[Federal Register Volume 75, Number 115 (Wednesday, June 16, 2010)]
[Rules and Regulations]
[Pages 34004-34016]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2010-14058]
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DEPARTMENT OF VETERANS AFFAIRS
38 CFR Part 39
RIN 2900-AM96
State Cemetery Grants
AGENCY: Department of Veterans Affairs.
ACTION: Final rule.
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SUMMARY: The Department of Veterans Affairs (VA) is issuing this final
rule to amend regulations governing grants to States for the
establishment, expansion, and improvement of State veterans cemeteries
(Establishment, Expansion, and Improvement Projects). We are
implementing through regulation new statutory authority to provide
grants for the operation and maintenance of State veterans cemeteries
(Operation and Maintenance Projects), as authorized by the Dr. James
Allen Veteran Vision Equity Act of 2007 (the Act), enacted on December
26, 2007. The Act expands VA authority to provide grants to States for
operating and maintaining State veterans cemeteries and limits to $5
million the aggregate amount of such grants VA may award in any fiscal
year. VA is amending its regulations to outline the process, the
criteria, and the priorities relating to the award of these Operation
and Maintenance Project grants. This final rule will also amend our
regulations by changing the arrangement and numbering of the current
regulatory sections, incorporating some non-substantive changes to the
regulations, and removing specific forms from this part that are
available at http://www.cem.va.gov/cem/scg_grants.asp.
DATES: Effective Date: July 16, 2010. The incorporation by reference of
certain publications listed in the rule is approved by the Director of
the Federal Register as of July 16, 2010.
Applicability Date: This final rule shall apply to all applications
for State cemetery grant funds that are received by VA on or after the
effective date of this final rule, and to all applications for State
cemetery grant funds that were pending with VA on that date.
FOR FURTHER INFORMATION CONTACT: Frank Salvas, Director of State
Cemetery Grants Service, National Cemetery Administration (NCA),
Department of Veterans Affairs, 810 Vermont Avenue, NW., Washington DC
20420. Telephone: (202) 461-8947 (this is not a toll-free number).
SUPPLEMENTARY INFORMATION: On December 31, 2009, VA published a
proposed rule in the Federal Register (74 FR 69304) to amend
regulations in 38 CFR part 39 governing grants to States for
Establishment, Expansion, and Improvement Projects and to implement
through regulation new statutory authority to provide grants for
Operation and Maintenance Projects, as authorized by the Act (Pub. L.
110-157), enacted on December 26, 2007. VA provided a 60-day comment
period for the proposed rule that ended March 1, 2010. We received no
comments. Based on the rationale set forth in the proposed rule, we are
adopting the provisions of the proposed rule as a final rule with the
following changes.
We made a non-substantive change to proposed Sec. Sec. 39.35 and
39.85, so that those regulations refer to a Memorandum of Agreement,
rather than a Notification of Award, to be consistent with the title of
the corresponding VA Form 40-0895-11.
Also, although we proposed to update references to the
architectural design codes that apply to grant applicants, we decided
to update those references in a separate rulemaking. Therefore, we
removed the references to the updated editions of the various codes in
proposed Sec. 39.63 and replaced them with references to the 2002 and
2003 editions of the codes, as appropriate, that were previously
incorporated by reference into 38 CFR part 39. Similarly, we removed
the references to the International Mechanical Code and International
Plumbing Code in proposed Sec. 39.63 and replaced them with references
to the Uniform Mechanical Code and Uniform Plumbing Code, respectively,
which were previously incorporated by reference into 38 CFR part 39. We
did the same with an address from which copies of those two codes can
be obtained. Therefore, the editions of codes that were previously
incorporated by reference into 38 CFR part 39 will continue to be
applicable to grant applicants until the references to the codes are
updated or changed through rulemaking.
Executive Order 12866
Executive Order 12866 directs agencies to assess all costs and
benefits of available regulatory alternatives and, when regulation is
necessary, to select regulatory approaches that maximize net benefits
(including potential economic, environmental, public health and safety,
and other advantages; distributive impacts; and equity). The Executive
Order classifies a ``significant regulatory action,'' requiring review
by the Office of Management and Budget (OMB), 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 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 the Executive Order.
The economic, interagency, budgetary, legal, and policy
implications of this final rule have been examined, and it has been
determined not to be a significant regulatory action under the
Executive Order.
Regulatory Flexibility Act
The Secretary hereby certifies that this final 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. This final rule will directly affect only State government
entities and will not directly affect small entities. Therefore,
pursuant to 5 U.S.C. 605(b), this final rule is exempt from the initial
and final regulatory flexibility analysis requirements of sections 603
and 604.
[[Page 34005]]
Unfunded Mandates
The Unfunded Mandates Reform Act of 1995 requires, at 2 U.S.C.
1532, that agencies prepare an assessment of anticipated costs and
benefits before issuing any rule that may result in an expenditure by
State, local, or Tribal governments, in the aggregate, or by the
private sector, of $100 million or more (adjusted annually for
inflation) in any year. This final rule will have no such effect on
State, local, or Tribal governments, or on the private sector.
Paperwork Reduction Act
This final rule at Sec. Sec. 39.31, 39.32, 39.34, 39.81, 39.82,
39.84, 39.120, and 39.122 contains new collections of information under
the Paperwork Reduction Act of 1995 (44 U.S.C. 3501-3521). On December
31, 2009, in proposed rule published in the Federal Register, we
requested public comments on the new collections of information. We
received no comments. OMB has approved the additional collections in
part 39 under OMB Control Number 2900-0559. We are adding a
parenthetical statement after the authority citations to all of the
sections in part 39 for which new collections have been approved so
that the control number is displayed for each new collection.
Catalog of Federal Domestic Assistance Number and Title
The Catalog of Federal Domestic Assistance program number and title
for this final rule is 64.203, State Cemetery Grants.
Signing Authority
The Secretary of Veterans Affairs, or designee, approved this
document and authorized the undersigned to sign and submit the document
to the Office of the Federal Register for publication electronically as
an official document of the Department of Veterans Affairs. John R.
Gingrich, Chief of Staff, approved this document on June 7, 2010, for
publication.
List of Subjects in 38 CFR Part 39
Cemeteries, Grants programs--veterans, Incorporation by reference,
Veterans.
Dated: June 8, 2010.
Robert C. McFetridge,
Director, Regulation Policy and Management, Office of the General
Counsel.
0
For the reasons set out in the preamble, 38 CFR part 39 is revised to
read as follows:
PART 39--AID TO STATES FOR ESTABLISHMENT, EXPANSION, AND
IMPROVEMENT, OR OPERATION AND MAINTENANCE, OF VETERANS CEMETERIES
Subpart A--General Provisions
Sec.
39.1 Purpose.
39.2 Definitions.
39.3 Priority list.
39.4 Decision makers, notifications, and additional information.
39.5 Submission of information and documents to VA.
39.6 Amendments to grant application.
39.7 Line item adjustment to grants.
39.8 Withdrawal of grant application.
39.9 Hearings.
39.10 Cemetery requirements and prohibitions and recapture
provisions.
39.11 State to retain control of operations.
Subpart B--Establishment, Expansion, and Improvement Projects
Grant Requirements and Procedures
39.30 General requirements for a grant.
39.31 Preapplication requirements.
39.32 Plan preparation.
39.33 Conferences.
39.34 Application requirements.
39.35 Final review and approval of application.
Award of Grant
39.50 Amount of grant.
39.51 Payment of grant award.
Standards and Requirements
39.60 General requirements for site selection and construction of
veterans cemeteries.
39.61 Site planning standards.
39.62 Space criteria for support facilities.
39.63 Architectural design standards.
Subpart C--Operation and Maintenance Projects
Grant Requirements and Procedures
39.80 General requirements for a grant.
39.81 Preapplication requirements.
39.82 Plan preparation.
39.83 Conferences.
39.84 Application requirements.
39.85 Final review and approval of application.
Award of Grant
39.100 Amount of grant.
39.101 Payment of grant award.
Subpart D--Grant Recipient Responsibilities, Inspections, and Reports
Following Project Completion
39.120 Documentation of grant accomplishments.
39.121 State responsibilities following project completion.
39.122 Inspections, audits, and reports.
Authority: 38 U.S.C. 101, 501, 2408, 2411.
Subpart A--General Provisions
Sec. 39.1 Purpose.
