430, 438, 482.
CONTENTS
CHAPTER
SECTION 1. GENERAL
1. GENERAL
2. JURISDICTION AND TRANSFER
3. POWERS OF ATTORNEY
4. AUTHORIZATION RESPONSIBILITY AND CLAIMS PROCESSING
5. CORRESPONDENCE
6. REQUESTS FOR SERVICE RECORDS
7. EVIDENCE - GENERAL
8. RELATIONSHIP - MARITAL AND PARENTAL
9. INCOME
10. CHILDREN - RELATIONSHIP AND SCHOOL ATTENDANCE
11. PERMANENT INCAPACITY FOR SELF-SUPPORT
12. FIDUCIARY RELATIONSHIP
13. CERTIFICATES FOR SPECIAL PURPOSES AND INFORMATION REQUESTS TO OR
FROM OTHER FEDERAL AND STATE AGENCIES.
14. SPECIAL DETERMINATIONS
15. AWARD PROCEDURES - GENERAL
16. DISALLOWANCES
17. DISCONTINUANCE - SUSPENSION - RESUMPTION - CHANGE OF NAME, ADDRESS
OR FIDUCIARY
18. APPEALS
19. ADMINISTRATIVE REVIEWS AND OTHER SUBMISSIONS TO CENTRAL OFFICE
20. PENAL AND FORFEITURE DISCONTINUANCE PROVISIONS
SECTION 2. AUTHORIZATION - LIVING VETERANS
21. CLAIMS APPLICATION AND INITIAL ACTIONS
22. DEVELOPMENT OF ORIGINAL DISABILITY CLAIMS
23. DISABILITY AWARDS
24. SPECIFIC DISABILITY AWARDS AND RELATED ACTIONS
25. HOSPITALIZATION OF COMPETENT VETERANS
26. APPORTIONMENT OF DISABILITY AWARDS
27. RECONSIDERATION OF CLAIMS BASED ON ADDITIONAL EVIDENCE
28. INCOMPETENT VETERANS
29. ELECTIONS, WAIVERS AND RECOUPMENTS
30. ELIGIBILITY REQUESTS AND DETERMINATIONS FOR SPECIAL PURPOSES
SECTION 3. AUTHORIZATION - DECEASED VETERAN
31. INITIAL ACTIONS ON DEATH OF VETERAN
32. CLAIMS APPLICATIONS AND DEVELOPMENT
33. DEATH DUE TO HOSPITALIZATION, MEDICAL OR SURGICAL TREATMENT,
EXAMINATION OR TRAINING
34. SUBMISSION FOR RATING DECISIONS
35. PHILIPPINE CASES
36. CONTESTED CLAIMS
37. ACCRUED BENEFITS
38. DEATH AWARDS
39. SPECIFIC DEATH AWARDS AND RELATED ACTIONS
40. SPECIAL ALLOWANCE - 38 U.S.C. 412(a)
41. AWARDS INVOLVING OTHER DEPARTMENTS OR AGENCIES
42. ELECTIONS IN DEATH CASES
43. BURIAL/PLOT-INTERMENT ALLOWANCE
44. SERVICEMEN'S INDEMNITY
SECTION 4. RATING
45. ORGANIZATION AND FUNCTIONS OF THE RATING BOARD
46. RATING DECISIONS
47. MEMORANDUM RATING DECISIONS
48. SEVERANCE OF SERVICE CONNECTION
49. PREPARATION OF THE RATING DECISION
50. RATING PROCEDURE RELATIVE TO SPECIFIC ISSUES
51. THE DENTAL RATING
52. REDUCTION RATINGS
53. PRESTABILIZATION, HOSPITALIZATION EXCEEDING 21 DAYS AND TEMPORARY
SURGICAL RATINGS.
