Source: https://www.federalregister.gov/documents/2003/05/01/03-10688/state-cemetery-grants
Timestamp: 2018-07-16 21:04:31
Document Index: 75533196

Matched Legal Cases: ['§\u200939', 'art 39', '§\u200939', '§\u200939', '§\u200939', '§\u200939', '§\u200939', '§\u200939', '§\u200939', 'arts 43', '§\u200939', '§\u200939', '§\u200939', '§\u200939', '§\u200939', '§\u200939', '§\u200939', '§\u200939', '§\u200939', '§\u200939', '§\u200939', '§\u200939', '§\u200939', '§\u200939', 'art 51', 'art 51', '§\u200939', 'art 51', 'art 51', '§\u200939', '§\u200939', '§\u200939']

A Proposed Rule by the Veterans Affairs Department on 05/01/2003
Comments must be received by VA on or before June 30, 2003.
23249-23270 (22 pages)
https://www.federalregister.gov/d/03-10688 https://www.federalregister.gov/d/03-10688
The Department of Veterans Affairs (VA) is proposing to amend its regulations governing grants to States to establish, expand, or improve State veterans' cemeteries. We propose to implement through regulation the statutory increase of up to 100 percent of certain costs that can be covered by a grant, to simplify the preapplication process, and to establish a system of prioritizing grant applications. These changes are consistent with a statutory change effected by the Veterans Programs Enhancement Act of 1998, which changed the grant formula from a 50-50 Federal-State matching program to a program that authorizes up to 100 percent Federal funding. The changes will also facilitate States' applications, and make the best use of available funds.
Mail or hand-deliver written comments to: Director, Regulations Management (02D), Department of Veterans Affairs, 810 Vermont Avenue, NW., Washington, DC 20420; or fax comments to (202) 273-9289; or e-mail comments to OGCRegulations@mail.va.gov. Comments should indicate that they are submitted in response to “RIN 2900-AH46.” All comments received will be available for public inspection in the Office of Regulation Policy and Management, Room 1158, between the hours of 8 a.m. and 4:30 p.m., Monday through Friday (except holidays).
William Jayne, Director of State Cemetery Grants Service, National Cemetery Administration, Department of Veterans Affairs, 810 Vermont Avenue, NW., Washington DC 20420. Telephone: (202) 565-6152 (this is not a toll-free number).
The goal of the State Cemetery Grants Program (SCGP) is to complement the mission of the National Cemetery Administration (NCA) by providing a mechanism for States to establish, expand, or improve veterans' cemeteries. The SCGP encourages States to provide burial service to our Nation's veterans by operating veterans' cemeteries in areas where the most number of veterans would benefit as determined by VA. Under Public Law 95-476, the State Cemetery Grants Program was authorized to provide Federal assistance to States for the establishment, expansion, and improvement of veterans' cemeteries. The amount of the Federal grant to a State was limited to 50 percent of the combined value of the land to be acquired or dedicated for cemetery purposes, and the cost of the improvements to be made. The remaining 50 percent of the project's cost was to be contributed by the State.
Public Law 105-368, the Veterans Programs Enhancement Act of 1998, revised the funding formula for the SCGP to authorize the Federal Government to pay up to 100 percent of the costs of development associated with the establishment, expansion, or improvement of a veterans' cemetery as well as to provide for purchase of initial operating equipment. The intent of the increase in the amount of the grant was to encourage and facilitate State participation in the SCGP.
The proposed rule places in regulation the statutory increase of up to 100 percent funding of certain costs related to the establishment, expansion, or improvement of a veterans' cemetery, as well as for purchase of initial operating equipment by the States for establishment grants. In addition, the proposed rule establishes a system of prioritization at the preapplication stage of the application process as VA anticipates increased participation by the States in the SCGP.
The proposed rule simplifies the preapplication process to reduce the initial burden of application by prospective participating States. Many requirements from the previous preapplication process have been incorporated into the actual application process, while other requirements have been removed altogether. The preapplication process is now designed to serve as a means for planning, screening, and opening lines of communication between NCA and potential participating States. As a part of the preapplication process, the State will certify that it will be able to adhere to the requirements of the grant. The application process then becomes a certification of actual adherence to the requirements of the grant. This change allows the process to begin with State certification to avoid the potential for future adherence difficulties.
