Animals on VA Property, 49157-49164 [2015-20182]
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Federal Register / Vol. 80, No. 158 / Monday, August 17, 2015 / Rules and Regulations
of a category of actions that do not
individually or cumulatively have a
significant effect on the human
environment. This rule involves the
establishment of a safety zone and,
therefore it is categorically excluded
from further review under paragraph
34(g) of Figure 2–1 of the Commandant
Instruction. An environmental analysis
checklist supporting this determination
and a Categorical Exclusion
Determination are available in the
docket where indicated under
ADDRESSES. We seek any comments or
information that may lead to the
discovery of a significant environmental
impact from this rule.
warrant or petty officer who has been
designated by the Captain of the Port,
Lake Michigan to act on his or her
behalf.
(4) Vessel operators desiring to enter
or operate within the safety zone shall
contact the Captain of the Port, Lake
Michigan or an on-scene representative
to obtain permission to do so. The
Captain of the Port Lake Michigan or an
on-scene representative may be
contacted via VHF Channel 16. Vessel
operators given permission to enter or
operate in the safety zone must comply
with all directions given to them by the
Captain of the Port Lake Michigan, or an
on-scene representative.
List of Subjects in 33 CFR Part 165
Harbors, Marine safety, Navigation
(water), Reporting and recordkeeping
requirements, Security measures,
Waterways.
For the reasons discussed in the
preamble, the Coast Guard amends 33
CFR part 165 as follows:
Dated: August 6, 2015.
A.B. Cocanour,
Captain, U.S. Coast Guard, Captain of the
Port, Lake Michigan.
[FR Doc. 2015–20251 Filed 8–14–15; 8:45 am]
BILLING CODE 9110–04–P
PART 165—REGULATED NAVIGATION
AREAS AND LIMITED ACCESS AREAS
DEPARTMENT OF VETERANS
AFFAIRS
38 CFR Part 1
1. The authority citation for part 165
continues to read as follows:
■
RIN 2900–AO39
Authority: 33 U.S.C. 1231; 50 U.S.C. 191;
33 CFR 1.05–1, 6.04–1, 6.04–6, and 160.5;
Department of Homeland Security Delegation
No. 0170.1.
2. Add § 165.T09–0760 to read as
follows:
Animals on VA Property
Department of Veterans Affairs.
Final rule.
AGENCY:
ACTION:
■
tkelley on DSK3SPTVN1PROD with RULES
§ 165.T09–0760 Safety Zone; U.S. Army
Exercise, Des Plaines River, Channahon, IL.
(a) Location. All waters on the Des
Plaines River between the mile marker
277.8 and mile marker 279.2,
Channahon, IL.
(b) Effective and Enforcement Period.
This rule is effective from 12:01 a.m. on
August 18, 2015 to 11:59 p.m. on
August 20, 2015. This rule will be
enforced with actual notice from 6:30
a.m. until 6:30 p.m. on August 18, 2015
and August 19, 2015, or alternatively if
postponed due to weather, from 6:30
a.m. until 6:30 p.m. on August 20, 2015.
(c) Regulations. (1) In accordance with
the general regulations in § 165.23 of
this part, entry into, transiting, or
anchoring within this safety zone is
prohibited unless authorized by the
Captain of the Port, Lake Michigan or a
designated on-scene representative.
(2) This safety zone is closed to all
vessel traffic, except as may be
permitted by the Captain of the Port
Lake Michigan or a designated on-scene
representative.
(3) The ‘‘on-scene representative’’ of
the Captain of the Port, Lake Michigan
is any Coast Guard commissioned,
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The Department of Veterans
Affairs (VA) amends its regulation
concerning the presence of animals on
VA property. This final rule expands the
current VA regulation to authorize the
presence of service animals consistent
with applicable Federal law when these
animals accompany individuals with
disabilities seeking admittance to
property owned or operated by VA.
DATES: This rule is effective September
16, 2015.
FOR FURTHER INFORMATION CONTACT:
Joyce Edmonson, RN, JD, Patient Care
Services, (10P4), Veterans Health
Administration, Department of Veterans
Affairs, 810 Vermont Avenue NW.,
Washington, DC 20420, (410) 637–4755.
(This is not a toll free number.)
SUPPLEMENTARY INFORMATION: On
November 21, 2014, VA published in
the Federal Register (79 FR 69379) a
proposed rule to amend VA regulations
regarding the presence of animals on VA
property. This rule authorizes the access
of service animals when these animals
accompany individuals with disabilities
seeking admittance to VA property in a
manner consistent with applicable
Federal law, and clarifies the authority
of a VA facility head or designee to
SUMMARY:
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49157
allow non-service animals to be present
on VA property.
Interested persons were invited to
submit comments to the proposed rule
on or before January 20, 2015, and VA
received 96 comments. All of the issues
raised by the commenters that
concerned at least one portion of the
rule can be grouped together by similar
topic, and we have organized our
discussion of the comments
accordingly. For the reasons set forth in
the proposed rule and below, we are
adopting the proposed rule as final,
with changes, explained below, to
proposed 38 CFR 1.218(a)(11).
Multiple commenters stated that it
was unclear to what groups of
individuals the proposed rule would
apply. One commenter specifically
expressed concern as to whether a
service animal that assisted a visitor of
a veteran would be permitted on VA
property. We clarify for these
commenters that this VA regulation
applies to everyone seeking access to
VA property, to include employees,
veterans, and visitors. The rule as
proposed did not contain any limiting
language to restrict applicability to only
certain groups of individuals, and we
therefore do not make any changes to
the final rule based on these comments.
Several commenters applauded the
development by VA of a uniform
regulation for service animal access for
all VA property, and did not
recommend any changes. VA
appreciates these comments and
believes that this regulation will allow
for more consistent access of VA
property by service animals.
One commenter asserted that VA
should use the term ‘‘assistance animal’’
instead of ‘‘service animals’’ throughout
the proposed regulation because, they
assert, the term ‘‘service animals’’ is
understood more narrowly in the
service animal industry to refer only to
those animals that assist with mobility
impairments. We do not make any
changes based on these comments. We
disagree that the term ‘‘assistance
animal’’ is better understood than
‘‘service animal’’ by those in the service
animal industry. Additionally, this
regulation is written for a broader
audience than just those in the service
animal industry, to include any member
of the public that may have need to
access VA property. Indeed, the term
‘‘service animal’’ as defined in the
proposed rule is well understood by the
general public because it is consistent
with the definition of ‘‘service animal’’
in the regulations that implement the
Americans with Disabilities Act (ADA).
We therefore do not make any changes
based on these comments. A commenter
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also urged that VA use the phrase
‘‘guide dog’’ versus ‘‘seeing eye dog.’’
We do not make any changes based on
this comment because, as proposed and
in this final rule, ‘‘seeing eye dog’’ is
replaced in § 1.218(a)(11) with the term
‘‘service animal,’’ and ‘‘service animal’’
includes those dogs trained for the
purpose of assisting individuals with a
sensory disability (to include visual
impairments). Other commenters further
asserted that the definition of ‘‘service
animal’’ in proposed § 1.218(a)(11)(viii)
be changed to refer to a dog that does
‘‘work or performs tasks’’ as opposed to
a dog that does ‘‘work and performs
tasks.’’ Particularly, commenters noted
that VA used both these phrases
interchangeably in proposed
§ 1.218(a)(11)(viii), and asserted that
this was confusing. We agree with these
comments, and clarify that the intent
was to use only the phrase ‘‘work or
performs tasks’’ throughout the
definition of ‘‘service animal.’’ We
therefore make changes to ensure that
the phrase ‘‘work or perform tasks’’ is
used consistently throughout
§ 1.218(a)(11)(viii).
One commenter was concerned that
breed restrictions may be imposed based
on a perception that certain breeds of
dogs are prone to violence. This VA
regulation does not impose breed
restrictions, and VA will not otherwise
pose breed restrictions for purposes of
access of service animals on VA
property. VA will only deny access to
VA property or will remove a service
animal from VA property based on an
individual assessment in accordance
with objective criteria of the risks that
the individual service animal poses to
the health or safety of people or other
service animals. VA makes no changes
based on this comment.
Several commenters sought
clarification between a ‘‘service animal’’
and a ‘‘pet,’’ and whether animals other
than dogs were included in the
definition of ‘‘service animal.’’ As
proposed, § 1.218(a)(11)(viii) defined a
‘‘service animal’’ as any dog that
accompanies an individual with a
disability and that is individually
trained for that purpose. The definition
in proposed § 1.218(a)(11)(viii)
specifically excluded any species of
animal other than a dog, and
specifically required that the work or
tasks performed by the service animal
be directly related to the individual’s
disability. Further, § 1.218(a)(11)(viii)
distinguished that the crime deterrent
effects of an animal’s presence, or the
provision of emotional support or wellbeing, comfort, or companionship do
not constitute ‘‘work or tasks.’’ The
definition as proposed in
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§ 1.218(a)(11)(viii) clearly excluded any
animal other than a dog, and also
excluded any dog that is not
individually trained to assist an
individual with a disability. As
proposed, § 1.218(a)(11)(viii) makes
clear that unless the animal is a dog that
is individually trained to do something
that qualifies as work or a task, the
animal is a pet or other type of animal
and does not qualify as a service animal.
We believe the definition in proposed
§ 1.218(a)(11)(viii) is clear enough to
exclude a ‘‘pet,’’, and we therefore do
not make any changes based on these
comments.
Several commenters wanted VA to
permit miniature horses on VA
properties. As discussed in the
proposed rule, VA believes the presence
of a miniature horse poses legitimate
safety concerns, both to people on VA
property and the miniature horse,
especially on VA healthcare properties.
This final rule reiterates VA’s
determination from the proposed rule,
that, in light of a review of the multiple
assessment factors, miniature horses are
excluded from VA properties. We
restate from the proposed rule that these
assessment factors include the larger
size of a miniature horse as well as their
reduced predictability in behaving in
accordance with typical standards of
public access required of service
animals. Additional factors from the
proposed rule that VA considers to
support the exclusion of miniature
horses include elimination of horse
waste, a heightened flee response of a
miniature horse, the smooth flooring
common to VA properties, and the
likely disruptive attention a horse
would receive. We therefore do not
make any changes based on these
comments.