54. INCOMPETENCY RATINGS
55. PHYSICAL EXAMINATIONS AND SOCIAL SURVEYS
56. DEATH RATINGS
APPENDIX
A. DISABILITY AND DEATH RATING CODE PROCEDURES
B. RATE TABLES
C. TABLES AND CODES
CHAPTER 1. INTRODUCTION TO THE DEPARTMENT OF VETERANS AFFAIRS
CONTENTS
PARAGRAPH PAGE
SUBCHAPTER I. OVERVIEW OF VA
1.01 History 1-I-1
1.02 Mission 1-I-2
1.03 Organization and Relationships 1-I-2
SUBCHAPTER II. VBA PROGRAM ELEMENTS
1.04 Veterans Benefits Administration. 1-II-1
1.05 VA Central Office (VACO) 1-II-2
1.06 VA Regional Office (VARO). 1-II-2
SUBCHAPTER III. COMPENSATION AND PENSION HISTORY
1.07 Compensation 1-III-1
1.08 Pension 1-III-2
CHAPTER 1. INTRODUCTION TO THE DEPARTMENT OF VETERANS AFFAIRS
SUBCHAPTER I. OVERVIEW OF VA
1.01 HISTORY
a. Bureau of Pensions. The first U.S. Congress passed a law in 1789 to provide pensions to disabled veterans and their dependents. This law was administered by Congress. The workload became so great that Congress transferred the responsibility to the Secretary of War in 1818. In 1833, the program was assigned to the Bureau of Pensions. In 1849, this activity moved from the War Department to the Department of the Interior.
b. National Home for Disabled Volunteer Soldiers. After the Civil War, Congress established the National Home for Disabled Volunteer Soldiers. This organization provided domiciliary, hospital and medical care for indigent and disabled veterans of the Civil War, Indian Wars, Spanish-American War, Mexican War and discharged regular members of the armed forces. During the 19th century, access to a national home was considered to be admission to a place of residence, not a hospital. The level of medical care was elevated to that of an accredited hospital when absorbed by VA in 1930.
c. Public Health Service. The Public Health Service (PHS) provided physical examinations to veterans applying for compensation as well as medical and hospital care. Those PHS hospitals caring for veterans were assigned to the Veterans' Bureau in 1922.
d. Bureau of War Risk Insurance. The administration of veterans benefits was further complicated during and after World War I. Congress created the Bureau of War Risk Insurance under the jurisdiction of the Treasury Department. Its mission was to insure U.S. ships and cargoes against war risks. When America entered WWI, Congress provided new benefits, including disability compensation, insurance, a family allotment program and vocational rehabilitation. All but vocational rehabilitation were administered by the Bureau of War Risk Insurance. This agency was merged into the Veterans' Bureau in 1921.
e. Federal Board of Vocational Education. The Federal Board of Vocational Education was charged with providing vocational rehabilitation to persons having a disability incurred or aggravated while a member of the armed forces.
f. Veterans' Bureau. The U.S. Veterans' Bureau was established in 1921 to consolidate the powers, functions and duties of the agencies which administered veterans' benefits, including some phases of medical care.
g. Veterans Administration. The Veterans Administration was established in 1930 when Congress authorized the President to "consolidate and coordinate government activities affecting war veterans." The three component agencies, the Veterans' Bureau, the Bureau of Pensions of the Department of the Interior and the National Home for Disabled Volunteer Soldiers, became bureaus within the VA. In addition to established duties, the new agency had to deal with the administration of recently increased pension for Spanish-American War veterans, disability allowances for World War I veterans and the administration of nearly three million loans under the World War I Adjusted Compensation Act. The VA experienced enormous growth near the end of World War II with the return of some 16 million veterans and the large number of new benefits enacted by Congress for veterans of the war. In 1946, the Department of Medicine and Surgery was established. In 1953 the Department of Veterans Benefits (DVB), the predecessor of the current Veterans Benefits Administration, was created to administer the GI Bill and VA's huge compensation and pension program. The VA insurance program became part of DVB in 1963. The National Cemetery System was transferred to the VA in 1973 from the Department of the Army.
h. Cabinet Status. On March 15, 1989, the Veterans Administration became the Department of Veterans Affairs (VA), the 14th department in the President's Cabinet.