This part sets forth the mechanism for a State to obtain a grant to
establish, expand, or improve a veterans cemetery that is or will be
owned by the State or to obtain a grant to operate or maintain a State
veterans cemetery to meet VA's national shrine standards of appearance.
(Authority: 38 U.S.C. 501, 2408)
Sec. 39.2 Definitions.
For the purpose of this part:
(a) Establishment means the process of site selection, land
acquisition, design and planning, earth moving, landscaping,
construction, and provision of initial operating equipment necessary to
convert a tract of land to an operational veterans cemetery.
(b) Expansion means an increase in the burial capacity or acreage
of an existing cemetery through the addition of gravesites and other
facilities, such as committal service shelters, crypts (preplaced grave
liners), and columbaria, necessary for the functioning of a cemetery.
(c) Improvement means the enhancement of a cemetery through
landscaping, construction, or renovation of cemetery infrastructure,
such as building expansion and upgrades to roads and irrigation
systems, that is not directly related to the development of new
gravesites; nonrecurring maintenance; and the addition of other
features appropriate to cemeteries.
(d) Establishment, Expansion, and Improvement Project means an
undertaking to establish, expand, or improve a site for use as a State-
owned veterans cemetery.
(e) Operation and Maintenance Project means a project that assists
a State to achieve VA's national shrine standards of appearance in the
key cemetery operational areas of cleanliness, height and alignment of
headstones and markers, leveling of gravesites, and turf conditions.
(f) Secretary means the Secretary of the United States Department
of Veterans Affairs.
(g) State means each of the States, Territories, and possessions of
the United States, the District of Columbia, and the Commonwealth of
Puerto Rico.
(h) State Cemetery Grants Service (SCGS) means the State Cemetery
Grants Service within VA's National Cemetery Administration (NCA).
(i) VA means the United States Department of Veterans Affairs or
the State Cemetery Grants Service.
(j) Veteran means a person who served in the active military,
naval, or air service and who died in line of duty
[[Page 34006]]
while in service or was discharged or released under conditions other
than dishonorable.
(Authority: 38 U.S.C. 101, 501, 2408)
Sec. 39.3 Priority list.
(a) The priority groups, with Priority Group 1 having the highest
priority and Priority Group 4 the lowest priority, are:
(1) Priority Group 1--Projects needed to avoid disruption in burial
service that would otherwise occur at existing veterans cemeteries
within 4 years of the date of the preapplication. Such projects would
include expansion projects as well as improvement projects (such as
construction of additional or replacement facilities) when such
improvements are required to continue interment operations.
(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.
(4) Priority Group 4--Improvement projects for cemetery landscaping
or infrastructure, such as building expansion and upgrades to roads and
irrigation systems, that are not directly related to the development of
new gravesites. Operation and Maintenance Projects that address NCA's
national shrine standards of appearance are included in this group.
(b) Within Priority Groups 1, 2, and 3, highest priority will be
given to projects in geographical locations with the greatest number of
veterans who will benefit from the project as determined by VA. This
prioritization system, based on veteran population data, will assist VA
in maintaining and improving access to burial in a veterans cemetery to
more veterans and their eligible family members. Within Priority Group
1, at the discretion of VA, higher priority may be given to a project
that must be funded that fiscal year to avoid disruption in burial
service.
(c) Grants for projects within Priority Group 4 will be awarded in
any fiscal year only after grants for all project applications under
Priority Groups 1, 2, and 3 that are ready for funding have been
awarded. Within Priority Group 4, projects will be ranked in priority
order based upon VA's determination of the relative importance of
proposed improvements and the degree to which proposed Operation and
Maintenance Projects achieve NCA national shrine standards of
appearance. No more than $5 million in any fiscal year will be awarded
for Operation and Maintenance Projects under Priority Group 4.
(d) By August 15 of each year, VA will make a list prioritizing all
preapplications that were received on or before July 1 of that year and
that were approved under Sec. 39.31 or Sec. 39.81, ranking them in
their order of priority within the applicable Priority Group for
funding during the fiscal year that begins the following October 1.
Preapplications from previous years will be re-prioritized each year
and do not need to be resubmitted.
(Authority: 38 U.S.C. 501, 2408)
Sec. 39.4 Decision makers, notifications, and additional information.
Decisions required under this part will be made by the VA Director,
State Cemetery Grants Service (SCGS), National Cemetery Administration,
unless otherwise specified in this part. The VA decision maker will
provide to affected States written notice of approvals, denials, or
requests for additional information under this part.
(Authority: 38 U.S.C. 501, 2408)
Sec. 39.5 Submission of information and documents to VA.
All information and documents required to be submitted to VA must
be submitted to the Director of the State Cemetery Grants Service,
National Cemetery Administration, Department of Veterans Affairs, 810
Vermont Avenue, NW., Washington, DC 20420. All forms cited in this part
are available at http://www.cem.va.gov/cem/scg_grants.asp.
(Authority: 38 U.S.C. 501, 2408)
Sec. 39.6 Amendments to grant application.
A State seeking to amend a grant application must submit revised
Standard Forms 424 (Application for Federal Assistance) and 424C
(Budget Information) with a narrative description of, and justification
for, the amendment. Any amendment of an application that changes the
scope of the application or increases the amount of the grant
requested, whether or not the application has already been approved,
shall be subject to approval by VA in the same manner as an original
application.
(Authority: 38 U.S.C. 501, 2408)
(The Office of Management and Budget has approved the information
collection requirements in this section under control numbers 4040-
0004 and 4040-0008).
Sec. 39.7 Line item adjustment to grants.
After a grant has been awarded, upon request from the State
representative, VA may approve a change in one or more line items (line
items are identified in Standard Form 424C) of up to 10 percent
(increase or decrease) of the cost of each line item if the change
would be within the scope or objective of the project and the aggregate
adjustments would not increase the total amount of the grant.
(Authority: 38 U.S.C. 501, 2408)
Sec. 39.8 Withdrawal of grant application.
A State representative may withdraw an application by submitting to
VA a written document requesting withdrawal.
(Authority: 38 U.S.C. 501, 2408)
Sec. 39.9 Hearings.
(a) No application for a grant under this part shall be disapproved
until the applicant has been afforded an opportunity for a hearing.
(b) Whenever a hearing is requested under this section, notice of
the hearing, procedure for the conduct of such hearing, and procedures
relating to decisions and notices shall accord with the provisions of
Sec. Sec. 18.9 and 18.10 of this chapter. Failure of an applicant to
request a hearing under this section or to appear at a hearing for
which a date has been set shall be deemed to be a waiver of the right
to be heard and constitutes consent to the making of a decision on the
basis of such information as is available.
(Authority: 38 U.S.C. 501, 2408)
Sec. 39.10 Cemetery requirements and prohibitions and recapture
provisions.
(a) In order to qualify for a grant, a State veterans cemetery must
be operated solely for the interment of veterans, their spouses,
surviving spouses, minor children, and unmarried adult children who
were physically or mentally disabled and incapable of self-support.
(b) Any grant under this part made on or after November 21, 1997,
is made on the condition that, after the date of receipt of the grant,
the State receiving the grant, subject to requirements for receipt of
notice in 38 U.S.C. 2408 and 2411, will prohibit in the cemetery for
which the grant is awarded the interment of the remains or the
memorialization of any person:
(1) Who has been convicted of a Federal capital crime, as defined
in 38 CFR 38.600(b), and whose conviction is final, other than a person
whose sentence was commuted by the President;
(2) Who has been convicted of a State capital crime, as defined in
38 CFR 38.600(b), and whose conviction is final, other than a person
whose sentence was commuted by the Governor of a State.
[[Page 34007]]
(3) Who has been found by an appropriate State official, as defined
in 38 CFR 38.600(b), under procedures to be established by the State,
to have committed a Federal or State capital crime, as defined in 38
CFR 38.600(b), but to have not been convicted of such crime by reason
of unavailability for trial due to death or flight to avoid
prosecution.
(c) If a State which has received a grant under this part ceases to
own the cemetery for which the grant was made, ceases to operate such
cemetery as a veterans cemetery in accordance with paragraph (a) of
this section, violates the prohibition in paragraph (b) of this
section, 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 under this part in connection with such
cemetery.
(d) If, within 3 years after VA has certified to the Department of
the Treasury an approved grant application, not all funds from the
grant have been used by the State for the purpose for which the grant
was made, the United States shall be entitled to recover any unused
grant funds from the State.