Many commenters expressed concern
that the proposed rule restricted access
to only those dogs trained or certified by
Assistance Dogs International (ADI),
International Guide Dog Federation
(IGDF), or one of their affiliated
organizations. The proposed rule did
not create such restrictions; as
proposed, VA’s standard for service
animal access is consistent with
regulations that implement the ADA
and is not dependent on how the service
animal was trained or by whom, but
instead depends on the service animal’s
ability to behave in accordance with
typical public access standards for
public settings. Therefore, we do not
make any changes based on these
comments. VA notes that a service
animal must be certified by ADI or IGDF
as a requirement for veterans seeking
service dog benefits under 38 CFR
17.148, however, those requirements for
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benefits do not apply to access.
Conversely, several commenters
asserted that service animal access to
VA properties should be restricted to
only those animals that are certified or
trained by ADI, IGDF, or an affiliate—
these commenters articulated various
negative experiences where a ‘‘fake
service animal’’ threatened their person,
their service animal, or another person
while on VA property or other property.
VA recognizes that these commenters
have legitimate concerns related to dogs
that are not appropriately trained
possibly being able to access VA
property under the guise of a ‘‘service
dog,’’ because VA will not be requiring
any proof of training or certification for
purposes of access. However, the lack of
such a documentation requirement is
consistent with regulations that
implement the ADA, and otherwise
provides the benefit of the doubt to
individuals with disabilities unless the
service animal’s behavior necessitates
that access be denied or the service
animal be removed. VA does not make
any changes based on these comments,
but we stress that § 1.218(a)(11)(ii) still
provides for removal of a service animal
from certain areas on VA property if the
animal exhibits behavior or other signs
that it is a threat to the health or safety
of individuals or other service animals
on VA property.
Several commenters objected to the
requirements in proposed
§ 1.218(a)(11)(vii) to provide proof of a
service animal’s good health when an
individual will be accompanied by a
service animal while receiving
treatment in a Veterans Health
Administration (VHA) residential
program. Some of these commenters
alluded to an administrative burden of
‘‘registering’’ a service animal to obtain
access to the VA property. We clarify for
these commenters that § 1.218(a)(11)(vii)
only applies to situations where an
individual would be accompanied by a
service animal for the duration of his or
her treatment in a VHA residential
program—these documentation
requirements would not apply for more
general access to a VA property, such as
to receive outpatient care provided by
VA. The presentation of certain records
as proof of an animal’s health required
in § 1.218(a)(11)(vii) is necessary when
a service animal will have routine and
constant interaction with employees,
veterans, patients, and visitors over the
course of an extended period of time in
a residential setting, so that VA may
ensure patient care, patient safety, and
infection control standards are met.
However, we do agree with the
commenters who noted that some of the
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requirements in § 1.218(a)(11)(vii) as
proposed could create an undue
administrative burden on both
individuals receiving treatment as well
as VA staff. We therefore make changes
in the final rule to remove
§ 1.218(a)(11)(vii)(A)–(C), and to revise
§ 1.218(a)(11)(vii) to require that the
individual receiving treatment in a
residential program must only provide
documentation that confirms that the
service animal has a current rabies
vaccine and current core canine
vaccines. We further revise the
conditions in § 1.218(a)(11)(vii) related
to when a rabies vaccine and core
canine vaccines are considered
‘‘current’’ to require ‘‘a current rabies
vaccine as determined by state and local
public health requirements, and current
core canine vaccines as dictated by local
veterinary practice standards (e.g.
distemper, parvovirus, and adenovirus2).’’ These changes will retain the
requirement for documentation of basic
canine vaccinations that we believe is
necessary to ensure the service animal
is in good health, while providing more
flexibility of those required vaccinations
in accordance with local requirements.
These revisions will also remove the
requirement for proof of a
comprehensive exam within the past 12
months, as well as remove the
requirement that an individual must
otherwise confirm in writing that the
service animal is healthy. We believe
that the revised documentation
requirements in § 1.218(a)(11)(vii) now
relate only to the basic canine vaccines
that an the individual would have
merely as a function of being a
responsible dog owner, and therefore
providing such documentation to VA for
confirmation is not burdensome. We
make similar changes to the
documentation requirements related to
the health of non-service animals in
§ 1.218(a)(11)(ix)(C)–(E), specifically to
clarify that the prophylactic medication
requirement for non-service animals
applies only to parasite control
medications (e.g. monthly flea and tick
prevention), and to clarify that the
health requirements for non-service
animals are consistent with local
veterinary practice standards.
One commenter suggested that the
mere presence of a flea or tick on a
service animal should not be grounds
for removal of a service animal under
§ 1.218(a)(11)(ii)(C)(2), particularly for
individuals being treated in VA
residential settings. VA does not make
any changes based on this comment. We
reiterate from the proposed rule that the
presence of a flea or tick poses a threat
to the health and safety of others, as
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fleas, ticks, and other parasites can be
spread by physical contact and close
proximity and can reproduce quickly
and in great volume to create infestation
conditions that are much more difficult
to remediate, versus removing a service
animal with visible external parasites.
We note, however, that under
§ 1.218(a)(11)(ii)(C), VA staff must
complete an individualized assessment
based on objective indications, such as
external signs of parasites, to ascertain
the severity of risk to the health or
safety of people or other service
animals.
Several commenters suggested that
VA revise § 1.218(a)(11)(viii) to permit
service dogs in training to access VA
property. Some of these commenters
reasoned that a service dog in training
could be well trained enough to
dependably behave safely in public
settings, even without having fully
completed their training. Other
commenters expressed that VA
properties could be used as training
opportunities for service animals. VA
seeks to maintain a safe and therapeutic
environment at its properties. In a
complex hospital environment, we
believe that service animals should be
fully trained and a ‘‘service animal in
training’’ is not fully trained. We
therefore do not revise
§ 1.218(a)(11)(viii) to permit service
animals in training.
Several commenters inquired as to
how VA’s service animal access rule
would be enforced, particularly with
regard to staff training. Some
commenters expressed concerns about
‘‘fake service animals’’ interfering with
the need for people and service animals
to safely access VA properties. Others
expressed concerns that VA’s proposed
rule would establish a barrier to access
or expressed concern regarding the
authority of varying facility directors to
devise implementation criteria that
would restrict access outside of the
proposed rule. VA does not make any
changes based on these comments. The
final rule establishes a set of
standardized criteria that can be
uniformly enforced on VA property, and
removes variation amongst individual
facilities that existed prior to this final
rule. A service animal meeting VA’s
requirements under this final rule will
not be subject to any barrier to access.
And once on VA property, service
animals are subject to the same terms,
conditions and regulations that govern
the admission of the public to VA
property, to include certain exceptions
on VHA properties to ensure patient
care, patient safety, and infection
control standards are not compromised.
Therefore, service animals would only
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be denied access or removed if, based
on an individualized assessment that is
subject to objective indications in the
final rule to ascertain severity of risk,
there is cause for access denial or
removal. VA anticipates that in most
cases concerns related to access and
removal will be communicated by
veterans, employees, or visitors to VA
staff members (including security and
law enforcement) who will manage any
concerns and facilitate an appropriate
response. VA anticipates all appropriate
staff members will be trained on what
is and what is not allowed under this
regulation and how it should be
implemented.
Several commenters expressed
concern about the requirement in
proposed § 1.218(a)(11)(i) that the
service animal be in a guiding harness
or on a leash, as well as under the
control of the individual with a
disability, at all times while on VA
property. These commenters asserted
that multiple disabilities might prevent
an individual from physically
controlling a service animal via a
harness or leash, or that the service
animal’s presence on a leash or other
tether at all times might prevent that
service animal from completing work or
tasks they are trained to perform.
Further, some commenters urged VA to
adopt a standard that mimics that of the
regulations that implement the ADA,
whereby control over the service animal
by the handler can be in the form of
voice control. VA agrees with these
comments, and amends § 1.218(a)(11)(i)
to incorporate comparable language to
that used in the regulations that
implement the ADA. Cf. 28 CFR
36.302(c)(4).
Likewise, after considering related
comments, VA recognizes that
individuals with disabilities may
require the assistance of an alternate
handler to control the service animal
while on VA property. The need for an
alternate handler may arise when the
individual with the disability is unable
to control the service animal because of
the care the individual receives; or
when the service animal, individual
with a disability, and the alternate
handler routinely operate as part of a
team when accessing public areas. For
this reason, VA amends § 1.218(a)(11)(i)
and (a)(11)(ii)(A) to allow for an
alternate handler to also be in control of
the service animal. Specifically,
§ 1.218(a)(11)(i) will state that a service
animal shall be under the control of the
person with the disability or an
alternate handler at all times while on
VA property. Section 1.218(a)(11)(i) will
also state that a service animal shall
have a harness, leash, or other tether,
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unless either the handler is unable
because of a disability to use a harness,
leash, or other tether, or the use of a
harness, leash, or other tether would
interfere with the service animal’s safe,
effective performance of work or tasks,
in which case the service animal must
be otherwise under the handler’s control
(e.g., voice control, signals, or other
effective means). We reiterate, that at no
time is any VA employee to be
responsible for the control of the service
animal, as set forth in § 1.218(a)(11)(i).
Several commenters inquired into
whose responsibility is it to clean up
animal waste and if VA properties have
to designate an area for animals to
relieve themselves. Commensurate with
the requirements for access is a properly
housebroken service animal. Should a
service animal relieve bowel or bladder
on VA property, it is the responsibility
of the handler or the alternate handler
to properly dispose of the waste in
accordance with standards appropriate
for public settings. VA again notes that
at no time is any employee to be
responsible to control a service animal
and part of the access requirements is
that an animal is housebroken. VA
makes no change based on this
comment.