1.02 MISSION
The mission of VA is to serve America's veterans and their families as their principal advocate in ensuring that they receive the care, support, and recognition they have earned in service to this nation.
1.03 ORGANIZATION AND RELATIONSHIPS
a. Functional Areas. Many separate functional areas make up the Department of Veterans Affairs (VA). Among the major areas are:
(1) Office of the Secretary. The Secretary is appointed by the President, by and with advice and consent of the Senate. The Secretary is charged with the overall responsibility of running the second largest department in the Federal Government.
(2) Office of the General Counsel (GC). The General Counsel is appointed by the President, by and with the advice and consent of the Senate. The General Counsel serves as the chief legal officer on all matters of law, litigation, and legislation. The Office of the General Counsel interprets all laws pertaining to the Department and provides necessary legal services.
(3) Veterans Benefits Administration. The Veterans Benefits Administration (VBA) provides an integrated program of veterans' benefits. The major benefits include compensation, pension, burial benefits, rehabilitation assistance, education and training assistance, home loan guarantees and insurance coverage. It is led by the Under Secretary for Benefits who is appointed by the President, by and with the advice and consent of the Senate.
(4) Veterans Health Administration. The Veterans Health Administration (VHA) operates and maintains the nationwide network of VA medical centers, research centers, and information resource centers. VHA is committed to serve the veteran population by providing inpatient and outpatient care, ranging from acute inpatient to chronic care, including geriatric evaluation, nursing home, domiciliary, home health, adult day, residential and respite care programs. It is led by the Under Secretary for Health who is appointed by the President, by and with the advice and consent of the Senate.
(5) National Cemetery System. The primary mission of the National Cemetery System (NCS) is to serve veterans by meeting their final needs with compassion and dignity. NCS provides burial and gravesite services and cares for all national cemeteries except Arlington, which continues to be maintained by the Department of the Army.
(6) Board of Veterans' Appeals (BVA). All questions in any area falling under section 511 of Title 38 U.S.C., which are subject to a decision by the Secretary of Veterans Affairs, may also be appealed to the Secretary. The final decisions on these appeals will be made by the BVA after providing the claimant an opportunity for a hearing. The BVA consists of a chairman, vice chairman and an appropriate number of members as is necessary to conduct hearings and timely dispose of appeals before the BVA. The Chairman is appointed by the President, by and with the advice and consent of the Senate, for a period of 6 years. The other members, including the Vice Chairman, are appointed by the Secretary of Veterans Affairs, with the approval of the President, based on the recommendations of the Chairman.
(7) Office of the Inspector General (OIG). The Inspector General is responsible for:
(a) Conducting and supervising audits and investigations.
(b) Recommending policies designed to promote economy and efficiency in the administration of, and to prevent and detect fraud and abuse in, the programs and operations of the Department.
(c) Keeping the Secretary and the Congress fully informed about problems and deficiencies in VA programs and operations and the need for corrective action.
(8) National Service Organizations Liaison. National service organizations recognized by the Secretary of Veterans Affairs represent the interests of all veterans but particularly those whom they represent individually. Service organizations are not a part of VA, but many occupy space in regional offices (furnished by VA on a space available basis) where they have access to claims files for those individuals for whom they hold power of attorney.
(9) Other Elements. In addition to the sections listed above, VA has a Board of Contract Appeals and Office of Small and Disadvantaged Business Utilization. These divisions report directly to the Secretary.
b. United States Court of Veterans Appeals (The Court). The Court was created by an act of Congress on November 18, 1988. The Court is located in Washington, DC, but is a national court and may sit anywhere in the United States that it deems appropriate. Although not a part of VA, the Court has exclusive jurisdiction to review BVA decisions. Only the claimant may seek review of a BVA decision. The Court is empowered to affirm, modify, reverse or remand a decision of the Board as appropriate. The law provides for a limited review of the Court's judgments by the United States Court of Appeals for the Federal Circuit.