(Authority: 38 U.S.C. 501, 2408, 2411)
Sec. 39.11 State to retain control of operations.
Neither the Secretary nor any employee of VA shall exercise any
supervision or control over the administration, personnel, maintenance,
or operation of any State veterans cemetery that receives a grant under
this program except as prescribed in this part.
(Authority: 38 U.S.C. 501, 2408)
Subpart B--Establishment, Expansion, and Improvement Projects
Grant Requirements and Procedures
Sec. 39.30 General requirements for a grant.
(a) For a State to obtain a grant for the establishment, expansion,
or improvement of a State veterans cemetery:
(1) Its preapplication for the grant must be approved by VA under
Sec. 39.31(e);
(2) Its project must be ranked sufficiently high on the priority
list in Sec. 39.3 for the applicable fiscal year so that funds are
available for the project;
(3) Its plans and specifications for the project must be approved
by VA under Sec. 39.32;
(4) The State must meet the application requirements in Sec.
39.34; and
(5) Other requirements specified in Sec. Sec. 39.6, 39.10, and
39.33 must be satisfied.
(b) VA may approve under Sec. 39.35 any application under this
subpart up to the amount of the grant requested once the requirements
under paragraph (a) 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.
(Authority: 38 U.S.C. 501, 2408)
Sec. 39.31 Preapplication requirements.
(a) A State seeking a grant of more than $100,000 for the
establishment, expansion, or improvement of a State veterans cemetery
must submit a preapplication to the Director, State Cemetery Grants
Service, through http://www.cem.va.gov/cem/scg_grants.asp.
(b) No detailed drawings, plans, or specifications are required
with the preapplication. As a part of the preapplication, the State
must submit each of the following:
(1) Standard Form 424 (Application for Federal Assistance) and
Standard Form 424C (Budget Information) signed by the authorized
representative of the State. These forms document the amount of the
grant requested, which may not exceed 100 percent of the estimated cost
of the project to be funded with the grant.
(2) A program narrative describing the objectives of the project,
the need for a grant, the method of accomplishment, the projected
interment rate, and the results or benefits expected to be obtained
from the assistance requested.
(3) If a site has been selected, a description of the geographic
location of the project (i.e., a map showing the location of the
project and all appropriate geographic boundaries, and any other
supporting documentation, as needed).
(4) A design concept describing the major features of the project
including the number and types of gravesites, such as columbarium
niches.
(5) Any comments or recommendations made by the State's ``Single
Point of Contact'' reviewing agency.
(6) VA Form 40-0895-2 (Certification of Compliance with Provisions
of the Davis-Bacon Act) to certify that the State has obtained the
latest prevailing wage rates for Federally funded projects. Any
construction project fully or partially funded with Federal dollars
must comply with those rates for specific work by trade employees
(e.g., electricians, carpenters).
(7) VA Form 40-0895-3 (State or Tribal Government Cemetery Grants
Service Space Program Analysis--Buildings) to provide information on
the proposed size of cemetery buildings, based on VA guidance on the
net and gross square footage standards for cemetery buildings. This
standard is based on a workload of 1-6 burials per day.
(8) VA Form 40-0895-6 (Certification of State or Tribal Government
Matching Architectural and Engineering Funds to Qualify for Group 1 on
the Priority List) to provide documentation that the State has
legislative authority to support the project and the resources
necessary to initially fund the architectural and engineering portion
of the project development. Once the grant is awarded, VA will
reimburse the applicant for all allowable architectural and engineering
costs.
(9) VA Form 40-0895-7 (Certification Regarding Debarment,
Suspension, and Other Responsibility Matters--Primary Covered
Transactions (State or Tribal Government)) to ensure that the applicant
has not been debarred or suspended, and is eligible to participate in
the VA grant process and receive Federal funds.
(10) VA Form 40-0895-8 (Certification Regarding Drug-Free Workplace
Requirements for Grantees Other Than Individuals) to ensure that the
applicant complies with the Drug-Free Workplace Act of 1988 at the
location where the construction will occur.
(11) VA Form 40-0895-9 (Certification Regarding Lobbying) to ensure
that the applicant complies with Public Law 101-121 regarding the
prohibition against any payments to anyone that influences or attempts
to influence an officer or Member of Congress in connection with the
award of a grant.
(12) VA Form 40-0895-10 (Certification of Compliance with Federal
Requirements--State or Tribal Government Construction Grant) to ensure
that the applicant complies with all requirements of Part 39.
(13) VA Form 40-0895-15 (Certification of Cemetery Maintained in
Accordance with National Cemetery Administration Standards) to ensure
that any cemetery established, expanded, or improved through a grant
will be operated and maintained in accordance with the operational
standards of NCA.
[[Page 34008]]
(c) In addition, the State must submit written assurance of each of
the following conditions:
(1) Any cemetery established, expanded, or improved through a grant
will be used exclusively for the interment or memorialization of
eligible persons, as set forth in Sec. 39.10(a), whose interment or
memorialization is not contrary to the conditions of the grant (see
Sec. 39.10(b) and 38 U.S.C. 2408(d) and 2411).
(2) Title to the site is or will be vested solely in the State.
(3) The State possesses legal authority to apply for the grant and
to finance and construct the proposed facilities; i.e., legislation or
similar action has been duly adopted or passed as an official act of
the applicant's governing body, authorizing the filing of the
application, including all understandings and assurances contained
therein, and directing and authorizing the person identified as the
official representative of the State to act in connection with the
application and to provide such additional information as may be
required.
(4) The State will assist VA in assuring that the grant complies
with section 106 of the National Historic Preservation Act of 1966, as
amended (16 U.S.C. 470), Executive Order 11593 (identification and
protection of historic properties), and the Archaeological and Historic
Preservation Act of 1974 (16 U.S.C. 469a-1 et seq.).
(5) The State 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 the
project 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 Service, for prior approval,
changes that alter any cost of the project, use of space, or functional
layout; and it will not enter into a construction contract for the
project or undertake other activities until the requirements of the
grant program have been met.
(6) The State will comply with the Federal requirements in 2 CFR
parts 180 and 801 and 38 CFR part 43 and submit Standard Form 424D
(Assurances--Construction Programs).
(7) The State will prepare an Environmental Assessment to determine
whether an Environmental Impact Statement is necessary, and certify
that funds are available to finance any costs related to preparation of
the Environmental Assessment.
(d) 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 39.10(a).
(e) Upon receipt of a complete preapplication for a grant,
including all necessary assurances and all required supporting
documentation, VA will determine whether the preapplication conforms to
all requirements listed in paragraphs (a) through (d) 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 Sec. 39.3(d).
(Authority: 38 U.S.C. 501, 2408, 2411)
(The Office of Management and Budget has approved the information
collection requirements in this section under control numbers 4040-
0004, 4040-0008, 4040-0009, and 2900-0559.)
Sec. 39.32 Plan preparation.
The State must prepare Establishment, Expansion, and Improvement
Project 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. Once SCGS approves the plans and specifications, the
State must obtain construction bids and determine the successful bidder
prior to submission of the application. The State must establish
procedures for determining that costs are reasonable and necessary and
can be allocated in accordance with the provisions of Office of
Management and Budget (OMB) Circular No. A-87. Once the Establishment,
Expansion, and Improvement Project 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 OMB Circular No. A-102, Revised.
(a) General. These requirements have been established for the
guidance of the State agency and the design team to provide a standard
for preparation of drawings, specifications, and estimates.
(b) Technical requirements. The State should meet these technical
requirements as soon as possible after VA approves the Establishment,
Expansion, and Improvement Project preapplication.
(1) Boundary and site survey. The State agency shall provide a
survey of the site and furnish a legal description of the site. A
boundary and site survey need not be submitted if one was submitted for
a previously approved project and there have been no changes. Relevant
information may then be shown on the site plan. If required, the site
survey shall show each of the following items:
(i) The outline and location referenced to boundaries of all
existing buildings, streets, alleys (whether public or private), block
boundaries, easements, encroachments, the names of streets, railroads,
and streams, and other information as specified. If there is nothing of
this character affecting the property, the Surveyor shall so state on
the drawings.
(ii) The point of beginning, bearing, distances, and interior
angles. Closure computations shall be furnished with the survey, and
error of closure shall not exceed 1 foot for each 10,000 feet of lineal
traverse. Boundaries of an unusual nature (curvilinear, off-set, or
having other change or direction between corners) shall be referenced
with curve data (including measurement chord) and other data sufficient
for replacement, and such information shall be shown on the map. For
boundaries of such nature, coordinates shall be given for all angles
and other pertinent points.