Several commenters objected to the
absolute prohibition of service animal
access to certain areas of VHA property
in proposed 1.218(a)(11)(iii), citing
contrary standards that permit such
access in regulations that implement the
ADA as well as guidance issued by the
Centers for Disease Control and
Prevention (CDC). Particularly,
commenters objected to the categorical
exclusion of service animals from
inpatient hospital settings to include
locked mental health units (in proposed
§ 1.218(a)(11)(iii)(C)), and from patient
rooms or treatment areas where patients
may have an animal allergy or phobia
(in proposed § 1.218(a)(11)(iii)(E)). VA
cited three examples of acute inpatient
hospital settings in proposed
§ 1.218(a)(11)(iii)(C) (intensive care
units, stabilization units, and locked
mental health units) in a representative
but not exhaustive list of areas that
could be covered by this exclusion. In
light of the comments received, VA
revises § 1.218(a)(11)(iii)(C) to remove
these examples, and instead qualify the
exclusion of service animals in acute
inpatient settings to exclude such
animals when their presence is not part
of a documented treatment plan. VA
agrees with the commenters that there
are scenarios in which a service animal
on any of the specific areas in proposed
§ 1.218(a)(11)(iii)(C) may provide its
services when the individual being
treated or an alternate handler can
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control a service animal as part of a
treatment plan established by the
clinical care team. Although VA used
CDC guidance to justify the area-based
exclusions in proposed
§ 1.218(a)(11)(iii)(C) (see 79 FR 69379,
69381), VA believes that this revision is
still consistent with CDC’s guidance
because the service animal would not be
permitted to access the inpatient area if
not part of a documented treatment
plan. The animal would require a staff
assessment under § 1.218(a)(11)(ii)(C) to
evaluate any threat to the health or
safety of patients or staff. A service
animal could still be removed under
§ 1.218(a)(11)(ii) if it presented a risk to
patient safety or infection control
standards after gaining access to an
acute inpatient setting. For these same
reasons, VA removes proposed
§ 1.218(a)(11)(iii)(E), the prohibition of
the presence of service animals in
patient rooms or areas where a patient
may have an animal allergy or phobia.
Again, a service animal could be
removed from such an area if the animal
posed a risk to patient safety or health,
under § 1.218(a)(11)(ii). By removing
proposed § 1.218(a)(11)(iii)(E), we will
renumber proposed § 1.218(a)(11)(iii)(F)
and (iii)(G) as (iii)(E) and (iii)(F),
respectively.
However, VA will not remove all
categorical area-based exclusions of
service animals on VHA property from
proposed § 1.218(a)(11)(iii). VA’s
healthcare facilities reflect evidence
based standards governing safe
operation of a healthcare facility, patient
care, and infection control. Consistent
with CDC guidance, VA still finds
certain locations such as operating
rooms, surgical suites, areas where
invasive procedures are being
performed, decontamination, sterile
processing, sterile storage areas, food
preparation areas (not to include public
food service areas), and any areas where
protective barrier measures are required,
to be inappropriate environments for a
service animal. One commenter
recommended removing the
representative examples in proposed
§ 1.218(a)(11)(iii)(A)–(C) as redundant of
places where protective barrier
measures are required. We decline to
remove these examples because they
add clarity regarding the types of areas
where access must be restricted to
ensure patient care, patient safety or
infection control standards are not
compromised. While we will retain
these area-based exclusions and the
examples provided in the final rule, in
response to comments we will revise
§ 1.218(a)(11)(iii)(F) as proposed,
renumbered as § 1.218(a)(11)(iii)(E), to
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include the clarifying parenthetical
‘‘(not to include public food service
areas).’’ We will also revise
§ 1.218(a)(11)(iii)(G) as proposed,
renumbered as § 1.218(a)(11)(iii)(F), to
refer to areas ‘‘where personal protective
clothing must be worn or barrier
protective measures must be taken to
enter,’’ instead of referring to areas that
require ‘‘personal protective
equipment’’ to be worn. We agree with
commenters that ‘‘personal protective
equipment’’ in proposed
§ 1.218(a)(11)(iii)(G) could be
interpreted to encompass even the
wearing of basic equipment by patients,
staff, or visitors like paper face masks or
examination gloves, which could
qualify nearly any area of a VHA
medical facility as categorically
excluding the presence of a service
animal. The revisions to proposed
§ 1.218(a)(11)(iii)(G)
(§ 1.218(a)(11)(iii)(F) as renumbered)
more accurately describe the types of
areas that a service animal will be
restricted from entering.
We emphasize that even with these
changes to the area-based exclusions in
§ 1.218(a)(11)(iii), a specific service
animal may still be individually denied
access or removed if it does not meet the
standards in § 1.218(a)(11)(i) and
(a)(11)(ii), namely that the animal must
be controlled (by the individual or an
alternate handler that is not a VA
employee), be housebroken, and not
pose a threat to the health and safety of
people or other service animals.
Several commenters expressed
concerns regarding the provision of
service dogs, service dog training, and
service dog benefits by VA. Particularly,
some commenters asserted that VA
should assist veterans to obtain a service
dog and have such a dog trained and
certified. These comments are beyond
the scope of this rule, and we therefore
do not make any changes. We note,
however, that the provision of service
dog benefits by VA is regulated at 38
CFR 17.148. Other commenters noted
the benefits of service animals for the
treatment of PTSD, but did not
necessarily suggest any changes to the
proposed rule. Again, these comments
are beyond the scope of this rule, and
we therefore do not make any changes.
Some commenters requested that the
final rule provide examples of what VA
considers to be ‘‘work’’ or ‘‘tasks’’ that
a service animal may be trained to
perform, either in the preamble or
through revisions to the regulation text.
Commenters noted that such examples
would be particularly helpful for a
service animal that might assist an
individual with a mental disability or
illness. We decline to make revisions to
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the regulation text or provide examples
in the preamble of this final rule.
However, we do provide as reference
here the supplemental guidance issued
by the Department of Justice when it last
issued regulations on this subject in
2010, specifically on what constitutes
‘‘work or tasks’’ that a service animal
may provide (see Appendix A to 28 CFR
part 36, Guidance on Revisions to ADA
Regulation on Nondiscrimination on the
Basis of Disability by Public
Accommodations and Commercial
Facilities, 75 FR 56236, 56258). This
reference provides examples of work or
tasks that VA understands to be
performed by service animals for
individuals with disabilities so that
such individuals may better navigate
public spaces. By providing this
reference of examples of work and tasks
in the context of public access, VA is
not expressing a position on the efficacy
of such dogs for the treatment of the
disabilities of the individuals.
One commenter urged VA to include
emotional support animals in the
definition of ‘‘service animal’’ in
§ 1.218(a)(11)(viii) as proposed. The
commenter asserted that because many
veterans with PTSD use emotional
support animals in their homes, that
refusing access to emotional support
animals on VA property could
discourage use of VA services by such
veterans. This same commenter also
made a reference to Department of
Housing and Urban Development (HUD)
regulations and guidance that create
exclusions for public housing’s ‘‘no pet’’
policies for certain animals, to include
permitting access for emotional support
animals in applicable circumstances,
and suggested that VA consider
developing a similar rule regarding
emotional support animal access on VA
property. Another commenter suggested
adopting HUD’s approach in the context
of VA’s residential treatment programs.
VA does not disagree that some veterans
may use emotional support animals, nor
disagree with the commenters’
subjective accounts that such animals
have improved the quality of their lives.
However, the HUD regulations and
guidance referenced by the commenters
appropriately apply in the context of
public housing. In particular, the HUD
regulations and guidance do not require
an animal to be individually trained to
do work or perform tasks for the benefit
of the individual with a disability.
However, there is a distinction between
the presence of an animal in public
areas and the functions that animal
performs to enable an individual to use
public services and public
accommodations (service animal), as
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compared to the presence and use of a
comfort or emotional support animal in
the home (emotional support animal).
Regarding VHA’s residential treatment
programs, these programs involve
shared spaces amongst multiple
veterans, where there is an active
treatment component that involves the
participation of not only the veterans
but also treatment providers as well as
other members of the public at times.
Therefore, we interpret VHA residential
programs to be public treatment spaces
(just as the other areas of VHA property
that are specified in this final rule),
rather than a residential space
analogous to the HUD public housing
context. We therefore do not make any
changes based on these comments.
Commenters expressed concern about
the area-based restrictions for property
under the control of the National
Cemetery Administration (NCA) in
proposed § 1.218(a)(11)(iv). We interpret
such comments to be the result of a
misunderstanding by commenters that
new restrictions were being created in
the proposed rule when in fact the
proposed area-based restrictions reflect
existing restrictions on NCA property in
accordance with rules requiring access
on the same terms, conditions, and
regulations that generally govern
admission of the public to the property.
That is, the proposed and final rules
only clarify that where an individual
may not access NCA property (i.e., in
NCA construction or maintenance sites,
or in NCA open interment areas), so,
too, a service animal may not access
such property. This rule does not affect
the right of an individual to be
accompanied by their service animal on
NCA grounds in those areas where the
general public is permitted. However,
these comments raise the possibility
that the provision regarding restriction
of access to open interment areas may
be perceived as overly restrictive. We
have, therefore, made a change to
§ 1.218(a)(11)(iv)(A) to remove the
reference to columbaria (as columbaria
pose minimal safety issues), and to
indicate that individuals may be
permitted to observe an individual
interment or inurnment accompanied by
a service animal. This change will allow
family or representatives (such as
clergy), accompanied by their service
animals, to observe an interment or
inurnment when requested and when
such observation can be safely
accommodated.
VA makes one technical correction in
§ 1.218(a)(11)(viii). In the last sentence,
VA is replacing ‘‘of this chapter’’ with
a complete citation ‘‘38 CFR 17.148.’’
VA also makes several minor, nonsubstantive edits for clarity such as
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removing the first commas appearing in
proposed § 1.218(a)(11)(ix)(C) and (D),
replacing the word ‘‘on’’ with the word
‘‘in’’ three places in § 1.218(a)(11)(ix)(E)
in reference to VA Community Living
Centers, and adding the clarifying
phrase ‘‘with respect to an individual’’
to the definition of a disability in
§ 1.218(a)(11)(x).
One commenter asked for clarification
if animals other than dogs can
participate in Animal Assisted
Activities (AAA) or Animal Assisted
Therapy (AAT) programs under
§ 1.218(a)(11)(ix)(C) and (ix)(D) as
proposed. Unlike service animals under
the proposed and final rules, there is no
species restriction for AAA or AAT
animals, and AAA or AAT animals are
permitted on VHA property only at the
discretion of the VA facility head or
designee. Should an AAA or AAT
animal that is not a dog meet the
requirements in § 1.218(a)(11)(ix)(C) and
(D), a VA facility head or designee may
grant that animal access to VA property.
Another commenter suggested that VA
allow for pets to visit patients in unique
circumstances such as end-of-life
situations. As with other species of
animals, there is no categorical
restriction for AAA or AAT animals that
would necessarily exclude a personal
pet in an end-of-life or other special
circumstance. Should an animal serve
an AAA or AAT purpose and meet the
requirements in § 1.218(a)(11)(ix)(C) and
(D), a VA facility head or designee may
grant that animal access to VA property.