SUBCHAPTER II. VBA PROGRAM ELEMENTS
1.04 VETERANS BENEFITS ADMINISTRATION
a. VBA administers a wide variety of benefit programs authorized by the Congress of the United States. VBA is headed by the Under Secretary for Benefits who is appointed by the President, by and with the advice and consent of the Senate.
b. VBA is composed of many functional areas usually referred to as services. Among those which deal directly with our claimants and benefits are:
(1) Compensation and Pension Service. The Compensation and Pension (C&P) Service is charged with the administration of the compensation and pension programs. The programs fall into eight broad categories:
(a) Disability Compensation (38 U.S.C., Ch. 11);
(b) Dependency and Indemnity Compensation (DIC) (38 U.S.C., ch. 13) and Death Compensation (38 U.S.C., ch. 11);
(c) Disability Pension (38 U.S.C., ch. 15);
(d) Death Pension (38 U.S.C., ch. 15);
(e) Burial Benefits (38 U.S.C., ch. 23);
(f) Automobile Allowance/Adaptive Equipment (38 U.S.C., ch 39);
(g) Clothing Allowance (38 U.S.C., ch 17); and
(h) Specially Adapted Housing (38 U.S.C., ch 21).
(2) Vocational Rehabilitation Service. The Vocational Rehabilitation Service administers programs carried out by vocational rehabilitation and counseling (VR&C) divisions at regional offices. These programs provide services and assistance for disabled veterans to help them achieve maximum independence in daily living and, to the extent feasible, prepare for, obtain, and maintain suitable employment. In addition, counseling services are provided to veteran participants of other programs.
(3) Education Service. The Education Service administers a number of programs for veterans, servicepersons, reservists and eligible dependents seeking assistance for education or training.
(4) Loan Guaranty Service. The Loan Guaranty Service provides housing credit assistance. The mortgage credit needs of veterans and servicepersons are satisfied by private capital on more liberal terms than are generally available to nonveterans, without the assumption of undue risks by the Government. The assistance given is primarily the use of the Government's guaranty on loans in lieu of the substantial down payment and other investment safeguards applicable to conventional mortgage transactions.
(5) Veterans Assistance Service. The Veterans Assistance Service (VAS) provides national program direction to the veterans services divisions. Through its outreach programs, VAS encourages all eligible veterans and their dependents to apply for the benefits and services available. VAS also facilitates economic assistance for needy veterans and their spouses/surviving spouses to aid their readjustment to civilian life. In addition, VAS has a longstanding commitment to reach other veteran groups in need of special assistance such as the homeless, sick and elderly.
(6) Insurance Service. VA administers a variety of life insurance programs.
c. There are other divisions and services that make up VBA, providing the support necessary to the organization. These include a finance staff, a budget staff, an administrative support staff, a human resources service, Information Resources Management and others.
1.05 VA CENTRAL OFFICE (VACO)
VACO or "Central Office" is a collective term for the Washington headquarters staff of the Department of Veterans Affairs. This staff is broken down by service and organization. Responsibilities are assigned for all areas within the Department. The Compensation and Pension staff is organized as follows:
(1) Office of the Director (21). The Director is responsible for the control and direction of the Compensation and Pension programs for VA.
(2) Policy and Planning (211). The policy and planning staff is concerned with recommending VA policy on specific issues of national importance such as post traumatic stress disorder (PTSD), agent orange and radiation. They draft regulations for the service, specifically those appearing in 38 Code of Federal Regulations (CFR), parts 3 (Adjudication) and 4 (Rating Schedule). They issue advisory opinions on specific issues raised by field stations.
(3) Program Management (212). This staff handles material which includes questions dealing with correspondence on individual veteran or beneficiary inquiries. They are involved with matters relating to CVA, including assessing the impact of CVA decisions, expediting remands, assisting in the preparation of briefs and legal memoranda and responding to issues raised on the Judicial Review Hotline. This staff also conducts compensation and pension training for new adjudicators and refresher training for others involved in the compensation and pension program.