With the increased amount of the grant, NCA expects more participation by States. Once a project is approved, VA may award a grant up to 100 percent of the amount requested, provided that sufficient funds are available. The proposed rule establishes a prioritization process for fair and equitable administration of the program. This system of prioritization is simple and direct. There are four priorities. These are:
Priority I—Projects for gravesite expansion or improvements that are needed to continue service at an existing veterans' cemetery. This includes phased development of currently undeveloped land.
Priority II—Projects for the establishment of new cemeteries.
Priority III—Planned phased gravesite developments prior to need.
Priority IV—Other improvements to cemetery infrastructure such as building expansion and upgrades to roads and irrigation systems that are not directly related to the development of new gravesites.
Within priority categories I, II and III, individual projects will be ranked based on the greatest number of veterans who will benefit from the project as determined by VA. This prioritization Start Printed Page 23250system, based on veteran population data, will assist VA in maintaining and improving access to more veterans and their eligible family members for burial in a veterans cemetery.
In addition, square footage requirements for specific rooms and other specifications have been removed so the design of buildings will not be impeded by overly prescriptive requirements.
Although this document contains provisions constituting a collection of information at 38 CFR 39.6, 39.10, 39.16, 39.17, 39.25 and 39.26 under the Paperwork Reduction Act (44 U.S.C. 3501-3521), no new or proposed revised collections of information are associated with this proposed rule. The information collection requirements for §§ 39.6, 39.10, 39.16, 39.17, 39.25 and 39.26 are currently approved by the Office of Management and Budget (OMB) and have been assigned OMB control numbers 0348-0002, 0348-0043, 0348-0041, 0348-0042, and 2900-0559.
The Secretary hereby certifies that this proposed rule will not have a significant economic impact on a substantial number of small entities as they are defined in the Regulatory Flexibility Act, 5 U.S.C. 601-612. Only individual VA beneficiaries could be directly affected. Therefore, pursuant to 5 U.S.C. 605(b), this proposed rule is exempt from the initial and final regulatory flexibility analyses requirements of sections 603 and 604.
For the reasons set out in the preamble, VA proposes to revise 38 CFR part 39 to read as follows:
Line item adjustment to grant.
General requirements for site selection and construction of veterans' cemeteries.
Responsibilities following project completion.
(a) In order to qualify for a grant, a State veterans' cemetery must be operated solely for the interment of veterans, their wives, husbands, surviving spouses, minor children, and unmarried adult children who were physically or mentally disabled and incapable of self-support.
(1) Its preapplication for the grant must be approved under § 39.6;
(2) Its project must be ranked sufficiently high on the priority list in § 39.7 for the current fiscal year so that funds are available for the project;
(3) Its plans and specifications for the project must be approved under § 39.8;
(4) The State must meet the application requirements in § 39.10; and
(5) Other requirements specified in §§ 39.9 and 39.13 must be satisfied.
(c) VA may approve under § 39.11 any application up to the amount of the grant requested once the requirements under paragraph (b) of this section have been satisfied, provided that sufficient funds are available. In determining whether sufficient funds are available, VA shall consider the project's priority ranking, the total amount of funds available for cemetery grant awards during the applicable fiscal year, and the prospects of higher ranking projects being ready for the award of a grant before the end of the applicable fiscal year.
(1) Any cemetery established, expanded, or improved through a grant will be used exclusively for the interment of eligible persons as set forth in § 39.5(a).
(6) It will obtain approval by VA of the final construction drawings and specifications before the project is advertised or placed on the market for bidding; it will construct the project, or cause it to be constructed, to completion in accordance with the application and approved plans and specifications; it will submit to the Director of the State Cemetery Grants Program, for prior approval, changes that alter the costs of the project, use of space, or functional layout; and it will not enter into a construction contract(s) for the project or undertake other activities until the conditions of the grant program have been met.
(7) It will comply with the Federal requirements in 38 CFR parts 43 and 44 and submit Standard Form 424D (“Assurances-Construction Programs”).
(d) The State must submit an Environmental Assessment to determine if an Environmental Impact Statement is necessary for compliance with section 102(2)(C) of the National Environmental Policy Act of 1969, as amended (42 U.S.C. 4332). The Environmental Assessment must briefly describe the project's possible beneficial and harmful effects on the following impact categories:
If an adverse environmental impact is anticipated, the State must explain what action will be taken to minimize the impact. The assessment shall comply with the requirements of the National Environmental Policy Act of 1969, as amended (42 U.S.C. 4321 et seq.).