In addition, a commenter suggested that
AAA and AAT animals be allowed on
VA property only when their handler or
organization has liability insurance. We
do not disagree that liability insurance
would be a sensible requirement,
particularly as AAA is often conducted
in group settings. However, VA believes
that any liability insurance would be
better addressed outside of a regulatory
requirement by the VA facility head or
designee and the AAA or AAT handler
or organization prior to establishing a
particular program at a facility. VA
makes no changes based on these
comments.
For all of the reasons noted above, VA
is adopting the rule as final with
changes as noted to 38 CFR 1.218.
Effect of Rulemaking
Title 38 of the Code of Federal
Regulations, as revised by this
rulemaking, represents VA’s
implementation of its legal authority on
this subject. Other than future
amendments to this regulation or
governing statutes, no contrary guidance
or procedures are authorized. All
existing or subsequent VA guidance
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must be read to conform with this
rulemaking if possible or, if not
possible, such guidance is superseded
by this rulemaking.
Paperwork Reduction Act
This final rule includes a collection of
information under the Paperwork
Reduction Act of 1995 (44 U.S.C. 3501–
3521) that requires approval by the
Office of Management and Budget
(OMB). Accordingly, under 44 U.S.C.
3507(d), VA has submitted a copy of
this rulemaking action to OMB for
review.
OMB assigns a control number for
each collection of information it
approves. VA may not conduct or
sponsor, and a person is not required to
respond to, a collection of information
unless it displays a currently valid OMB
control number. Section 1.218(a)(11)
contains a collection of information
under the Paperwork Reduction Act of
1995. OMB has approved the
information collection requirement in
this section as an emergency clearance
under control number 2900–0831. This
emergency clearance expires on
December 31, 2015, before which time
VA will submit to OMB a request for
permanent clearance.
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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
directly affects only individuals and
will not directly affect small entities.
Therefore, pursuant to 5 U.S.C. 605(b),
this rulemaking is exempt from the final
regulatory flexibility analysis
requirements of 5 U.S.C. 604.
Executive Orders 12866 and 13563
Executive Orders 12866 and 13563
direct agencies to assess the costs and
benefits of available regulatory
alternatives and, when regulation is
necessary, to select regulatory
approaches that maximize net benefits
(including potential economic,
environmental, public health and safety
effects, and other advantages;
distributive impacts; and equity).
Executive Order 13563 (Improving
Regulation and Regulatory Review)
emphasizes the importance of
quantifying both costs and benefits,
reducing costs, harmonizing rules, and
promoting flexibility. Executive Order
12866 (Regulatory Planning and
Review) defines a ‘‘significant
regulatory action,’’ requiring review by
OMB, unless OMB waives such review,
as ‘‘any regulatory action that is likely
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to result in a rule that may: (1) Have an
annual effect on the economy of $100
million or more or adversely affect in a
material way the economy, a sector of
the economy, productivity, competition,
jobs, the environment, public health or
safety, or State, local, or tribal
governments or communities; (2) Create
a serious inconsistency or otherwise
interfere with an action taken or
planned by another agency; (3)
Materially alter the budgetary impact of
entitlements, grants, user fees, or loan
programs or the rights and obligations of
recipients thereof; or (4) Raise novel
legal or policy issues arising out of legal
mandates, the President’s priorities, or
the principles set forth in this Executive
Order.’’
The economic, interagency,
budgetary, legal, and policy
implications of this final rule have been
examined and it has been determined
not to be a significant regulatory action
under Executive Order 12866. VA’s
impact analysis can be found as a
supporting document at https://
www.regulations.gov, usually within 48
hours after the rulemaking document is
published. Additionally, a copy of this
rulemaking and its impact analysis are
available on VA’s Web site at https://
www.va.gov/orpm/, by following the
link for ‘‘VA Regulations Published
From FY 2004 Through Fiscal Year to
Date.’’
Unfunded Mandates
The Unfunded Mandates Reform Act
of 1995 requires, at 2 U.S.C. 1532, that
agencies prepare an assessment of
anticipated costs and benefits before
issuing any rule that may result in an
expenditure by State, local, and tribal
governments, in the aggregate, or by the
private sector, of $100 million or more
(adjusted annually for inflation) in any
one year. This final rule will have no
such effect on State, local, and tribal
governments, or on the private sector.
Catalog of Federal Domestic Assistance
The Catalog of Federal Domestic
Assistance numbers and titles for the
programs affected by this document are
64.007, Blind Rehabilitation Centers;
64.009, Veterans Medical Care Benefits;
64.010, Veterans Nursing Home Care;
and 64.011, Veterans Dental Care.
Signing Authority
The Secretary of Veterans Affairs, or
designee, approved this document and
authorized the undersigned to sign and
submit the document to the Office of the
Federal Register for publication
electronically as an official document of
the Department of Veterans Affairs.
Robert L. Nabors II, Chief of Staff,
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Department of Veterans Affairs,
approved this document on June 5,
2015, for publication.
List of Subjects in 38 CFR Part 1
Administrative practice and
procedure, Cemeteries, Government
property, Security measures.
Dated: June 19, 2015.
Michael Shores,
Chief Impact Analyst, Office of Regulation
Policy & Management, Office of the General
Counsel, Department of Veterans Affairs.
For the reasons stated in the
preamble, VA amends 38 CFR part 1 as
follows:
PART 1—GENERAL PROVISIONS
1. The authority citation for part 1
continues to read as follows:
■
Authority: 38 U.S.C. 501(a), and as noted
in specific sections.
2. Revise § 1.218(a)(11) to read as
follows:
■
§ 1.218. Security and law enforcement at
VA facilities.
(a) * * *
(11) Animals. (i) Service animals, as
defined in paragraph (a)(11)(viii) of this
section, are permitted on VA property
when those animals accompany
individuals with disabilities and are
trained for that purpose. A service
animal shall be under the control of the
person with the disability or an
alternate handler at all times while on
VA property. A service animal shall
have a harness, leash, or other tether,
unless either the handler is unable
because of a disability to use a harness,
leash, or other tether, or the use of a
harness, leash, or other tether would
interfere with the service animal’s safe,
effective performance of work or tasks,
in which case the service animal must
be otherwise under the handler’s control
(e.g., voice control, signals, or other
effective means). VA is not responsible
for the care or supervision of a service
animal. Service animal presence on VA
property is subject to the same terms,
conditions, and regulations as generally
govern admission of the public to the
property.
(ii) A service animal will be denied
access to VA property or removed from
VA property if:
(A) The animal is not under the
control of the individual with a
disability or an alternate handler;
(B) The animal is not housebroken.
The animal must be trained to eliminate
its waste in an outdoor area; or
(C) The animal otherwise poses a risk
to the health or safety of people or other
service animals. In determining whether
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an animal poses a risk to the health or
safety of people or other service
animals, VA will make an
individualized assessment based on
objective indications to ascertain the
severity of the risk. Such indications
include but are not limited to:
(1) External signs of aggression from
the service animal, such as growling,
biting or snapping, baring its teeth,
lunging; or
(2) External signs of parasites on the
service animal (e.g. fleas, ticks), or other
external signs of disease or bad health
(e.g. diarrhea or vomiting).
(iii) Service animals will be restricted
from accessing certain areas of VA
property under the control of the
Veterans Health Administration (VHA
properties) to ensure patient care,
patient safety, or infection control
standards are not compromised. Such
areas include but are not limited to:
(A) Operating rooms and surgical
suites;
(B) Areas where invasive procedures
are being performed;
(C) Acute inpatient hospital settings
when the presence of the service animal
is not part of a documented treatment
plan;
(D) Decontamination, sterile
processing, and sterile storage areas;
(E) Food preparation areas (not to
include public food service areas); and
(F) Any areas where personal
protective clothing must be worn or
barrier protective measures must be
taken to enter.
(iv) Service animals will be restricted
from accessing certain areas of VA
property under the control of the
National Cemetery Administration
(NCA properties) to ensure that public
safety, facilities and grounds care, and
maintenance control are not
compromised. Such areas include but
are not limited to:
(A) Open interment areas, except as
approved to observe an individual
interment or inurnment.
(B) Construction or maintenance sites;
and
(C) Grounds keeping and storage
facilities.
(v) If a service animal is denied access
to VA property or removed from VA
property in accordance with (a)(11)(ii)
of this section, or restricted from
accessing certain VA property in
accordance with paragraphs (a)(11)(iii)
and (iv) of this section, then VA will
give the individual with a disability the
opportunity to obtain services without
having the service animal on VA
property.
(vi) Unless paragraph (a)(11)(vii) of
this section applies, an individual with
a disability must not be required to
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provide documentation, such as proof
that an animal has been certified,
trained, or licensed as a service animal,
to gain access to VA property
accompanied by the service animal.
However, an individual may be asked if
the animal is required because of a
disability, and what work or task the
animal has been trained to perform.
(vii) An individual with a disability,
if such individual will be accompanied
by the service animal while receiving
treatment in a VHA residential program,
must provide VA with documentation
that confirms the service animal has had
a current rabies vaccine as determined
by state and local public health
requirements, and current core canine
vaccines as dictated by local veterinary
practice standards (e.g. distemper,
parvovirus, and adenovirus-2).
(viii) A service animal means any dog
that is individually trained to do work
or perform tasks for the benefit of an
individual with a disability, including a
physical, sensory, psychiatric,
intellectual, or other mental disability.
Other species of animals, whether wild
or domestic, trained or untrained, are
not service animals for the purposes of
this definition. The work or tasks
performed by a service animal must be
directly related to the individual’s
disability. The crime deterrent effects of
an animal’s presence and the provision
of emotional support, well-being,
comfort, or companionship do not
constitute work or tasks for the purposes
of this definition. Service dogs in
training are not considered service
animals. This definition applies
regardless of whether VA is providing
benefits to support a service dog under
38 CFR 17.148.
(ix) Generally, animals other than
service animals (‘‘non-service animals’’)
are not permitted to be present on VA
property, and any individual with a
non-service animal must remove it.
However, a VA facility head or designee
may permit certain non-service animals
to be present on VA property for the
following reasons:
(A) Animals may be permitted to be
present on VA property for law
enforcement purposes;
(B) Animals under the control of the
VA Office of Research and Development
may be permitted to be present on VA
property;
(C) Animal-assisted therapy (AAT)
animals may be permitted to be present
on VHA property when the presence of
such animals would not compromise
patient care, patient safety, or infection
control standards. AAT is a goaldirected clinical intervention, as
provided or facilitated by a VA therapist
or VA clinician, that incorporates the
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use of an animal into the treatment
regimen of a patient. Any AAT animal
present on VHA property must facilitate
achievement of patient-specific
treatment goals, as documented in the
patient’s treatment plan. AAT animals
must be up to date with all core
vaccinations or immunizations,
prophylactic parasite control
medications, and regular health
screenings as determined necessary by a
licensed veterinarian consistent with
local veterinary practice standards.