(4) Adjudication Procedures (213). This section formulates and recommends policies and plans for implementing procedures which cover all aspects of Compensation and Pension Service programs. They write manuals, circulars and other procedural directives. They are responsible for implementing changes and modifications to the Benefits Delivery Network (BDN) and are involved in the development of new computer applications. They review suggestions involving the program and provide technical assistance to regional office personnel, other operating elements within VA and government agencies. This staff develops and modifies compensation and pension forms.
(5) Field Operations (214). Field operations monitors regional office adjudication divisions' efforts to process claims in compliance with program requirements. They perform semi-annual analyses of each adjudication division. These analyses assess timeliness, quality, productivity and division management. They also do periodic on-site surveys. They establish work rate credit for claims processing. They monitor data in DOOR (Distribution of Operational Resources) and are responsible for most of M21-4. They review selected files and evaluate each station's quality. Data from other reports and reviews are gathered to show trends of compliance and results of changes in laws and regulations. The information is used to prepare quarterly training letters for field stations. They also formulate and justify the Compensation and Pension Service's budget, including projection of benefit expenditures and general operating expenses.
1.06 VA REGIONAL OFFICE (VARO)
A regional office is composed of divisions which carry out the functions of VBA. At some locations the support functions, such as human resources, may be shared with a VA medical center. In other areas, certain functions such as Loan Guaranty are consolidated with other offices. Generally, a regional office includes:
a. Adjudication Division (21)
b. Administrative Division (23)
c. Finance Division (24)
d. Support Services Division (2324). In some offices this division combines the duties of the administrative and finance divisions.
e. Human Resources Division (25)
f. Loan Guaranty Division (26)
g. Veterans Services Division (27)
h. Vocational Rehabilitation and Counseling Division (28)
SUBCHAPTER III. COMPENSATION AND PENSION HISTORY
1.07 COMPENSATION
a. Compensation. Compensation is a monthly payment made to a veteran because of a disability incurred in or aggravated during military service. In death cases, it is called dependency and indemnity compensation (DIC) and it is a monthly payment to the deceased veteran's eligible survivors based on death in service or death caused by a service-connected disability. A surviving spouse of a veteran who died before January 1, 1957, as the result of injury or disease incurred in or aggravated by active service, in line of duty, was entitled to death compensation. These surviving spouses were and are permitted to elect DIC in lieu of death compensation. See part IV, paragraph 20.48. In virtually all cases, this election would be beneficial to the surviving spouse. However, some surviving spouses have not elected DIC and are still receiving death compensation.
b. Colonial. In 1636, the Plymouth Colony enacted into law a provision that "if any man shalbee sent forth as a souldier and shall return maimed hee shalbee maintained competently by the Collonie during his life." Most of the colonies provided some kind of compensation for their disabled soldiers with the intention of satisfying justice and encouraging other men to volunteer their services.
c. Early Federal. The first national "pension" law (1776) promised half pay for life, or during disability, to every officer, soldier, or sailor losing a limb or being so disabled as to render him incapable of earning a livelihood. For enlisted members, this amounted to $5 monthly for total disability. For partial disability, the amount was proportioned. In 1802, widows and orphans of officers were granted half pay for 5 years. During the budget surplus following the war of 1812, nonservice-connected pension was provided but became so intermingled with service-connected compensation that it was impossible to distinguish between them.
d. Civil War
(1) The start of the Civil War found the country without adequate provisions for its disabled veterans. The Commissioner of Pensions asked for explicit and detailed legislation. The General Law System, passed in 1862, applied to military and naval service on and after March 4, 1861. It provided compensation for officers and enlisted men in the Army, Navy, and Marine Corps including regulars, volunteers, or militia. It provided compensation for wound, injury or disease directly as a consequence of service in U.S. forces and in line of duty. Payment was based on military rank and provided for total or partial disability. Examinations were provided and the physician was required to state his opinion regarding the degree of disability (one-fourth, one-half, total, etc.) which determined the amount payable. There was no uniformity in decisions because of a lack of instructions.