(iii) The area of the parcel in acres or in square feet.
(iv) The location of all monuments.
(v) Delineation of 100-year floodplain and source.
(vi) The signature and certification of the Surveyor.
(2) Soil investigation. The State shall provide a soil
investigation of the scope necessary to ascertain site characteristics
for construction and burial or to determine foundation requirements and
utility service connections. A new soil investigation is not required
if one was done for a previously approved project on the same site and
information from the previous investigation is adequate and unchanged.
Soil investigation, when done, shall be documented in a signed report.
The investigation shall be adequate to determine the subsoil
conditions. The investigation shall include a sufficient number of test
pits or test borings as will determine, in the judgment of the
architect, the true conditions. The following information will be
covered in the report:
(i) Thickness, consistency, character, and estimated safe bearing
value where needed for structural foundation design of the various
strata encountered in each pit or boring.
[[Page 34009]]
(ii) Amount and elevation of ground water encountered in each pit
or boring, its probable variation with the seasons, and effect on the
subsoil.
(iii) The elevation of rock, if known, and the probability of
encountering quicksand.
(iv) If the site is underlaid with mines, the elevations and
location of the tops of the mine workings relative to the site, or old
workings located in the vicinity.
(3) Topographical survey. A topographical survey in 1-foot contour
intervals shall be prepared for projects establishing new cemeteries
and for significant expansion projects in previously undeveloped land.
(c) Master plan. A master plan showing the proposed layout of all
facilities--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 project or improvement project, the work
contemplated should be consistent with the VA-approved master plan or a
justification for the deviation should be provided.
(d) Preliminary or ``design development'' drawings. Following VA
approval of the master plan, the State must submit design development
drawings that show all current phase construction elements to be funded
by the grant. The drawings must comply with the following requirements:
(1) Site development and environmental plans must include locations
of structures, demolition, parking, roads, service areas, walks,
plazas, memorial paths, other paved areas, landscape buffer and major
groupings, and interment areas (including quantity of gravesites in
each area). A grading plan including existing and proposed contours at
1-foot intervals of the entire area affected by the site work must be
submitted. A site plan of the immediate area around each building shall
be drawn to a convenient scale and shall show the building floor plan,
utility connections, walks, gates, walls or fences, flagpoles, drives,
parking areas, indication of handicapped provisions, landscaping, north
arrow, and any other appropriate items.
(2) Floor plans of all levels at a convenient scale shall be
double-line drawings and shall show overall dimensions, construction
materials, door swings, names and square feet for each space, toilet
room fixtures, and interior finish schedule.
(3) Elevations of the exteriors of all buildings shall be drawn to
the same scale as the plan and shall include all material indications.
(4) Preliminary mechanical and electrical layout plans shall be
drawn at a convenient scale and shall have an equipment and plumbing
fixture schedule.
(e) Final construction drawings and specifications. Funds for the
construction of any project being assisted under this program will not
be released until VA approves the final construction drawings and
specifications. If VA approves them, VA shall send the State a written
letter of approval indicating that the project's plans and
specifications comply with the terms and conditions as prescribed by
VA. This does not constitute approval of the contract documents. It is
the responsibility of the State to ascertain that all State and Federal
requirements have been met and that the drawings and specifications are
acceptable for bid purposes.
(1) General. The State shall prepare final working drawings so that
clear and distinct prints may be obtained. These drawings must be
accurately dimensioned to include all necessary explanatory notes,
schedules, and legends. Working drawings shall be complete and adequate
for VA review and comment. The State shall prepare separate drawings
for each of the following types of work: architectural, equipment,
layout, structural, heating and ventilating, plumbing, and electrical.
(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.
(3) Equipment drawings. The State shall submit a list of all
equipment to be provided under terms of the grant in the case of an
Establishment Project. Large-scale drawings of typical special rooms
indicating all fixed equipment and major items of furniture and
moveable equipment shall be included.
(4) Layout drawings. The State shall submit a layout plan that
shows:
(i) All proposed features such as roads, buildings, walks, utility
lines, burial layout, etc.
(ii) Contours, scale, north arrow, and legend showing existing
trees.
(iii) A graphic or keyed method of showing plant types as well as
quantities of each plant.
(iv) Plant list with the following: key, quantity, botanical name,
common name, size, and remarks.
(v) Typical tree and shrub planting details.
(vi) Areas to be seeded or sodded.
(vii) Areas to be mulched.
(viii) Gravesite section layout with permanent section monument
markers and lettering system.
(ix) Individual gravesite layout and numbering system. If the
cemetery is existing and the project is expansion or renovation, show
available, occupied, obstructed, and reserved gravesites.
(x) Direction the headstones face.
(5) Structural drawings. The State shall submit complete foundation
and framing plans and details, with general notes to include: governing
code, material strengths, live loads, wind loads, foundation design
values, and seismic zone.
(6) Mechanical drawings. The State shall submit:
(i) Heating and ventilation drawings showing complete systems and
details of air conditioning, heating, ventilation, and exhaust; and
(ii) Plumbing drawings showing sizes and elevations of soil and
waste systems, sizes of all hot and cold water piping, drainage and
vent systems, plumbing fixtures, and riser diagrams.
(7) Electrical drawings. The State shall submit separate drawings
for lighting and power, including drawings of:
(i) Service entrance, feeders, and all characteristics;
(ii) All panel, breaker, switchboard, and fixture schedules;
(iii) All lighting outlets, receptacles, switches, power outlets,
and circuits; and
(iv) Telephone layout, fire alarm systems, and emergency lighting.
(8) Final specifications. Final specifications (to be used for bid
purposes) shall be in completed format. Specifications shall include
the invitations for bids, cover or title sheet, index, general
requirements, form of bid bond, form of agreement, performance and
payment bond forms, and sections describing materials and workmanship
in detail for each class of work.
(9) Cost estimates. The State shall show in convenient form and
detail the estimated total cost of the work to be performed under the
contract, including provisions of fixed equipment shown by
[[Page 34010]]
the plans and specifications, if applicable, to reflect the changes of
the approved financial plan. Estimates shall be summarized and totaled
under each trade or type of work. Estimates shall also be provided for
each building structure and other important features such as the
assembly area and shall include burial facilities.
(Authority: 38 U.S.C. 501, 2408)
(The Office of Management and Budget has approved the information
collection requirements in this section under control number 2900-
0559).
Sec. 39.33 Conferences.
(a) Predesign conference. A predesign conference is required for
all Establishment, Expansion, and Improvement Projects requiring major
construction, primarily to ensure that the State agency becomes
oriented to VA procedures, requirements, and any technical comments
pertaining to the project. This conference 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, including NCA staff,
are familiar with the site and its characteristics.
(b) Additional conferences. At any time, VA may recommend an
additional conference (such as a design development conference) be held
in VA Central Office in Washington, DC, to provide an opportunity for
the State and its architects to discuss with VA officials the
requirements for a grant.
(Authority: 38 U.S.C. 501, 2408)
Sec. 39.34 Application requirements.
(a) For an Establishment, Expansion, and Improvement Project to be
considered for grant funding under this subpart, the State must submit
an application (as opposed to a preapplication) consisting of the
following:
(1) Standard Form 424 (Application for Federal Assistance) with the
box labeled ``application'' marked;
(2) Standard Form 424C (Budget Information), which documents the
amount of funds requested based on the construction costs as estimated
by the successful construction bid;
(3) A copy of itemized bid tabulations (If there are non-VA
participating areas, these shall be itemized separately.); and
(4) Standard Form 424D (Assurances--Construction Program).
(5) VA Form 40-0895-11 (Memorandum of Agreement for a Grant to
Construct or Modify a State or Tribal Government Veterans Cemetery) to
identify the parties (VA and applicant), identify the scope of the
project, and indicate how the grant award funds will be paid to the
applicant.
(6) VA Form 40-0895-12 (Certification Regarding Debarment,
Suspension, Ineligibility and Voluntary Exclusion--Lower Tier Covered
Transactions (Contractor)) to ensure that the contractor has not been
debarred or suspended, and is eligible to participate in the VA grant
process and receive Federal funds.