Proof of compliance with these
requirements must be documented and
accessible in the area(s) where patients
receive AAT.
(D) Animal-assisted activity (AAA)
animals may be permitted to be present
on VHA property when the presence of
such animals would not compromise
patient care, patient safety, or infection
control standards. AAA involves
animals in activities to provide patients
with casual opportunities for
motivational, educational, recreational,
and/or therapeutic benefits. AAA is not
a goal-directed clinical intervention that
must be provided or facilitated by a VA
therapist or clinician, and therefore is
not necessarily incorporated into the
treatment regimen of a patient or
documented in the patient’s medical
record as treatment. AAA animals must
be up to date with all core vaccinations
or immunizations, prophylactic parasite
control medications, and regular health
screenings as determined necessary by a
licensed veterinarian consistent with
local veterinary practice standards.
Proof of compliance with these
requirements must be documented and
accessible in the area(s) where patients
may participate in AAA.
(E) Animals participating in a VA
Community Living Center (CLC)
residential animal program or a Mental
Health Residential Rehabilitation
Treatment Program (MHRRTP) may be
permitted to be present on VHA
property, when the presence of such
animals would not compromise patient
care, patient safety, or infection control
standards. A residential animal program
in a VA CLC or a MHRRTP is a program
that uses the presence of animals to
create a more homelike environment to
foster comfort for veterans, while also
stimulating a sense of purpose,
familiarity, and belonging. Any VA CLC
or MHRRTP residential animal present
on VHA property must facilitate
achievement of therapeutic outcomes
(such as described above), as
documented in patient treatment plans.
Residential animals in a VA CLC or
MHRRTP must be up to date with all
core vaccinations and immunizations,
prophylactic parasite control
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medications, and regular health
screenings as determined necessary by a
licensed veterinarian consistent with
local veterinary practice standards.
Proof of compliance with these
requirements must be documented and
accessible in the VA CLC or MHRRTP.
(F) Animals may be present on NCA
property for ceremonial purposes during
committal services, interments, and
other memorials, if the presence of such
animals would not compromise public
safety, facilities and grounds care, and
maintenance control standards.
(x) For purposes of this section, a
disability means, with respect to an
individual, a physical or mental
impairment that substantially limits one
or more major life activities of the
individual; a record of such an
impairment; or being regarded as having
such an impairment.
(OMB has approved the information
collection requirements in this section
under control number XXXX–XXXX.)
*
*
*
*
*
(Authority: 38 U.S.C. 901, 40 U.S.C. 3103)
[FR Doc. 2015–20182 Filed 8–14–15; 8:45 am]
BILLING CODE 8320–01–P
ENVIRONMENTAL PROTECTION
AGENCY
40 CFR Part 80
[EPA–HQ–OAR–2015–0208; FRL–9931–94–
OAR]
RIN 2060–AS64
Approval of North Carolina’s Request
To Relax the Federal Reid Vapor
Pressure Gasoline Volatility Standard
for Mecklenburg and Gaston Counties
Environmental Protection
Agency (EPA).
ACTION: Direct final rule.
AGENCY:
The Environmental Protection
Agency (EPA) is taking direct final
action to approve a request from the
state of North Carolina for the EPA to
relax the Reid Vapor Pressure (RVP)
standard applicable to gasoline
introduced into commerce from June 1
to September 15 of each year for
Mecklenburg and Gaston counties.
Specifically, the EPA is approving
amendments to the regulations to allow
the RVP standard for the two counties
to rise from 7.8 pounds per square inch
(psi) to 9.0 psi for gasoline. The EPA has
determined that this change to the
federal RVP regulation is consistent
with the applicable provisions of the
Clean Air Act (CAA). This action is
being taken without prior proposal
because the EPA believes that this
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SUMMARY:
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rulemaking is noncontroversial for the
reasons set forth in this preamble, and
due to the limited scope of this action.
DATES: This rule is effective on October
16, 2015 without further notice, unless
EPA receives adverse comment by
September 16, 2015. If EPA receives
adverse comment, we will publish a
timely withdrawal in the Federal
Register informing the public that the
rule will not take effect.
ADDRESSES: Submit your comments,
identified by Docket ID No. EPA–HQ–
OAR–2015–0208, to the Federal
eRulemaking Portal: https://
www.regulations.gov. Follow the online
instructions for submitting comments.
Once submitted, comments cannot be
edited or withdrawn. The EPA may
publish any comment received to its
public docket. Do not submit
electronically any information you
consider to be Confidential Business
Information (CBI) or other information
whose disclosure is restricted by statute.
Multimedia submissions (audio, video,
etc.) must be accompanied by a written
comment. The written comment is
considered the official comment and
should include discussion of all points
you wish to make. The EPA will
generally not consider comments or
comment contents located outside of the
primary submission (i.e., on the web,
cloud, or other file sharing system). For
additional submission methods, the full
EPA public comment policy,
information about CBI or multimedia
submissions, and general guidance on
making effective comments, please visit
https://www2.epa.gov/dockets/
commenting-epa-dockets.
FOR FURTHER INFORMATION CONTACT:
Patty Klavon, Office of Transportation
and Air Quality, Environmental
Protection Agency, 2000 Traverwood
Drive, Ann Arbor, Michigan, 48105;
telephone number: (734) 214–4476; fax
number: (734) 214–4052; email address:
klavon.patty@epa.gov.
SUPPLEMENTARY INFORMATION:
The contents of this preamble are
listed in the following outline:
I. General Information
II. Action Being Taken
III. History of the Gasoline Volatility
Requirement
IV. The EPA’s Policy Regarding Relaxation of
Gasoline Volatility Standards in Ozone
Nonattainment Areas That Are
Redesignated as Attainment Areas
V. North Carolina’s Request to Relax the
Federal Gasoline RVP Requirement for
Mecklenburg and Gaston Counties
VI. Final Action
VII. Statutory and Executive Order Reviews
VIII. Legal Authority and Statutory
Provisions
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I. General Information
A. Why is the EPA issuing a direct final
rule?
The EPA is making this revision as a
direct final rule without prior proposal
because the EPA views this revision as
noncontroversial and anticipates no
adverse comment. The rationale for this
rulemaking is described in detail below.
In the Proposed Rules section of this
Federal Register, the EPA is publishing
a separate document that will serve as
the proposal to approve this revision to
the RVP gasoline standard that applies
in Mecklenburg and Gaston counties
should adverse comments be filed. If the
EPA receives no adverse comment, the
EPA will not take further action on the
proposed rule. If the EPA receives
adverse comment on this rule or any
portion of this rule, the EPA will
withdraw the direct final rule or the
portion of the rule that received adverse
comment. All public comments received
will then be addressed in a subsequent
final rule based on the proposed rule.
The EPA will not institute a second
comment period on this rulemaking.
Any parties interested in commenting
must do so at this time.
B. Does this action apply to me?
Entities potentially affected by this
rule are fuel producers and distributors
who do business in North Carolina.
Examples of potentially
regulated entities
Petroleum refineries .............
Gasoline Marketers and Distributors .............................
Gasoline Retail Stations .......
Gasoline Transporters ..........
NAICS 1 codes
324110
424710
424720
447110
484220
484230
The above table is not intended to be
exhaustive, but rather provides a guide
for readers regarding entities likely to be
regulated by this action. The table lists
the types of entities of which the EPA
is aware that potentially could be
affected by this rule. Other types of
entities not listed on the table could also
be affected by this rule. To determine
whether your organization could be
affected by this rule, you should
carefully examine the regulations in 40
CFR 80.27. If you have questions
regarding the applicability of this action
to a particular entity, call the person
listed in the FOR FURTHER INFORMATION
CONTACT section of this preamble.
1 North
E:\FR\FM\17AUR1.SGM
American Industry Classification System.
17AUR1
Agencies
[Federal Register Volume 80, Number 158 (Monday, August 17, 2015)]
[Rules and Regulations]
[Pages 49157-49164]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2015-20182]
=======================================================================
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DEPARTMENT OF VETERANS AFFAIRS
38 CFR Part 1
RIN 2900-AO39
Animals on VA Property
AGENCY: Department of Veterans Affairs.
ACTION: Final rule.
-----------------------------------------------------------------------
SUMMARY: The Department of Veterans Affairs (VA) amends its regulation
concerning the presence of animals on VA property. This final rule
expands the current VA regulation to authorize the presence of service
animals consistent with applicable Federal law when these animals
accompany individuals with disabilities seeking admittance to property
owned or operated by VA.
DATES: This rule is effective September 16, 2015.
FOR FURTHER INFORMATION CONTACT: Joyce Edmonson, RN, JD, Patient Care
Services, (10P4), Veterans Health Administration, Department of
Veterans Affairs, 810 Vermont Avenue NW., Washington, DC 20420, (410)
637-4755. (This is not a toll free number.)
SUPPLEMENTARY INFORMATION: On November 21, 2014, VA published in the
Federal Register (79 FR 69379) a proposed rule to amend VA regulations
regarding the presence of animals on VA property. This rule authorizes
the access of service animals when these animals accompany individuals
with disabilities seeking admittance to VA property in a manner
consistent with applicable Federal law, and clarifies the authority of
a VA facility head or designee to allow non-service animals to be
present on VA property.
Interested persons were invited to submit comments to the proposed
rule on or before January 20, 2015, and VA received 96 comments. All of
the issues raised by the commenters that concerned at least one portion
of the rule can be grouped together by similar topic, and we have
organized our discussion of the comments accordingly. For the reasons
set forth in the proposed rule and below, we are adopting the proposed
rule as final, with changes, explained below, to proposed 38 CFR
1.218(a)(11).
Multiple commenters stated that it was unclear to what groups of
individuals the proposed rule would apply. One commenter specifically
expressed concern as to whether a service animal that assisted a
visitor of a veteran would be permitted on VA property. We clarify for
these commenters that this VA regulation applies to everyone seeking
access to VA property, to include employees, veterans, and visitors.
The rule as proposed did not contain any limiting language to restrict
applicability to only certain groups of individuals, and we therefore
do not make any changes to the final rule based on these comments.