(2) The Consolidation Act (1873) set rates for disabilities, granting total disability if the veteran could not perform manual labor. A statutory rate was established for deafness. The Commissioner of Pensions was given authority to establish rates for disabilities not specified by law. The Civil War Veterans Act (1890) required that veterans be unable to perform crude manual labor and provided "arbitrary" ratings somewhat akin to average impairment so a veteran could be employed at a lighter task without losing "pension."
e. World War I
(1) The War Risk Insurance Act (1917) designated service-connected benefits as "compensation" to indicate indemnity for loss and eliminated rank as a factor. The system was based on the developing workmen's compensation system. Extra allowances were provided for specified dependents including wife, children and dependent mother. The Bureau of War Risk Insurance set up a schedule for rating disabilities based on average impairment of earning capacity caused by specific injuries. Payment was not reduced or terminated on entering the labor force. In this way, the man who overcame his handicap would not be penalized.
(2) Legislation enacted in 1919 established rates for temporary partial and temporary total disabilities and permanent partial and permanent total disabilities. Rates were based on a percentage of the compensation payable for a total disability. The early schedule did not contain diagnostic codes, had few descriptive criteria and no instructions on how awards should be made in cases of multiple disabilities. The 1921 version was more sophisticated and contained instructions, definitions, policies and procedural guidelines for the bureau.
f. World War Veterans Act of 1924. This law provided for the adoption of a schedule for rating reductions in earning capacity from injuries, based on average impairment of earning capacity resulting from injuries in civilian occupations similar to the disabled veteran's occupation at the time of enlistment. This was a departure from the prior "average impairment." There were three tables -- an occupational rating, disability rating and combined rating. Disability was ascertained and considered with regard to the injury variants for the occupations. For example, the variant for fingers would be higher for a typist or pianist than for most occupations. Problems arose because many WWI veterans had entered service never having been employed and could only be classified as students. Disabilities were rated and compensated in multiples of one percent, but no payment was made for less than 10 percent.
g. Economy Period
(1) From 1919 to 1933 a number of liberalizations, including extension of the presumptive period for certain disabilities, establishment of statutory awards and a relaxed interpretation of willful misconduct, were incorporated in the law. The National Economy Act (1933) repealed all laws providing benefits for veterans with service after the Civil War. It eliminated the term "compensation" and designated all benefits as "pension." It eliminated many presumptions of service connection such as those for tuberculosis and psychiatric disorders. It reduced the rate of compensation for diseases.
(2) There was a storm of protest and Congress found that reductions were greater than anticipated and, therefore, the act was amended before it went into effect. Special boards were created to review cases. In 1934, veterans removed under prior reviews were restored to the compensation rolls if they had served before the end of WWI. This action also prohibited reductions in compensation. By 1935, most benefits in effect before 1933 had been restored.
h. Current Rating Schedule
(1) The 1933 Rating Schedule was developed under broad authority given to the President to revise veterans' benefits. It abandoned the occupation variants and reverted to the average-man concept. All reasonable doubt would be resolved in favor of the claimant. It required evidence of actual impairment of function affecting industrial adjustment, and correlated this with clinical and laboratory findings.
(2) The 1945 schedule reflected society's reduced reliance on manual labor and had a greater appreciation of the effect of mental disability. It was more detailed than the 1933 schedule. There was a clear policy statement regarding ratings for hospitalization and convalescent periods. The 1945 schedule has remained in effect since then with changes made as the need arises and with the assistance of the Veterans Health Administration.
(3) The present legal authority in 38 U.S.C. 1155 requires the Secretary "to adopt and apply a schedule of rating of reductions in earning capacity from specific injuries or combinations of injuries. The ratings shall be based as far as is practicable, upon the average impairments of earning capacity resulting from such injuries in civil occupations." It further provides that the Secretary "shall from time to time readjust this schedule of ratings in accordance with experience." It is left to the Secretary to determine what is meant by "average impairments of earning capacity."