(e) The State must submit a copy of the legislation, as enacted into law, authorizing the establishment, maintenance and operation of the facility as a veterans' cemetery in accordance with 38 CFR 39.5(a).
(f) Upon receipt of a preapplication for a grant, including all necessary assurances and all required supporting documentation, VA shall determine Start Printed Page 23252whether the preapplication conforms to all requirements listed in paragraphs (a) through (e) of this section, including whether it contains sufficient information necessary to establish the project's priority. VA will notify the State of any nonconformity. If the preapplication does conform, VA shall notify the State that the preapplication has been found to meet the preapplication requirements, and the proposed project will be included in the next scheduled ranking of projects, as indicated in § 39.7(d).
(2) Priority Group 2—Projects for the establishment of new veterans’ cemeteries.
(3) Priority Group 3—Expansion projects at existing veterans’ cemeteries when a disruption in burial service due to the exhaustion of existing gravesites is not expected to occur within 4 years of the date of the preapplication.
(d) By August 15 of each year, VA will make a list prioritizing the preapplications that were received on or before July 1 of that year and that were approved under § 39.6, ranking them in their order of priority for funding during the fiscal year that begins the following October 1. Preapplications from previous years will be re-prioritized each year.
The State must prepare plans and specifications in accordance with the requirements of this section for review by the SCGS. The plans and specifications must be approved by the SCGS prior to the State's solicitation for construction bids. The State must determine the successful bidder prior to submission of the application. The State must establish procedures for determining that costs are reasonable, necessary and allocable in accordance with the provisions of Office of Management and Budget (OMB) Circular No. A-87. Once the preapplication and the project's plans and specifications have been approved, an application for assistance must be submitted in compliance with the uniform requirements for grants-in-aid to State and local governments prescribed by Office of Management and Budget Circular No. A-102, Revised.
(c) Master plan. A master plan showing the proposed layout of all Start Printed Page 23253facilities—including buildings, roadways and burial sections—on the selected site shall be prepared for all new cemetery establishment projects for approval by the SCGS. If the project is to be phased into different year programs, the phasing shall be indicated. The master plan shall analyze all factors affecting the design, including climate, soil conditions, site boundaries, topography, views, hydrology, environmental constraints, transportation access, etc. It should provide a discussion of alternate designs that were considered. In the case of an expansion or improvement project, the work contemplated should be consistent with the VA-approved master plan or a justification for the deviation should be provided.
(2) Architectural drawings. The State shall submit drawings which include: all structures and other work to be removed; all floor plans if any new work is involved; all elevations, which are affected by the alterations; building sections; demolition drawings; all details to complete the proposed work and finish schedules; and fully dimensioned floor plans at 1/8″ or 1/4″ scale.
(a) Predesign conference. A predesign conference is required for all major construction projects primarily to ensure that the State agency becomes oriented to VA procedures and requirements plus any technical comments pertaining to the project. These conferences will take place at an appropriate location near the proposed site and should include a site visit to ensure that all parties to the process, Start Printed Page 23254including NCA staff, are familiar with the site and its characteristics.
For a project to be considered for grant funding under this part, the State must submit an application (as opposed to a preapplication) consisting of the following:
(a) Standard Form 424 (“Face Sheet”) with the box labeled “application” marked;
(b) Standard Form 424C (“Budget Information”), which documents the amount of funds requested based on the construction costs as estimated by the successful construction bid;
(c) A copy of itemized bid tabulations (If there are non-VA participating areas, these shall be itemized separately.); and
(d) Standard Form 424D (“Assurances-Construction Program”).
Following VA approval of bid tabulations and cost estimates, the complete grant application will be reviewed for approval in accordance with the requirements of § 39.5. If the application is approved, the grant will be awarded by a Notification of Award of Federal Grant Funds.
§ 39.12
§ 39.14
(4) In the case of an improvement grant, the cost of equipment necessary for operation of the State cemetery, but only if:
(6) Fully enclosed, climate-controlled committal-service buildings, or chapels.
§ 39.16
After a grant has been awarded, upon request from the State representative, VA may approve a change in a line item (line items are identified in Standard Form 424C, which is set forth in § 39.26(c)) of up to 10 percent (increase or decrease) of the cost of the line item if the change would be within the scope or objective of the project and would not change the amount of the grant.