Several commenters applauded the development by VA of a uniform
regulation for service animal access for all VA property, and did not
recommend any changes. VA appreciates these comments and believes that
this regulation will allow for more consistent access of VA property by
service animals.
One commenter asserted that VA should use the term ``assistance
animal'' instead of ``service animals'' throughout the proposed
regulation because, they assert, the term ``service animals'' is
understood more narrowly in the service animal industry to refer only
to those animals that assist with mobility impairments. We do not make
any changes based on these comments. We disagree that the term
``assistance animal'' is better understood than ``service animal'' by
those in the service animal industry. Additionally, this regulation is
written for a broader audience than just those in the service animal
industry, to include any member of the public that may have need to
access VA property. Indeed, the term ``service animal'' as defined in
the proposed rule is well understood by the general public because it
is consistent with the definition of ``service animal'' in the
regulations that implement the Americans with Disabilities Act (ADA).
We therefore do not make any changes based on these comments. A
commenter
[[Page 49158]]
also urged that VA use the phrase ``guide dog'' versus ``seeing eye
dog.'' We do not make any changes based on this comment because, as
proposed and in this final rule, ``seeing eye dog'' is replaced in
Sec. 1.218(a)(11) with the term ``service animal,'' and ``service
animal'' includes those dogs trained for the purpose of assisting
individuals with a sensory disability (to include visual impairments).
Other commenters further asserted that the definition of ``service
animal'' in proposed Sec. 1.218(a)(11)(viii) be changed to refer to a
dog that does ``work or performs tasks'' as opposed to a dog that does
``work and performs tasks.'' Particularly, commenters noted that VA
used both these phrases interchangeably in proposed Sec.
1.218(a)(11)(viii), and asserted that this was confusing. We agree with
these comments, and clarify that the intent was to use only the phrase
``work or performs tasks'' throughout the definition of ``service
animal.'' We therefore make changes to ensure that the phrase ``work or
perform tasks'' is used consistently throughout Sec.
1.218(a)(11)(viii).
One commenter was concerned that breed restrictions may be imposed
based on a perception that certain breeds of dogs are prone to
violence. This VA regulation does not impose breed restrictions, and VA
will not otherwise pose breed restrictions for purposes of access of
service animals on VA property. VA will only deny access to VA property
or will remove a service animal from VA property based on an individual
assessment in accordance with objective criteria of the risks that the
individual service animal poses to the health or safety of people or
other service animals. VA makes no changes based on this comment.
Several commenters sought clarification between a ``service
animal'' and a ``pet,'' and whether animals other than dogs were
included in the definition of ``service animal.'' As proposed, Sec.
1.218(a)(11)(viii) defined a ``service animal'' as any dog that
accompanies an individual with a disability and that is individually
trained for that purpose. The definition in proposed Sec.
1.218(a)(11)(viii) specifically excluded any species of animal other
than a dog, and specifically required that the work or tasks performed
by the service animal be directly related to the individual's
disability. Further, Sec. 1.218(a)(11)(viii) distinguished that the
crime deterrent effects of an animal's presence, or the provision of
emotional support or well-being, comfort, or companionship do not
constitute ``work or tasks.'' The definition as proposed in Sec.
1.218(a)(11)(viii) clearly excluded any animal other than a dog, and
also excluded any dog that is not individually trained to assist an
individual with a disability. As proposed, Sec. 1.218(a)(11)(viii)
makes clear that unless the animal is a dog that is individually
trained to do something that qualifies as work or a task, the animal is
a pet or other type of animal and does not qualify as a service animal.
We believe the definition in proposed Sec. 1.218(a)(11)(viii) is clear
enough to exclude a ``pet,'', and we therefore do not make any changes
based on these comments.
Several commenters wanted VA to permit miniature horses on VA
properties. As discussed in the proposed rule, VA believes the presence
of a miniature horse poses legitimate safety concerns, both to people
on VA property and the miniature horse, especially on VA healthcare
properties. This final rule reiterates VA's determination from the
proposed rule, that, in light of a review of the multiple assessment
factors, miniature horses are excluded from VA properties. We restate
from the proposed rule that these assessment factors include the larger
size of a miniature horse as well as their reduced predictability in
behaving in accordance with typical standards of public access required
of service animals. Additional factors from the proposed rule that VA
considers to support the exclusion of miniature horses include
elimination of horse waste, a heightened flee response of a miniature
horse, the smooth flooring common to VA properties, and the likely
disruptive attention a horse would receive. We therefore do not make
any changes based on these comments.
Many commenters expressed concern that the proposed rule restricted
access to only those dogs trained or certified by Assistance Dogs
International (ADI), International Guide Dog Federation (IGDF), or one
of their affiliated organizations. The proposed rule did not create
such restrictions; as proposed, VA's standard for service animal access
is consistent with regulations that implement the ADA and is not
dependent on how the service animal was trained or by whom, but instead
depends on the service animal's ability to behave in accordance with
typical public access standards for public settings. Therefore, we do
not make any changes based on these comments. VA notes that a service
animal must be certified by ADI or IGDF as a requirement for veterans
seeking service dog benefits under 38 CFR 17.148, however, those
requirements for benefits do not apply to access. Conversely, several
commenters asserted that service animal access to VA properties should
be restricted to only those animals that are certified or trained by
ADI, IGDF, or an affiliate--these commenters articulated various
negative experiences where a ``fake service animal'' threatened their
person, their service animal, or another person while on VA property or
other property. VA recognizes that these commenters have legitimate
concerns related to dogs that are not appropriately trained possibly
being able to access VA property under the guise of a ``service dog,''
because VA will not be requiring any proof of training or certification
for purposes of access. However, the lack of such a documentation
requirement is consistent with regulations that implement the ADA, and
otherwise provides the benefit of the doubt to individuals with
disabilities unless the service animal's behavior necessitates that
access be denied or the service animal be removed. VA does not make any
changes based on these comments, but we stress that Sec.
1.218(a)(11)(ii) still provides for removal of a service animal from
certain areas on VA property if the animal exhibits behavior or other
signs that it is a threat to the health or safety of individuals or
other service animals on VA property.
Several commenters objected to the requirements in proposed Sec.
1.218(a)(11)(vii) to provide proof of a service animal's good health
when an individual will be accompanied by a service animal while
receiving treatment in a Veterans Health Administration (VHA)
residential program. Some of these commenters alluded to an
administrative burden of ``registering'' a service animal to obtain
access to the VA property. We clarify for these commenters that Sec.
1.218(a)(11)(vii) only applies to situations where an individual would
be accompanied by a service animal for the duration of his or her
treatment in a VHA residential program--these documentation
requirements would not apply for more general access to a VA property,
such as to receive outpatient care provided by VA. The presentation of
certain records as proof of an animal's health required in Sec.
1.218(a)(11)(vii) is necessary when a service animal will have routine
and constant interaction with employees, veterans, patients, and
visitors over the course of an extended period of time in a residential
setting, so that VA may ensure patient care, patient safety, and
infection control standards are met. However, we do agree with the
commenters who noted that some of the
[[Page 49159]]
requirements in Sec. 1.218(a)(11)(vii) as proposed could create an
undue administrative burden on both individuals receiving treatment as
well as VA staff. We therefore make changes in the final rule to remove
Sec. 1.218(a)(11)(vii)(A)-(C), and to revise Sec. 1.218(a)(11)(vii)
to require that the individual receiving treatment in a residential
program must only provide documentation that confirms that the service
animal has a current rabies vaccine and current core canine vaccines.
We further revise the conditions in Sec. 1.218(a)(11)(vii) related to
when a rabies vaccine and core canine vaccines are considered
``current'' to require ``a current rabies vaccine as determined by
state and local public health requirements, and current core canine
vaccines as dictated by local veterinary practice standards (e.g.
distemper, parvovirus, and adenovirus-2).'' These changes will retain
the requirement for documentation of basic canine vaccinations that we
believe is necessary to ensure the service animal is in good health,
while providing more flexibility of those required vaccinations in
accordance with local requirements. These revisions will also remove
the requirement for proof of a comprehensive exam within the past 12
months, as well as remove the requirement that an individual must
otherwise confirm in writing that the service animal is healthy. We
believe that the revised documentation requirements in Sec.
1.218(a)(11)(vii) now relate only to the basic canine vaccines that an
the individual would have merely as a function of being a responsible
dog owner, and therefore providing such documentation to VA for
confirmation is not burdensome. We make similar changes to the
documentation requirements related to the health of non-service animals
in Sec. 1.218(a)(11)(ix)(C)-(E), specifically to clarify that the
prophylactic medication requirement for non-service animals applies
only to parasite control medications (e.g. monthly flea and tick
prevention), and to clarify that the health requirements for non-
service animals are consistent with local veterinary practice
standards.
One commenter suggested that the mere presence of a flea or tick on
a service animal should not be grounds for removal of a service animal
under Sec. 1.218(a)(11)(ii)(C)(2), particularly for individuals being
treated in VA residential settings. VA does not make any changes based
on this comment. We reiterate from the proposed rule that the presence
of a flea or tick poses a threat to the health and safety of others, as
fleas, ticks, and other parasites can be spread by physical contact and
close proximity and can reproduce quickly and in great volume to create
infestation conditions that are much more difficult to remediate,
versus removing a service animal with visible external parasites. We
note, however, that under Sec. 1.218(a)(11)(ii)(C), VA staff must
complete an individualized assessment based on objective indications,
such as external signs of parasites, to ascertain the severity of risk
to the health or safety of people or other service animals.
Several commenters suggested that VA revise Sec.
1.218(a)(11)(viii) to permit service dogs in training to access VA
property. Some of these commenters reasoned that a service dog in
training could be well trained enough to dependably behave safely in
public settings, even without having fully completed their training.
Other commenters expressed that VA properties could be used as training
opportunities for service animals. VA seeks to maintain a safe and
therapeutic environment at its properties. In a complex hospital
environment, we believe that service animals should be fully trained
and a ``service animal in training'' is not fully trained. We therefore
do not revise Sec. 1.218(a)(11)(viii) to permit service animals in
training.
Several commenters inquired as to how VA's service animal access
rule would be enforced, particularly with regard to staff training.