(4) Until July 1, 1973, compensation benefit amounts for disabilities incurred in wartime eras were higher than for those incurred in peacetime. Public Law 92-328 equalized the rates regardless of the period in which the compensable disability was incurred.
1.08 PENSION
a. Revolutionary through Spanish-American War. During this period, very little effort was made to help veterans readjust to civilian life. No attention was given to medical care or rehabilitation. Pension was an afterthought intended to aid aged and disabled veterans and their survivors. These pension laws were enacted many years after the specific war and the veteran population was generally older than the average population. These older veterans earned less and social assistance programs such as Social Security, workers' compensation and unemployment compensation were not available. Need was inherent in these early pension laws. An exception to this is pension paid to veterans and widows based on service in the Spanish-American War. Beyond the fact that the veteran served a specific period of time during the Spanish-American War, no other condition applied to the receipt of pension for a veteran or surviving spouse. Pensions were and still are intended to relieve distress from disability and destitution among the aging population of veterans and surviving spouses.
b. World War I
(1) As the U.S. entered WWI, Congress realized millions of veterans would be returning from the war, many of whom would need some sort of aid. A new system of veterans' benefits was enacted into law October 6, 1917, as an amendment to the War Risk Insurance Act. It provided five classes of benefits: (1) support of the dependents of members of the Armed Forces during service; (2) low cost insurance on a voluntary basis; (3) compensation for the war disabled and the dependents of the dead; (4) vocational rehabilitation for the disabled in need of such training; and (5) medical and hospital care. This act did not provide for pension for veterans with nonservice-connected pensions.
(2) From 1925 to 1930, Congress was besieged with petitions and demands to aid those who could not establish service connection for their disabilities. A bill was passed which provided a pension for WWI veterans who, because of virtually no income, were exempt from federal income taxation for the year preceding the filing of their application. The rates varied depending on their evaluation as 25, 50, 75 percent or totally disabled.
c. The 1930's
(1) Through the Economy Act, Congress amended the prior pension law to pay ex-servicepersons permanently and totally disabled from nonservice-connected causes. A single veteran's income limit was $1,000 annually and a married couple was limited to $2,500. The President issued 41 executive orders dealing with veterans' affairs. The regulations resulting from these executive orders formed the basis for benefits provided for veterans of WWII, Korea, Vietnam and the Persian Gulf.
(2) The first bill to provide pension for widows and children of veterans who died of nonservice-connected causes was enacted in 1934. It provided for payment of compensation to a surviving spouse, child or children of deceased WWI veterans who, while receiving or entitled to receive pension, compensation or retirement pay for a 30-percent service-connected disability, died from nonservice-connected causes, not the result of his or her own misconduct, but only if that person had been exempt from federal income taxation for the previous year.
d. World War II. Legislation was enacted to include those who entered into service on or after December 7, 1941, and before the termination of hostilities, providing WWII veterans with compensation, pension and other benefits administered by the VA. Public Law 78-313 provided disability pension to WWII veterans on the same basis as WWI veterans. Surviving spouses of WWII veterans were provided pensions by Public Law 78-312, dated May 27, 1944. Pension was limited to surviving spouses of those WWII veterans who at the time of death received or were entitled to receive compensation, pension, or retirement pay for 30-percent disability directly incurred in or aggravated by service.
e. Korean Conflict. At the outbreak of the Korean conflict, servicepersons were in an unusual position. They were fighting a war, being shot at, disabled and killed. However, since the war in which they were fighting was undeclared, the wartime benefits established for WWII veterans were not applicable. Public Law 82-28 (May 1951) extended the program to veterans and surviving spouses of veterans of the Korean conflict.
f. Vietnam Era. Public Law 90-77 (August 1967) extended eligibility to veterans and surviving spouses of those who served after August 4, 1964. Pensioners qualified under that law with the same requirements and benefits as veterans of preceding conflicts.