(b) Prior to submission of the application, the State must submit a
copy of 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:
(1) Transportation;
(2) Air quality;
(3) Noise;
(4) Solid waste;
(5) Utilities;
(6) Geology (Soils/Hydrology/Floodplains);
(7) Water quality;
(8) Land use;
(9) Vegetation, Wildlife, Aquatic, Ecology/Wetlands, etc.;
(10) Economic activities;
(11) Cultural resources;
(12) Aesthetics;
(13) Residential population;
(14) Community services and facilities;
(15) Community plans and projects; and
(16) Other.
(c) 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.).
(Authority: 38 U.S.C. 501, 2408)
(The Office of Management and Budget has approved the information
collection requirements in this section under control numbers 4040-
0004, 4040-0008, 4040-0009, and 2900-0559).
Sec. 39.35 Final review and approval of application.
Following VA approval of bid tabulations and cost estimates, VA
will review the complete Establishment, Expansion and Improvement
Project grant application for approval in accordance with the
requirements of Sec. 39.30. If the application is approved, the grant
will be awarded by a Memorandum of Agreement of Federal grant funds.
(Authority: 38 U.S.C. 501, 2408)
Award of Grant
Sec. 39.50 Amount of grant.
(a) The amount of an Establishment, Expansion, and Improvement
Project grant awarded under this subpart may not exceed 100 percent of
the total cost of the project, but may be less than the total cost of
the project.
(b) The total cost of a project under this subpart may include:
(1) Administration and design costs, e.g., architectural and
engineering fees, inspection fees, and printing and advertising costs.
(2) The cost of cemetery features, e.g., entry features, flag plaza
and assembly areas, columbaria, preplaced liners or crypts, irrigation
systems, committal-service shelters, and administration/maintenance
buildings.
(3) In the case of an establishment grant, the cost of equipment
necessary for the operation of the State veterans cemetery. This may
include the cost of non-fixed equipment such as grounds maintenance
equipment, burial equipment, and office equipment.
(4) In the case of an improvement or expansion grant, the cost of
equipment necessary for operation of the State veterans cemetery, but
only if such equipment:
(i) Was included in the construction contract;
(ii) Was installed during construction; and
(iii) Is permanently affixed to a building or connected to the
heating, ventilating, air conditioning, or other service distributed
through a building via ducts, pipes, wires, or other connecting device,
such as kitchen and intercommunication equipment, built-in cabinets,
and equipment lifts.
(5) A contingency allowance not to exceed five percent of the total
cost of a project that involves new construction or eight percent of
the total cost of an improvement project that does not involve new
construction.
(c) The total cost of a project under this subpart may not include
the cost of:
(1) Land acquisition;
(2) Building space that exceeds the space guidelines specified in
this part;
(3) Improvements not on cemetery land, such as access roads or
utilities;
(4) Maintenance or repair work;
(5) Office supplies or consumable goods (such as fuel and
fertilizer) that are routinely used in a cemetery; or
(6) Fully enclosed, climate-controlled, committal-service
facilities, freestanding chapels, or chapels that are part of an
administrative building or information center.
[[Page 34011]]
(d) VA shall certify approved applications to the Secretary of the
Treasury in the amount of the grant, and shall designate the
appropriation from which it shall be paid. Funds paid for the
establishment, expansion, or improvement of a veterans cemetery must be
used solely for carrying out approved projects.
(Authority: 38 U.S.C. 501, 2408)
Sec. 39.51 Payment of grant award.
The amount of an Establishment, Expansion, and Improvement Project
grant award will be paid to the State or, if designated by the State
representative, the State veterans 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 installments that
are consistent with the progress of the project, as the Director of the
State Cemetery Grants Service may determine and certify for payment to
the appropriate Federal institution. Funds paid under this section for
an approved Establishment, Expansion, and Improvement Project shall be
used solely for carrying out such project as 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);
(b) A request in writing for the final architectural/engineering
inspection, including the name and telephone number of the local point
of contact for the project;
(c) The written statement, ``It is hereby agreed that the monetary
commitment of the 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 Sec.
39.122, if applicable.
(Authority: 38 U.S.C. 501, 2408)
(The Office of Management and Budget has approved the information
collection requirements in this section under control number 0348-
0002).
Standards and Requirements
Sec. 39.60 General requirements for site selection and construction
of veterans cemeteries.
(a) The various codes, requirements, and recommendations of State
and local authorities or technical and professional organizations, to
the extent and manner in which those codes, requirements, and
recommendations are referenced in this subpart, are applicable to
grants involving construction of veterans cemeteries. Additional
information concerning these codes, requirements, and recommendations
may be obtained from VA, National Cemetery Administration, 810 Vermont
Avenue, NW., Washington, DC 20420.
(b) The standards in Sec. Sec. 39.60, 39.61, 39.62, and 39.63
constitute general design and construction criteria and shall apply to
all Establishment, Expansion, and Improvement 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 Sec. Sec. 39.60, 39.61, 39.62, and 39.63
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.
(d) The space criteria and area requirements referred to in these
standards shall be used as a guide in planning. Additional area and
facilities beyond those specified as basic may be included if found to
be necessary to meet the functional requirements of the project but are
subject to approval by VA. Substantial deviation from the space
criteria or area standards shall be carefully considered and justified.
Failing to meet the criteria or standards or exceeding them by more
than 10 percent in the completed plan would be regarded as evidence of
inferior design or as exceeding the boundaries of professional
requirements. In those projects that unjustifiably exceed maximum space
criteria or area requirements, VA funding may be subject to reduction
in proportion to the amount by which the space or area of the cemetery
exceeds the maximum specified in these standards.
(Authority: 38 U.S.C. 501, 2408)
Sec. 39.61 Site planning standards.
(a) Site selection--(1) Location. The land should be located as
close as possible to the densest veteran population in the area under
consideration.
(2) Size. Sufficient acreage shall be available to provide
gravesites for estimated needs for at least 20 years. More acreage
should be provided where feasible. Acreage could vary depending on the
State veteran population and national cemetery availability.
(3) Accessibility. The site should be readily accessible by
highway. Offsite improvements shall not be funded by the grant.
(4) Topography. The land should range from comparatively level to
rolling and moderately hilly terrain. Natural rugged contours are
suitable only if development and maintenance costs would not be
excessive and burial areas would be accessible to elderly or infirm
visitors. The land shall not be subject to flooding.
(5) Water table. The water table should be lower than the maximum
proposed depth of burial.
(6) Soil requirements. The soil should be free from rock, muck,
unstable composition, and other materials that would hamper the
economical excavation of graves by normal methods. In general, the soil
should meet the standards of good agricultural land that is capable of
supporting turf and trees, with normal care and without the addition of
topsoil.
(7) Utilities. Electricity and gas, if required, should be
available. Offsite improvements shall not be funded by the grant.
(8) Water supply. An adequate supply of water should be available.
Offsite improvements shall not be funded by the grant.
(9) Sewerage. An approved means to dispose of storm flow and sewage
from the facility should be available. Offsite improvements shall not
be funded by the grant.
(b) Site development requirements--(1) General. The development
plan shall provide for adequate hard-surfaced roads, walks, parking
areas, public rest rooms, a flag circle, and a main gate.
(2) Parking. All parking facilities shall include provisions to
accommodate the physically handicapped. A minimum of one space shall be
set aside and identified with signage in each parking area with
additional spaces provided in the ratio of 1 handicapped space to every
20 regular spaces. Handicapped spaces shall not be placed between two
conventional diagonal or head-on parking spaces. Each of the
handicapped parking spaces shall not be less than 9 feet wide; in
addition, a clear space 4 feet wide shall be provided between the
adjacent conventional parking spaces and also on the outside of the end
spaces. Parking shall not be provided for large numbers of people
attending ceremonial events such as Memorial Day services.
[[Page 34012]]
(3) Roads. Roads should generally follow the topography of the
cemetery and allow pedestrian access to burial sections on both sides.
Roads should generally not be used as ``boundaries'' outlining burial
sections. Extensive bridging should be avoided. Grant program funding
may not be used to build access roads on property that is not part of
the cemetery. Road widths shall be compatible with proposed traffic
flows and volumes. Primary roads shall be generally 24 feet wide.
(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 accordance 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.