Some commenters expressed concerns about ``fake service animals''
interfering with the need for people and service animals to safely
access VA properties. Others expressed concerns that VA's proposed rule
would establish a barrier to access or expressed concern regarding the
authority of varying facility directors to devise implementation
criteria that would restrict access outside of the proposed rule. VA
does not make any changes based on these comments. The final rule
establishes a set of standardized criteria that can be uniformly
enforced on VA property, and removes variation amongst individual
facilities that existed prior to this final rule. A service animal
meeting VA's requirements under this final rule will not be subject to
any barrier to access. And once on VA property, service animals are
subject to the same terms, conditions and regulations that govern the
admission of the public to VA property, to include certain exceptions
on VHA properties to ensure patient care, patient safety, and infection
control standards are not compromised. Therefore, service animals would
only be denied access or removed if, based on an individualized
assessment that is subject to objective indications in the final rule
to ascertain severity of risk, there is cause for access denial or
removal. VA anticipates that in most cases concerns related to access
and removal will be communicated by veterans, employees, or visitors to
VA staff members (including security and law enforcement) who will
manage any concerns and facilitate an appropriate response. VA
anticipates all appropriate staff members will be trained on what is
and what is not allowed under this regulation and how it should be
implemented.
Several commenters expressed concern about the requirement in
proposed Sec. 1.218(a)(11)(i) that the service animal be in a guiding
harness or on a leash, as well as under the control of the individual
with a disability, at all times while on VA property. These commenters
asserted that multiple disabilities might prevent an individual from
physically controlling a service animal via a harness or leash, or that
the service animal's presence on a leash or other tether at all times
might prevent that service animal from completing work or tasks they
are trained to perform. Further, some commenters urged VA to adopt a
standard that mimics that of the regulations that implement the ADA,
whereby control over the service animal by the handler can be in the
form of voice control. VA agrees with these comments, and amends Sec.
1.218(a)(11)(i) to incorporate comparable language to that used in the
regulations that implement the ADA. Cf. 28 CFR 36.302(c)(4).
Likewise, after considering related comments, VA recognizes that
individuals with disabilities may require the assistance of an
alternate handler to control the service animal while on VA property.
The need for an alternate handler may arise when the individual with
the disability is unable to control the service animal because of the
care the individual receives; or when the service animal, individual
with a disability, and the alternate handler routinely operate as part
of a team when accessing public areas. For this reason, VA amends Sec.
1.218(a)(11)(i) and (a)(11)(ii)(A) to allow for an alternate handler to
also be in control of the service animal. Specifically, Sec.
1.218(a)(11)(i) will state that a service animal shall be under the
control of the person with the disability or an alternate handler at
all times while on VA property. Section 1.218(a)(11)(i) will also state
that a service animal shall have a harness, leash, or other tether,
[[Page 49160]]
unless either the handler is unable because of a disability to use a
harness, leash, or other tether, or the use of a harness, leash, or
other tether would interfere with the service animal's safe, effective
performance of work or tasks, in which case the service animal must be
otherwise under the handler's control (e.g., voice control, signals, or
other effective means). We reiterate, that at no time is any VA
employee to be responsible for the control of the service animal, as
set forth in Sec. 1.218(a)(11)(i).
Several commenters inquired into whose responsibility is it to
clean up animal waste and if VA properties have to designate an area
for animals to relieve themselves. Commensurate with the requirements
for access is a properly housebroken service animal. Should a service
animal relieve bowel or bladder on VA property, it is the
responsibility of the handler or the alternate handler to properly
dispose of the waste in accordance with standards appropriate for
public settings. VA again notes that at no time is any employee to be
responsible to control a service animal and part of the access
requirements is that an animal is housebroken. VA makes no change based
on this comment.
Several commenters objected to the absolute prohibition of service
animal access to certain areas of VHA property in proposed
1.218(a)(11)(iii), citing contrary standards that permit such access in
regulations that implement the ADA as well as guidance issued by the
Centers for Disease Control and Prevention (CDC). Particularly,
commenters objected to the categorical exclusion of service animals
from inpatient hospital settings to include locked mental health units
(in proposed Sec. 1.218(a)(11)(iii)(C)), and from patient rooms or
treatment areas where patients may have an animal allergy or phobia (in
proposed Sec. 1.218(a)(11)(iii)(E)). VA cited three examples of acute
inpatient hospital settings in proposed Sec. 1.218(a)(11)(iii)(C)
(intensive care units, stabilization units, and locked mental health
units) in a representative but not exhaustive list of areas that could
be covered by this exclusion. In light of the comments received, VA
revises Sec. 1.218(a)(11)(iii)(C) to remove these examples, and
instead qualify the exclusion of service animals in acute inpatient
settings to exclude such animals when their presence is not part of a
documented treatment plan. VA agrees with the commenters that there are
scenarios in which a service animal on any of the specific areas in
proposed Sec. 1.218(a)(11)(iii)(C) may provide its services when the
individual being treated or an alternate handler can control a service
animal as part of a treatment plan established by the clinical care
team. Although VA used CDC guidance to justify the area-based
exclusions in proposed Sec. 1.218(a)(11)(iii)(C) (see 79 FR 69379,
69381), VA believes that this revision is still consistent with CDC's
guidance because the service animal would not be permitted to access
the inpatient area if not part of a documented treatment plan. The
animal would require a staff assessment under Sec. 1.218(a)(11)(ii)(C)
to evaluate any threat to the health or safety of patients or staff. A
service animal could still be removed under Sec. 1.218(a)(11)(ii) if
it presented a risk to patient safety or infection control standards
after gaining access to an acute inpatient setting. For these same
reasons, VA removes proposed Sec. 1.218(a)(11)(iii)(E), the
prohibition of the presence of service animals in patient rooms or
areas where a patient may have an animal allergy or phobia. Again, a
service animal could be removed from such an area if the animal posed a
risk to patient safety or health, under Sec. 1.218(a)(11)(ii). By
removing proposed Sec. 1.218(a)(11)(iii)(E), we will renumber proposed
Sec. 1.218(a)(11)(iii)(F) and (iii)(G) as (iii)(E) and (iii)(F),
respectively.
However, VA will not remove all categorical area-based exclusions
of service animals on VHA property from proposed Sec.
1.218(a)(11)(iii). VA's healthcare facilities reflect evidence based
standards governing safe operation of a healthcare facility, patient
care, and infection control. Consistent with CDC guidance, VA still
finds certain locations such as operating rooms, surgical suites, areas
where invasive procedures are being performed, decontamination, sterile
processing, sterile storage areas, food preparation areas (not to
include public food service areas), and any areas where protective
barrier measures are required, to be inappropriate environments for a
service animal. One commenter recommended removing the representative
examples in proposed Sec. 1.218(a)(11)(iii)(A)-(C) as redundant of
places where protective barrier measures are required. We decline to
remove these examples because they add clarity regarding the types of
areas where access must be restricted to ensure patient care, patient
safety or infection control standards are not compromised. While we
will retain these area-based exclusions and the examples provided in
the final rule, in response to comments we will revise Sec.
1.218(a)(11)(iii)(F) as proposed, renumbered as Sec.
1.218(a)(11)(iii)(E), to include the clarifying parenthetical ``(not to
include public food service areas).'' We will also revise Sec.
1.218(a)(11)(iii)(G) as proposed, renumbered as Sec.
1.218(a)(11)(iii)(F), to refer to areas ``where personal protective
clothing must be worn or barrier protective measures must be taken to
enter,'' instead of referring to areas that require ``personal
protective equipment'' to be worn. We agree with commenters that
``personal protective equipment'' in proposed Sec.
1.218(a)(11)(iii)(G) could be interpreted to encompass even the wearing
of basic equipment by patients, staff, or visitors like paper face
masks or examination gloves, which could qualify nearly any area of a
VHA medical facility as categorically excluding the presence of a
service animal. The revisions to proposed Sec. 1.218(a)(11)(iii)(G)
(Sec. 1.218(a)(11)(iii)(F) as renumbered) more accurately describe the
types of areas that a service animal will be restricted from entering.
We emphasize that even with these changes to the area-based
exclusions in Sec. 1.218(a)(11)(iii), a specific service animal may
still be individually denied access or removed if it does not meet the
standards in Sec. 1.218(a)(11)(i) and (a)(11)(ii), namely that the
animal must be controlled (by the individual or an alternate handler
that is not a VA employee), be housebroken, and not pose a threat to
the health and safety of people or other service animals.
Several commenters expressed concerns regarding the provision of
service dogs, service dog training, and service dog benefits by VA.
Particularly, some commenters asserted that VA should assist veterans
to obtain a service dog and have such a dog trained and certified.
These comments are beyond the scope of this rule, and we therefore do
not make any changes. We note, however, that the provision of service
dog benefits by VA is regulated at 38 CFR 17.148. Other commenters
noted the benefits of service animals for the treatment of PTSD, but
did not necessarily suggest any changes to the proposed rule. Again,
these comments are beyond the scope of this rule, and we therefore do
not make any changes. Some commenters requested that the final rule
provide examples of what VA considers to be ``work'' or ``tasks'' that
a service animal may be trained to perform, either in the preamble or
through revisions to the regulation text. Commenters noted that such
examples would be particularly helpful for a service animal that might
assist an individual with a mental disability or illness. We decline to
make revisions to
[[Page 49161]]
the regulation text or provide examples in the preamble of this final
rule. However, we do provide as reference here the supplemental
guidance issued by the Department of Justice when it last issued
regulations on this subject in 2010, specifically on what constitutes
``work or tasks'' that a service animal may provide (see Appendix A to
28 CFR part 36, Guidance on Revisions to ADA Regulation on
Nondiscrimination on the Basis of Disability by Public Accommodations
and Commercial Facilities, 75 FR 56236, 56258). This reference provides
examples of work or tasks that VA understands to be performed by
service animals for individuals with disabilities so that such
individuals may better navigate public spaces. By providing this
reference of examples of work and tasks in the context of public
access, VA is not expressing a position on the efficacy of such dogs
for the treatment of the disabilities of the individuals.
One commenter urged VA to include emotional support animals in the
definition of ``service animal'' in Sec. 1.218(a)(11)(viii) as
proposed. The commenter asserted that because many veterans with PTSD
use emotional support animals in their homes, that refusing access to
emotional support animals on VA property could discourage use of VA
services by such veterans. This same commenter also made a reference to
Department of Housing and Urban Development (HUD) regulations and
guidance that create exclusions for public housing's ``no pet''
policies for certain animals, to include permitting access for
emotional support animals in applicable circumstances, and suggested
that VA consider developing a similar rule regarding emotional support
animal access on VA property. Another commenter suggested adopting
HUD's approach in the context of VA's residential treatment programs.