g. Protected Pension-Old Law. Until 1959, the pension program consisted of "all or nothing" determinations as to eligibility. This meant that beneficiaries either fell below the income limitation and received pension or they exceeded the income limitation and did not receive pension. There was no provision for a gradation in the amounts of pension entitlement. This particular feature of the system resulted in drastic consequences to those whose allowable income increased above the determined eligibility limits by even one dollar.
h. PL 86-211
(1) In 1959, Congress revised this "all or nothing" system. It was decided that variations in the amounts of pensioners' income required gradation in amounts of pension. Congress also wanted to cure other inequities, such as failure to take into consideration the number of the dependents for whom a veteran was responsible.
(2) Congress enacted PL 86-211, establishing a new pension program and protecting the prior pension program, which became known as "old law." This program, effective July 1960, was an attempt to rectify the inadequacies of previous laws. Pension entitlement was adjusted to correspond with income. A three-tier structure replaced the one-level limit. To protect those pensioners whose pension entitlement might be reduced by the new program, a "grandfather" clause permitted those on the rolls to continue their eligibility under the old law, subject to the requirements of that law.
i. PL 88-664
(1) In 1964, the law was revised to exclude 10 percent of all payments to an individual under public or private retirement, annuity, endowment, or similar plans in determining the "annual income" of the veteran. The rationale for this change was to provide a constant rate of payment in accordance with continuing need.
(2) In addition to a general rate increase, the 10-percent exclusion generally assured that no individual pensioner would be adversely affected because of a contemplated Social Security increase. Another exclusion was created by not counting "whichever is the greater, $1200 or the total earned income of the spouse."
j. PL 90-77; PL 90-275. In 1967 Congress provided an average cost-of-living increase of 5.4 percent. The following year pension rates were increased along with a $200 increase in the annual income limitations to mitigate against a pension loss because of the increase in Social Security. The same law replaced the three-level system of rates with a multilevel increment system. Under the three-level system, a slight increase in outside income often could result in a disproportionate decrease in pension. The enactment of a 20-plus-increment system of $100 gradations was designed to permit a more orderly and gradual reduction in monthly benefits whenever there was an increase in outside income.
k. PL 91-588. This law allowed VA to furnish necessary drugs and medicines to veterans on the pension rolls who were permanently housebound or in need of regular aid and attendance. VA continued to furnish drugs and medicines to pensioners entitled to aid and attendance whose pension entitlement had been discontinued because of excess income as long as the annual income did not exceed the maximum by more than $500.
l. PL 92-198. Veterans complained that whatever Social Security increase Congress gave with one hand, it took back in reduced pension with the other. More important, the reduction in a veteran's pension was often greater than the increase in Social Security benefits, thereby producing a net loss of aggregate income. In response to Social Security increases over the years, Congress not only increased pension rates and the maximum annual income limitations, but also adopted a new formula approach to payment of pension. Under the formula, each individual's monthly benefit was computed by reducing the maximum rate by a specified number of cents for each dollar by which the maximum income for that group is exceeded. The variable reduction formula permitted those with little or no income to keep more of each dollar of outside income than those with greater income. The formulas were designed so that with every change in outside income, while entitlement exists, aggregate income would be greater than before the income change. Another important liberalization permits the exclusion from annual income of any unreimbursed amounts paid within the calendar year for unusual medical expenses. Unreimbursed expenditures which exceed 5 percent of the pensioner's reported annual income are considered unusual.
m. PL 94-432. This law provided a 7-percent increase in rates and raised the annual income limitations. It further provided a 25-percent increase in rates for veterans 78 years of age or older. It also provided a special allowance for veterans in need of aid and attendance whose income exceeded the limit by less than $500.
n. PL 95-588. The current "Improved Pension" is Public Law 95-588 and was effective January 1, 1979. Detailed information concerning this program is found in various chapters in part IV of this manual.
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