The amount of the grant award will be paid to the State or, if designated by the State representative, the State cemetery for which such project is being carried out, or any other State agency or instrumentality. Such amount shall be paid by way of reimbursement, and in such installments consistent with the progress of the project, as the Director of State Cemetery Grants Service may determine and certify for payment to the appropriate Federal institution. Funds paid under this section for an approved project shall be used solely for carrying out such project as so approved. As a condition for the final payment, the State representative must submit to VA the following:
(a) Standard Form 271 (“Outlay Report and Request for Reimbursement for Construction Programs”) (The form is set forth at § 39.26.);
(c) The written statement “It is hereby agreed that the monetary commitment of Start Printed Page 23255the federal government will have been met and the project will be considered terminated upon payment of this voucher'; and
(d) Evidence that the State has met its responsibility for an audit under the Single Audit Act of 1984 (31 U.S.C. 7501 et seq.) and § 39.19, if applicable.
(a) If a State which has received a grant to establish, expand, or improve a veterans' cemetery ceases to own such cemetery, ceases to operate such cemetery as a veterans' cemetery in accordance with § 39.5(a), or uses any part of the funds provided through such grant for a purpose other than that for which the grant was made, the United States shall be entitled to recover from the State the total of all grants made to the State in connection with the establishment, expansion or improvement of such cemetery.
(b) The standards in §§ 39.19 through 39.22 constitute general design and construction criteria and shall apply to all projects for which Federal assistance is requested under 38 U.S.C. 2408.
(c) In developing these standards, no attempt has been made to comply with all of the various State and local codes and regulations. The standards contained in §§ 39.19 through 39.22 shall be followed where they exceed State or local codes and regulations. Departure will be permitted, however, when alternate standards are demonstrated to provide equivalent or better design criteria than the standards in these sections. Conversely, compliance is required with State and local codes where such requirements provide a standard higher than those in these sections. The additional cost, if any, in using standards that are higher than those of VA should be documented and justified in the application.
(4) Pavement design. The pavement section of all roads, service areas and parking areas shall be designed for the maximum anticipated traffic loads and existing soil conditions and in Start Printed Page 23256accordance with local and State design criteria.
(5) Curbs. Bituminous roads may be provided with integral curbs and gutters constructed of portland cement concrete. Freestanding curbs may be substituted when the advantage of using them is clearly indicated. All curbs shall have a “roll-type” cross section for vehicle and equipment access to lawn areas except as may be necessary for traffic control. The radii of curbs at road intersections shall not be less than 20 feet—0 inches. Curb ramps shall be provided to accommodate the physically handicapped and maintenance equipment. Curb ramps shall be provided at all intersections of roads and walks. The curb ramps shall not be less than 4 feet wide; they shall not have a slope greater than 8 percent, and preferably not greater than 5 percent. The vertical angle between the surface of a curb ramp and the surface of a road or gutter shall not be less than 176 degrees; the transition between the two surfaces shall be smooth. Curb ramps shall have nonskid surfaces.
These criteria are based on a projected average burial rate of one to six per day, staffing by position, and a defined complement of maintenance and service equipment. For cemeteries with less than one or more than six burials per day, support facilities are considered on an individual basis in accordance with § 39.20(d). In converting Net Square Feet (NSF) to Gross Square Feet (GSF), a conversion factor of 1.5 is the maximum allowed. The applicant shall, in support of the design, include the following as an attachment to the application: A list of all grounds maintenance supplies and equipment and the number of Full Time Employees (FTE) by job assignment for the next 10 years.
(b) Maintenance/service building. The maintenance/service building may be combined with the administrative building. The maintenance/service building should be approximately 2,200 NSF in total, providing heated space, as needed, for the following functions: Start Printed Page 23257
(f) Other interment structures. Space determinations for other support facilities such as columbaria, preplaced graveliners (or crypts), garden niches, etc., will be considered on an individual basis in accordance with § 39.20(d).