(6) Walks. Walks shall be designed with consideration for the
physically handicapped and elderly. Walks and ramps designed on an
incline shall have periodic level platforms. All walks, ramps and
platforms shall have nonskid surfaces. Any walk shall be ramped if the
slope exceeds 3 percent. Walks that have gradients from 2 to 3 percent
shall be provided with level platforms at 200-foot intervals and at
intersections with other walks. Ramps shall not have a slope greater
than 8 percent, and preferably not greater than 5 percent. The ramps
shall have handrails on both sides unless other protective devices are
provided; every handrail shall have clearance of not less than 1\1/2\
inches between the back of the handrail and the wall or any other
vertical surface behind it. Ramps shall not be less than 4 feet wide
between curbs; curbs shall be provided on both sides. The curbs shall
not be less than 4 inches high and 4 inches wide. A level platform in a
ramp shall not be less than the full width of the ramp and not less
than 5 feet long. Entrance platforms and ramps shall be provided with
protective weather barriers to shield them against hazardous conditions
resulting from inclement weather.
(7) Steps. Exterior steps may be included in the site development
as long as provisions are made for use by physically handicapped
persons.
(8) Grading. Minimum lawn slopes shall be 2 percent; critical spot
grade elevations shall be shown on the contract drawings. Insofar as
practicable, lawn areas shall be designed without steep slopes.
(9) Landscaping. The landscaping plan should provide for a park-
like setting of harmonious open spaces balanced with groves of
indigenous and cultivated deciduous and evergreen trees. Shrubbery
should be kept to a minimum. Steep slopes that are unsuitable for
interment areas should be kept in their natural state.
(10) Surface drainage. Surface grades shall be determined in
coordination with the architectural, structural, and mechanical design
of buildings and facilities so as to provide proper surface drainage.
(11) Burial areas. A site plan of the cemetery shall include a
burial layout. If appropriate, the burial layout should reflect the
phases of development in the various sections. The first phase of
construction should contain sufficient burial sites to meet the
foreseeable demand for at least 10 years. All applicable dimensions of
roadways, fences, utilities, or other structures shall be indicated on
the layout.
(12) Gravesites. Gravesites shall be laid out in uniform pattern.
There shall be a minimum of 10 feet from the edge of roads and drives
and a minimum of 20 feet from the boundaries or fence lines. Maximum
distance from the edge of a permanent road to any gravesite shall not
be over 275 feet. Temporary roads may be provided to serve areas in
phase developments.
(13) Monumentation. Each grave shall be marked with an appropriate
marker, and each cemetery shall maintain a register of burials setting
forth the name of each person buried and the designation of the grave
in which he/she is buried. Permanent gravesite control markers shall be
installed based on a grid system throughout the burial area unless
otherwise specified. This will facilitate the gravesite layout,
placement of utility lines, and alignment of headstones.
(14) Entrance. The entrance should be an architectural or landscape
feature that creates a sense of arrival.
(15) Memorial walkway. Each cemetery should have an area for the
display of memorials donated by veterans groups and others. Such areas
may take the form of a path or walkway and should provide a
contemplative setting for visitors.
(16) Donation items. Family members and others often wish to donate
items such as benches and trees. Acceptable items of donation should be
specified in the cemetery plan. The plan should also designate
appropriate locations for such items.
(17) Flag/assembly area. There shall be one primary flagpole for
the United States flag. This flag shall be lighted. A turf assembly
area should be developed for major gatherings such as Memorial Day. The
assembly area may be focused on the flag. The area may also incorporate
an architectural or a landscape feature that functions as a platform or
backdrop for speakers.
(18) Site furnishings. Site furnishings include signage, trash
receptacles, benches, and flower containers. These items should be
coordinated and complement each other, the architectural design, and
the cemetery as a whole. They should be simple, durable, standardized,
and properly scaled.
(19) Carillons. The cemetery development plan should include a
location for a carillon tower. Carillons are normally donated. They are
not provided for in the grant.
(Authority: 38 U.S.C. 501, 2408)
Sec. 39.62 Space criteria for support facilities.
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 Sec. 39.60(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.
(a) Administrative building. The administrative building should be
approximately 1,600 NSF in total, providing space, as needed, for the
following:
(1) Cemetery director's office;
[[Page 34013]]
(2) Other offices (as needed);
(3) Administrative staff (lobby/office area);
(4) Operations (file/office/equipment/work area);
(5) Family/conference room;
(6) Military honors team;
(7) Refreshment unit;
(8) Housekeeping aide's closet; and
(9) Restroom facilities.
(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 and air conditioned space, as needed, for the following:
(1) Foreman's office;
(2) Lunch room;
(3) Kitchen unit;
(4) Toilet and locker room facilities;
(5) Housekeeping aide's closet; and
(6) Vehicle and equipment maintenance and storage.
(c) Vehicle and equipment storage. Approximately 275 NSF/Bay as
needed. Not all types of vehicles and equipment require storage in
heated space. Based on climatic conditions, it may be justified to rely
completely on open structures rather than heated structures to protect
the following types of vehicles and equipment: Dump trucks, pickup
trucks, cemetery automobiles, gang and circular mowers.
(d) Interment/committal service shelter. One permanent shelter is
authorized for every five interments per day. The shelter may include a
covered area to provide seating for approximately 20 people and an
uncovered paved area to provide space for approximately 50 additional
people. The shelter may also include a small, enclosed equipment/
storage area. Provisions must be made for the playing of Taps by
recorded means.
(e) Public Information Center. One permanent Public Information
Center is authorized per facility. A Public Information Center is used
to orient visitors and funeral corteges. It should include the
gravesite locator. The public restrooms may also be combined with this
structure. Space determinations for separate structures for public
restrooms shall be considered on an individual basis. The Public
Information Center, including public restrooms, may be combined with
the administrative building.
(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 Sec. 39.60(d).
(Authority: 38 U.S.C. 501, 2408)
Sec. 39.63 Architectural design standards.
The publications listed in this section are incorporated by
reference. 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. Copies of these publications 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 National Archives and Records Administration (NARA).
For information on the availability of this material at NARA, call 202-
741-6030 or go to http://www.archives.gov/federal_register/code_of_federal_regulations/ibr_locations.html. Copies of the 2003 edition of
the National Fire Protection Association Life Safety Code and Errata
(NFPA 101), the 2003 edition of the NFPA 5000, Building Construction
and Safety Code, and the 2002 edition of the National Electrical Code,
NFPA 70, may be obtained from the National Fire Protection Association,
Inc. (NFPA), 1 Batterymarch Park, P.O. Box 9101, Quincy, MA 02269-9101,
800-844-6058 (toll free). Copies of the 2003 edition of the Uniform
Mechanical Code and the 2003 edition of the Uniform Plumbing Code may
be obtained from the International Association of Plumbing and
Mechanical Officials, 5001 E. Philadelphia Street, Ontario, CA 91761-
2816. 909-472-4100 (this is not a toll-free number). The 2002 and 2003
NFPA and IAPMO code publications can be inspected at VA by calling 202-
461-4902 for an appointment.
(a) Architectural and structural requirements--(1) Life Safety
Code. Standards must be in accordance with the 2003 edition of the
National Fire Protection Association Life Safety Code, NFPA 101. Fire
safety construction features not included in NFPA 101 shall be designed
in accordance with the requirements of the 2003 edition of the NFPA
5000, Building Construction and Safety Code. Where the adopted codes
state conflicting requirements, the NFPA 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
2003 edition of the NFPA 5000, Building Construction and Safety Code,
shall apply.
(3) Occupational safety and health standards. Applicable standards
contained in the Occupational Safety and Health Act of 1970 (29 U.S.C.
651 et seq.) must be observed.
(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. Where no local or State codes are in force, the
2003 edition of the Uniform Mechanical Code shall apply.
(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 2003 edition
of the Uniform Plumbing Code shall apply.
(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 set forth in the NFPA 70, National Electrical Code, 2002
edition. 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.
(Authority: 38 U.S.C. 501, 2408)
Subpart C--Operation and Maintenance Projects
Grant Requirements and Procedures
Sec. 39.80 General requirements for a grant.
(a) For a State to obtain a grant for the operation or maintenance
of a State veterans cemetery:
(1) Its preapplication for the grant must be approved by VA under
Sec. 39.81(e);
(2) Its project must be ranked sufficiently high within Priority
Group 4 as defined in Sec. 39.3 for the applicable fiscal year so that
funds are available for the project, and a grant for the project must
not result in payment of more than the $5 million total amount
permissible for all Operation and Maintenance Projects in any fiscal
year;
(3) Its plans and specifications for the project must be approved
by VA under Sec. 39.82;
(4) The State must meet the application requirements in Sec.