(a) Architectural and structural requirements—(1) Life Safety Code. Standards must be in accordance with Code for Safety to Life from Fire in Buildings and Structures (NFPA 101), 2000 Edition, published on February 11, 2000, by the National Fire Protection Association, Inc., (NFPA), 1 Batterymarch Park, P.O. Box 9101, Quincy, MA 02269-9101. The Director of the Federal Register approves this incorporation by reference in accordance with 5 U.S.C. 552(a) and 1 CFR part 51. A copy may be inspected at the office of the State Cemetery Grants Service, National Cemetery Administration, Department of Veterans Affairs, 810 Vermont Avenue, NW., Washington, DC 20420 or at the Office of the Federal Register, 800 North Capitol Street, NW., Suite 700, Washington, DC. Fire safety construction features not included in NFPA 101 shall be designed in accordance with the standards of the 1997 Uniform Building Code, Volume 1, Administrative, Fire, and Life-Safety, and Field Inspection Provisions, published by the International Conference of Building Officials, 5360 Workman Mill Road, Whittier, CA 90601-2298. The Director of the Federal Register approves this incorporation by reference in accordance with 5 U.S.C. 552(a) and 1 CFR part 51. A copy may be inspected at the office of the State Cemetery Grants Service, National Cemetery Administration, Department of Veterans Affairs, 810 Vermont Avenue, NW., Washington, DC 20420 or at the Office of the Federal Register, 800 North Capitol Street, NW., Suite 700, Washington, DC. Where the adopted codes state conflicting requirements, the National Fire Codes shall govern.
(2) State and local codes. In addition to compliance with the standards set forth in this section, all applicable local and State building codes and regulations must be observed. In areas not subject to local or State building codes, the recommendations contained in the 1997 Uniform Building Code, Volume 1, Administrative, Fire, and Life-Safety, and Field Inspection Provisions, (see § 39.23(a)(1)) shall apply.
(b) Mechanical requirements. The heating system, boilers, steam system, ventilation system and air-conditioning system shall be furnished and installed to meet all requirements of the local and State codes and regulations.
(c) Plumbing requirements. Plumbing systems shall comply with all applicable local and State codes, the requirements of the State Department of Health, and the minimum general standards as set forth in this part. Where no local or State codes are in force, the 2000 Uniform Plumbing Code, published by the International Association of Plumbing and Mechanical Officials, 20001 E Walnut Drive South, Walnut, CA 91789-2825, shall apply. The Director of the Federal Register approves this incorporation by reference in accordance with 5 U.S.C. 552(a) and 1 CFR part 51. A copy may be inspected at the office of the State Cemetery Grants Service, National Cemetery Administration, Department of Veterans Affairs, 810 Vermont Avenue, NW., Washington, DC 20420 or at the Office of the Federal Register, 800 North Capitol Street, NW., Suite 700, Washington, DC.
(d) Electrical requirements. The installation of electrical work and equipment shall comply with all local and State codes and laws applicable to electrical installations and the minimum general standards, as set forth in NFPA 70, National Electrical Code, published on August 5, 1998, by the National Fire Protection Association, Inc., 1 Batterymarch Park, P.O. Box 9101, Quincy, MA 02269-9101. The Director of the Federal Register approves this incorporation by reference in accordance with 5 U.S.C. 552(a) and 1 CFR part 51. A copy may be inspected at the office of the State Cemetery Grants Service, National Cemetery Administration, Department of Veterans Affairs, 810 Vermont Avenue, NW., Washington, DC 20420 or at the Office of the Federal Register, 800 North Capitol Street, NW., Suite 700, Washington, DC. The regulations of the local utility company shall govern service connections. Aluminum bus ways shall not be used as a conducting medium in the electrical distribution system.
(1) Buildings, grounds, roads, walks, and other structures shall be kept in reasonable repair to prevent undue deterioration and hazards to users. Start Printed Page 23258
(c) VA, in coordination with the State, shall inspect the project at completion for compliance with the standards set forth in §§ 39.19 through 39.22 and at least once in every 3-year period following completion of the project throughout the period the facility is operated as a State veterans' cemetery. A copy of the inspection report shall be forwarded to the Director, State Cemetery Grants Service, giving the date and location the inspection was made and citing any deficiencies and corrective action taken or proposed.
(Authority: 38 U.S.C. 501, 2408; and issued under authority of the President by E.O. 13166, 65 FR 50121.)
§ 39.24
§ 39.26
Forms. All forms set forth in this part are available on the Internet at http://www.va.gov/​forms.
Start Printed Page 23259
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(The Office of Management and Budget has approved the information collection requirements in this section under control number 0348-0002.) Start Printed Page 23261
(b) Standard Form 424—APPLICATION FOR FEDERAL ASSISTANCE
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(The Office of Management and Budget has approved the information collection requirements in this section under control number 0348-0043.)
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(e) VA Form 10-0148c—CERTIFICATION REGARDING DEBARMENT, SUSPENSION, AND OTHER RESPONSIBILITY MATTERS PRIMARY COVERED TRANSACTIONS.
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[FR Doc. 03-10688 Filed 4-30-03; 8:45 am]