39.84; and
(5) Other requirements specified in Sec. Sec. 39.6, 39.10, and
39.83 must be satisfied.
(b) VA may approve under Sec. 39.85 any Operation and Maintenance
Project grant application up to the amount of the grant requested once
the requirements under paragraph (a) of this
[[Page 34014]]
section have been satisfied, provided that sufficient funds are
available and that total amount of grants awarded during any fiscal
year for Operation and Maintenance Projects does not exceed $5 million.
In determining whether sufficient funds are available, VA shall
consider the project's ranking in Priority Group 4; the total amount of
funds available for cemetery grant awards in Priority Group 4 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.
(Authority: 38 U.S.C. 501, 2408)
Sec. 39.81 Preapplication requirements.
(a) A State seeking a grant for the operation or maintenance of a
State veterans cemetery must submit a preapplication to the Director,
State Cemetery Grants Service, through http://www.cem.va.gov/cem/scg_grants.asp.
(b) No detailed drawings, plans, or specifications are required
with the preapplication. As a part of the preapplication, the State
must submit each of the following:
(1) Standard Form 424 (Application for Federal Assistance) and
Standard Form 424C (Budget Information) signed by the authorized
representative of the State. These forms document the amount of the
grant requested, which may not exceed 100 percent of the estimated cost
of the project to be funded with the grant.
(2) VA Form 40-0895-2 (Certification of Compliance with Provisions
of the Davis-Bacon Act) to certify that the State has obtained the
latest prevailing wage rates for Federally funded projects. Any
construction project fully or partially funded with Federal dollars
must comply with those rates for specific work by trade employees
(e.g., electricians, carpenters).
(3) VA Form 40-0895-6 (Certification of State or Tribal Government
Matching Architectural and Engineering Funds to Qualify for Group 1 on
the Priority List) to provide documentation that the State has
legislative authority to support the project and the resources
necessary to initially fund the architectural and engineering portion
of the project development. Once the grant is awarded, VA will
reimburse the applicant for all allowable architectural and engineering
costs.
(4) VA Form 40-0895-7 (Certification Regarding Debarment,
Suspension, and Other Responsibility Matters-Primary Covered
Transactions (State or Tribal Government)) to ensure that the applicant
has not been debarred or suspended, and is eligible to participate in
the VA grant process and receive Federal funds.
(5) VA Form 40-0895-8 (Certification Regarding Drug-Free Workplace
Requirements for Grantees Other Than Individuals) to ensure that the
applicant complies with the Drug-Free Workplace Act of 1988 at the
location where the construction will occur.
(6) VA Form 40-0895-9 (Certification Regarding Lobbying) to ensure
that the applicant complies with Public Law 101-121 regarding the
prohibition against any payments to anyone that influences or attempts
to influence an officer or Member of Congress in connection with the
award of a grant.
(7) VA Form 40-0895-10 (Certification of Compliance with Federal
Requirements-State or Tribal Government Construction Grant) to ensure
that the applicant complies with all requirements of Part 39.
(8) VA Form 40-0895-15 (Certification of Cemetery Maintained in
Accordance with National Cemetery Administration Standards) to ensure
that any cemetery operated or maintained through a grant will be
operated and maintained in accordance with VA's national shrine
standards of appearance.
(9) A gravesite assessment survey documenting the State cemetery's
performance related to the standards outlined in paragraph (b)(10) of
this section for the year in which the preapplication is submitted.
(10) A program narrative describing how the project will assist the
State in meeting VA's national shrine standards with respect to
cleanliness, height and alignment of headstones and markers, leveling
of gravesites, or turf conditions. Specifically, the preapplication
should explain the need for the grant, how the work is to be
accomplished, and the expected improvement in the State cemetery's
performance related to one or more of the following national shrine
standards:
(i) Cleanliness. 90 percent of headstones, markers, and niche
covers must be clean and free of debris and objectionable
accumulations.
(ii) Height. 90 percent of headstones and markers must be set and
maintained at the proper height.
(iii) Alignment. 100 percent of headstones, markers, and niche
covers must be properly installed. Upright headstones in active burial
sections must be uniform in height (24-26 above
ground), horizontally and vertically aligned with inscriptions visible,
and installed to ensure a pleasing top line while compensating for
ground contours. Flat markers must be uniform in height (parallel with
the ground and no more than 1 above grade) and horizontally
and vertically aligned. Niche covers must be horizontally and
vertically aligned. All inscriptions must be visible.
(iv) Grade. 95 percent of the grade of every gravesite must blend
in with adjacent grade levels.
(v) Turf Conditions. 100 percent of visually prominent areas must
have a well-established, healthy stand of turf that is generally weed
free; 95 percent of visually prominent areas with established turf must
be generally free of bare areas.
(11) A description of the geographic location of the existing State
cemetery and any other supporting documentation, as requested by the
SCGS Director.
(12) A description of the project including the number and types of
headstones and markers that need to be cleaned and aligned, a
description of the gravesites that need to be leveled, and a
description of the turf conditions that need to be improved to meet
VA's national shrine standards.
(c) In addition, the State must submit written assurance of each of
the following conditions:
(1) Any cemetery in receipt of a grant under this subpart will be
used exclusively for the interment or memorialization of eligible
persons, as set forth in Sec. 39.10(a), whose interment or
memorialization is not contrary to the conditions of the grant (see
Sec. 39.10(b) and 38 U.S.C. 2408(d) and 2411).
(2) Title to the site is or will be vested solely in the State.
(3) The State possesses legal authority to apply for the grant.
(4) The State will obtain approval by VA of the final
specifications before the project is advertised or placed on the market
for bidding; the project will achieve VA's national shrine standards
with respect to cleanliness, height and alignment of headstones and
markers, leveling of gravesites, or turf conditions in accordance with
the application and approved plans and specifications; the State will
submit to the Director of the State Cemetery Grants Service, for prior
approval, changes that alter any cost of the project; and the State
will not enter into a contract for the project or undertake other
activities until all the requirements of the grant program have been
met.
(d) Depending on the scope of the project, the SCGS will work with
the State to determine which, if any, of the following are required:
(1) Compliance with section 106 of the National Historic
Preservation Act of 1966, as amended (16 U.S.C. 470), Executive Order
11593 (identification
[[Page 34015]]
and protection of historic properties), and the Archaeological and
Historic Preservation Act of 1974 (16 U.S.C. 469a-1 et seq.).
(2) Compliance with the Federal requirements in 2 CFR parts 180 and
801 and 38 CFR part 43 and submission of Standard Form 424D
(Assurances--Construction Programs).
(3) A site Environmental Assessment to determine whether an
Environmental Impact Statement will be necessary as a result of the
work to be performed on the headstones and markers, gravesites, or turf
conditions.
(e) Upon receipt of a complete preapplication for a grant,
including all necessary assurances and all required supporting
documentation, VA will determine whether the preapplication conforms to
all requirements listed in paragraphs (a) through (d) 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 Sec. 39.3(d).
(Authority: 38 U.S.C. 501, 2408, 2411)
(The Office of Management and Budget has approved the information
collection requirements in this section under control numbers 4040-
0004, 4040-0008, 4040-0009, and 2900-0559).
Sec. 39.82 Plan preparation.
(a) The State must successfully complete its plan preparation under
this section before submitting a grant application for an Operation and
Maintenance Project. The State may be required to undertake some or all
of the following requirements of this section. After submitting all
necessary plans and specifications to the SCGS and obtaining approval
for the State to solicit for the Operation and Maintenance Project
contract bids, the State shall:
(1) Obtain bids and determine the successful bidder;
(2) Establish procedures for determining that costs are reasonable
and necessary and can be allocated in accordance with the provisions of
OMB Circular No. A-87 and submit documentation of such determinations
to VA; and
(3) Comply with the uniform requirements for grants-in-aid to State
and local governments prescribed by OMB Circular No. A-102, Revised.
(b) Depending on the scope of the project, the SCGS will work with
the State to determine which of the following will be required prior to
submission of an application. As determined by VA, these may include:
(1) A boundary and site survey comprising a survey and legal
description of the existing State cemetery site;
(2) Project drawings indicating the cemetery section(s) to be
impacted by the Operation and Maintenance Project, gravesite section
layout with permanent section monument markers and lettering system,
and the total number of gravesites to be impacted;
(3) Project specifications (to be used for bid purposes), which
shall include the invitation for bid, cover or title sheet, index,
general requirements, form of bid bond, form of agreement, performance
and payment bond forms, and detailed descriptions of materials and
workmanship for the work to be performed to meet VA's national shrine
standards;
(4) A detailed estimate of the total cost of the work to be
performed under the contract; or
(5) A site Environmental Assessment meeting the provisions of Sec.
39.34(b) 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), as a result of the
work to be performed on the headstones and markers, gravesites, or turf
conditions.
(c) If VA determines that the project's plans and specifications
comply with the terms and conditions prescribed by VA, VA will send the
State a written letter of approval indicating that the project's plans
and specifications comply with the terms and conditions as prescribed
by VA. This does not constitute approval of the contract documents. It
is the responsibility of the State to ascertain that all State and
Federal requirements have been met and that the drawings and
specifications are acceptable for bid purposes.
(Authority: 38 U.S.C. 501, 2408)
(The Office of Management and Budget has approved the information
collection requirement in this section under control number 2900-
0559).
Sec. 39.83 Conferences.
(a) Planning conference. The SCGS may require planning conferences
for Operation and Maintenance Projects, primarily to ensure that the
State agency becomes oriented to VA's national shrine standards,
procedures, requirements, and any technical comments pertaining to the
project. These conferences will normally occur over the telephone.
(b) Additional conferences. At any time, VA may recommend an
additional telephone conference to provide an opportunity for the State
to discuss with VA officials the requirements for an Operation and
Maintenance Project grant.
(Authority: 38 U.S.C. 501, 2408)
Sec. 39.84 Application requirements.
For an Operation and Maintenance Project to be considered for grant
funding under this subpart, the State must submit an application (as
opposed to a preapplication) consisting of the following:
(a) Standard Form 424 (Application for Federal Assistance) 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; and
(d) Standard Form 424D (Assurances--Construction Program).
(e) VA Form 40-0895-11 (Memorandum of Agreement for a Grant to
Construct or Modify a State or Tribal Government Veterans Cemetery) to
identify the parties (VA and applicant), identify the scope of the
project, and indicate how the grant award funds will be paid to the
applicant.
(f) VA Form 40-0895-12 (Certification Regarding Debarment,
Suspension, Ineligibility and Voluntary Exclusion-Lower Tier Covered
Transactions (Contractor)) to ensure that the contractor has not been
debarred or suspended, and is eligible to participate in the VA grant
process and receive Federal funds.
(Authority: 38 U.S.C. 501, 2408)
(The Office of Management and Budget has approved the information
collection requirements in this section under control numbers 4040-
0002, 4040-0008, 4040-0009, and 2900-0559).
Sec. 39.85 Final review and approval of application.
Following VA approval of bid tabulations and cost estimates, the
complete Operation and Maintenance Project grant application will be
reviewed for approval in accordance with the requirements of Sec.
39.80. If the application is approved, the grant will be awarded by a
Memorandum of Agreement of Federal grant funds.
(Authority: 38 U.S.C. 501, 2408)
Award of Grant
Sec. 39.100 Amount of grant.
(a) The amount of an Operation and Maintenance Project grant
awarded
[[Page 34016]]
under this subpart may not exceed 100 percent of the total cost of the
project, but may be less than total cost of the project.
(b) The total cost of a project under this subpart may include any
or all of the following costs:
(1) Administration and design costs, e.g., architectural and
engineering fees, inspection fees, and printing and advertising costs.
(2) Construction costs.
(3) The cost of VA-approved equipment that is necessary for the
completion of the project.
(c) The total cost of a project under this subpart may not include
the cost of any of the following:
(1) Land acquisition;
(2) Buildings of any type;
(3) Improvements not on cemetery land, such as access roads or
utilities;
(4) Office supplies or consumable goods (such as fuel and
fertilizer) that are routinely used in a cemetery; or
(5) Project contingency costs.
(d) VA shall certify approved applications to the Secretary of the
Treasury in the amount of the grant, and shall designate the
appropriation from which it shall be paid. Funds paid for the operation
and maintenance of a veterans cemetery must be used solely for carrying
out approved projects.
(Authority: 38 U.S.C. 501, 2408)
Sec. 39.101 Payment of grant award.
The amount of an Operation and Maintenance Project grant award will
be paid to the State or, if designated by the State representative, the
State veterans 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 installments that are consistent with the
progress of the project, as the Director of the State Cemetery Grants
Service may determine and certify for payment to the appropriate
Federal institution. Funds paid under this section for an approved
Operation and Maintenance Project shall be used solely for carrying out
such project as approved. As a condition for the final payment, the
State representative must submit to VA each of the following:
(a) Standard Form 271 (Outlay Report and Request for Reimbursement
for Construction Programs);
(b) A report on the project accomplishments in accordance with
Sec. 39.120 and a request in writing for the final architectural/
engineering inspection, including the name and telephone number of the
local point of contact for the project;
(c) The written statement, ``It is hereby agreed that the monetary
commitment of the 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 Sec.
39.122.
(Authority: 38 U.S.C. 501, 2408)
(The Office of Management and Budget has approved the information
collection requirements in this section under control number 0348-
0002).
Subpart D--Grant Recipient Responsibilities, Inspections, and
Reports Following Project Completion
Sec. 39.120 Documentation of grant accomplishments.
Within 60 days of completion of an Operation and Maintenance
Project, the State must submit to SCGS a written report regarding the
work performed to meet VA's national shrine standards. This report must
be based on the original justification for the grant as noted in Sec.
39.81(b)(10) and must include statistical data and detailed pictures of
the work accomplished.
(Authority: 38 U.S.C. 501, 2408)
(The Office of Management and Budget has approved the information
collection requirement in this section under control number 2900-
0559).
Sec. 39.121 State responsibilities following project completion.
(a) A State that has received an Establishment, Expansion, and
Improvement Project grant or an Operation and Maintenance Project grant
shall monitor use of the cemetery by various subgroups and minority
groups, including women veterans. If VA determines that under-
utilization by any of these groups exists, the State shall establish a
program to inform members of these groups about benefits available to
them. If a significant number or portion of the population eligible to
be served or likely to be directly affected by the grant program needs
benefits information in a language other than English, the State shall
make such information available in the necessary language.
(b) A State veterans cemetery that has received an Establishment,
Expansion, and Improvement Project grant or an Operation and
Maintenance Project grant shall be operated and maintained as follows:
(1) Buildings, grounds, roads, walks, and other structures shall be
kept in reasonable repair to prevent undue deterioration and hazards to
users.
(2) The cemetery shall be kept open for public use at reasonable
hours based on the time of the year.
(c) VA, in coordination with the State, shall inspect the project
for compliance with the standards set forth in subpart B of this part
for Establishment, Expansion, and Improvement Projects and with the
standards set forth in subpart C of this part for Operation and
Maintenance Projects at the project's completion 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. The State
shall forward to the Director, State Cemetery Grants Service, a copy of
the inspection report, giving the date and location the inspection was
made and citing any deficiencies and corrective action to be taken or
proposed.
(d) Failure of a State to comply with any of paragraphs (a) through
(c) of this section shall be considered cause for VA to suspend any
payments due the State on any project until the compliance failure is
corrected.
(Authority: 38 U.S.C. 501, 2408; and E.O. 13166, 65 FR 50121)
Sec. 39.122 Inspections, audits, and reports.
(a) A State will allow VA inspectors and auditors to conduct
inspections as necessary to ensure compliance with the provisions of
this part. The State will provide to VA evidence that it has met its
responsibility under the Single Audit Act of 1984 (see part 41 of this
chapter).
(b) A State will make an annual report on VA Form 40-0241 (State
Cemetery Data) signed by the authorized representative of the State.
These forms document current burial activity at the cemetery, use of
gravesites, remaining gravesites, and additional operational
information intended to answer questions about the status of the grant
program.
(c) A State will complete and submit to VA a VA Form 40-0895-13
(Certification Regarding Documents and Information Required for State
or Tribal Government Cemetery Construction Grants-Post Grant
Requirements) to ensure that the grantee is aware of and complies with
all grant responsibilities and to properly and timely close out the
grant.
(Authority: 38 U.S.C. 501, 2408)
(The Office of Management and Budget has approved the information
collection requirements in this section under control number 2900-
0559).
[FR Doc. 2010-14058 Filed 6-15-10; 8:45 am]
BILLING CODE 8320-01-P