VA does not disagree that some veterans may use emotional support
animals, nor disagree with the commenters' subjective accounts that
such animals have improved the quality of their lives. However, the HUD
regulations and guidance referenced by the commenters appropriately
apply in the context of public housing. In particular, the HUD
regulations and guidance do not require an animal to be individually
trained to do work or perform tasks for the benefit of the individual
with a disability. However, there is a distinction between the presence
of an animal in public areas and the functions that animal performs to
enable an individual to use public services and public accommodations
(service animal), as compared to the presence and use of a comfort or
emotional support animal in the home (emotional support animal).
Regarding VHA's residential treatment programs, these programs involve
shared spaces amongst multiple veterans, where there is an active
treatment component that involves the participation of not only the
veterans but also treatment providers as well as other members of the
public at times. Therefore, we interpret VHA residential programs to be
public treatment spaces (just as the other areas of VHA property that
are specified in this final rule), rather than a residential space
analogous to the HUD public housing context. We therefore do not make
any changes based on these comments.
Commenters expressed concern about the area-based restrictions for
property under the control of the National Cemetery Administration
(NCA) in proposed Sec. 1.218(a)(11)(iv). We interpret such comments to
be the result of a misunderstanding by commenters that new restrictions
were being created in the proposed rule when in fact the proposed area-
based restrictions reflect existing restrictions on NCA property in
accordance with rules requiring access on the same terms, conditions,
and regulations that generally govern admission of the public to the
property. That is, the proposed and final rules only clarify that where
an individual may not access NCA property (i.e., in NCA construction or
maintenance sites, or in NCA open interment areas), so, too, a service
animal may not access such property. This rule does not affect the
right of an individual to be accompanied by their service animal on NCA
grounds in those areas where the general public is permitted. However,
these comments raise the possibility that the provision regarding
restriction of access to open interment areas may be perceived as
overly restrictive. We have, therefore, made a change to Sec.
1.218(a)(11)(iv)(A) to remove the reference to columbaria (as
columbaria pose minimal safety issues), and to indicate that
individuals may be permitted to observe an individual interment or
inurnment accompanied by a service animal. This change will allow
family or representatives (such as clergy), accompanied by their
service animals, to observe an interment or inurnment when requested
and when such observation can be safely accommodated.
VA makes one technical correction in Sec. 1.218(a)(11)(viii). In
the last sentence, VA is replacing ``of this chapter'' with a complete
citation ``38 CFR 17.148.'' VA also makes several minor, non-
substantive edits for clarity such as removing the first commas
appearing in proposed Sec. 1.218(a)(11)(ix)(C) and (D), replacing the
word ``on'' with the word ``in'' three places in Sec.
1.218(a)(11)(ix)(E) in reference to VA Community Living Centers, and
adding the clarifying phrase ``with respect to an individual'' to the
definition of a disability in Sec. 1.218(a)(11)(x).
One commenter asked for clarification if animals other than dogs
can participate in Animal Assisted Activities (AAA) or Animal Assisted
Therapy (AAT) programs under Sec. 1.218(a)(11)(ix)(C) and (ix)(D) as
proposed. Unlike service animals under the proposed and final rules,
there is no species restriction for AAA or AAT animals, and AAA or AAT
animals are permitted on VHA property only at the discretion of the VA
facility head or designee. Should an AAA or AAT animal that is not a
dog meet the requirements in Sec. 1.218(a)(11)(ix)(C) and (D), a VA
facility head or designee may grant that animal access to VA property.
Another commenter suggested that VA allow for pets to visit patients in
unique circumstances such as end-of-life situations. As with other
species of animals, there is no categorical restriction for AAA or AAT
animals that would necessarily exclude a personal pet in an end-of-life
or other special circumstance. Should an animal serve an AAA or AAT
purpose and meet the requirements in Sec. 1.218(a)(11)(ix)(C) and (D),
a VA facility head or designee may grant that animal access to VA
property. In addition, a commenter suggested that AAA and AAT animals
be allowed on VA property only when their handler or organization has
liability insurance. We do not disagree that liability insurance would
be a sensible requirement, particularly as AAA is often conducted in
group settings. However, VA believes that any liability insurance would
be better addressed outside of a regulatory requirement by the VA
facility head or designee and the AAA or AAT handler or organization
prior to establishing a particular program at a facility. VA makes no
changes based on these comments.
For all of the reasons noted above, VA is adopting the rule as
final with changes as noted to 38 CFR 1.218.
Effect of Rulemaking
Title 38 of the Code of Federal Regulations, as revised by this
rulemaking, represents VA's implementation of its legal authority on
this subject. Other than future amendments to this regulation or
governing statutes, no contrary guidance or procedures are authorized.
All existing or subsequent VA guidance
[[Page 49162]]
must be read to conform with this rulemaking if possible or, if not
possible, such guidance is superseded by this rulemaking.
Paperwork Reduction Act
This final rule includes a collection of information under the
Paperwork Reduction Act of 1995 (44 U.S.C. 3501-3521) that requires
approval by the Office of Management and Budget (OMB). Accordingly,
under 44 U.S.C. 3507(d), VA has submitted a copy of this rulemaking
action to OMB for review.
OMB assigns a control number for each collection of information it
approves. VA may not conduct or sponsor, and a person is not required
to respond to, a collection of information unless it displays a
currently valid OMB control number. Section 1.218(a)(11) contains a
collection of information under the Paperwork Reduction Act of 1995.
OMB has approved the information collection requirement in this section
as an emergency clearance under control number 2900-0831. This
emergency clearance expires on December 31, 2015, before which time VA
will submit to OMB a request for permanent clearance.
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 directly affects only individuals and will not
directly affect small entities. Therefore, pursuant to 5 U.S.C. 605(b),
this rulemaking is exempt from the final regulatory flexibility
analysis requirements of 5 U.S.C. 604.
Executive Orders 12866 and 13563
Executive Orders 12866 and 13563 direct agencies to assess the
costs and benefits of available regulatory alternatives and, when
regulation is necessary, to select regulatory approaches that maximize
net benefits (including potential economic, environmental, public
health and safety effects, and other advantages; distributive impacts;
and equity). Executive Order 13563 (Improving Regulation and Regulatory
Review) emphasizes the importance of quantifying both costs and
benefits, reducing costs, harmonizing rules, and promoting flexibility.
Executive Order 12866 (Regulatory Planning and Review) defines a
``significant regulatory action,'' requiring review by OMB, unless OMB
waives such review, as ``any regulatory action that is likely to result
in a rule that may: (1) Have an annual effect on the economy of $100
million or more or adversely affect in a material way the economy, a
sector of the economy, productivity, competition, jobs, the
environment, public health or safety, or State, local, or tribal
governments or communities; (2) Create a serious inconsistency or
otherwise interfere with an action taken or planned by another agency;
(3) Materially alter the budgetary impact of entitlements, grants, user
fees, or loan programs or the rights and obligations of recipients
thereof; or (4) Raise novel legal or policy issues arising out of legal
mandates, the President's priorities, or the principles set forth in
this Executive Order.''
The economic, interagency, budgetary, legal, and policy
implications of this final rule have been examined and it has been
determined not to be a significant regulatory action under Executive
Order 12866. VA's impact analysis can be found as a supporting document
at https://www.regulations.gov, usually within 48 hours after the
rulemaking document is published. Additionally, a copy of this
rulemaking and its impact analysis are available on VA's Web site at
https://www.va.gov/orpm/, by following the link for ``VA Regulations
Published From FY 2004 Through Fiscal Year to Date.''
Unfunded Mandates
The Unfunded Mandates Reform Act of 1995 requires, at 2 U.S.C.
1532, that agencies prepare an assessment of anticipated costs and
benefits before issuing any rule that may result in an expenditure by
State, local, and tribal governments, in the aggregate, or by the
private sector, of $100 million or more (adjusted annually for
inflation) in any one year. This final rule will have no such effect on
State, local, and tribal governments, or on the private sector.
Catalog of Federal Domestic Assistance
The Catalog of Federal Domestic Assistance numbers and titles for
the programs affected by this document are 64.007, Blind Rehabilitation
Centers; 64.009, Veterans Medical Care Benefits; 64.010, Veterans
Nursing Home Care; and 64.011, Veterans Dental Care.
Signing Authority
The Secretary of Veterans Affairs, or designee, approved this
document and authorized the undersigned to sign and submit the document
to the Office of the Federal Register for publication electronically as
an official document of the Department of Veterans Affairs. Robert L.
Nabors II, Chief of Staff, Department of Veterans Affairs, approved
this document on June 5, 2015, for publication.
List of Subjects in 38 CFR Part 1
Administrative practice and procedure, Cemeteries, Government
property, Security measures.
Dated: June 19, 2015.
Michael Shores,
Chief Impact Analyst, Office of Regulation Policy & Management, Office
of the General Counsel, Department of Veterans Affairs.
For the reasons stated in the preamble, VA amends 38 CFR part 1 as
follows:
PART 1--GENERAL PROVISIONS
0
1. The authority citation for part 1 continues to read as follows:
Authority: 38 U.S.C. 501(a), and as noted in specific sections.
0
2. Revise Sec. 1.218(a)(11) to read as follows:
Sec. 1.218. Security and law enforcement at VA facilities.
(a) * * *
(11) Animals. (i) Service animals, as defined in paragraph
(a)(11)(viii) of this section, are permitted on VA property when those
animals accompany individuals with disabilities and are trained for
that purpose. A service animal shall be under the control of the person
with the disability or an alternate handler at all times while on VA
property. A service animal shall have a harness, leash, or other
tether, unless either the handler is unable because of a disability to
use a harness, leash, or other tether, or the use of a harness, leash,
or other tether would interfere with the service animal's safe,
effective performance of work or tasks, in which case the service
animal must be otherwise under the handler's control (e.g., voice
control, signals, or other effective means). VA is not responsible for
the care or supervision of a service animal. Service animal presence on
VA property is subject to the same terms, conditions, and regulations
as generally govern admission of the public to the property.
(ii) A service animal will be denied access to VA property or
removed from VA property if:
(A) The animal is not under the control of the individual with a
disability or an alternate handler;
(B) The animal is not housebroken. The animal must be trained to
eliminate its waste in an outdoor area; or
(C) The animal otherwise poses a risk to the health or safety of
people or other service animals. In determining whether
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an animal poses a risk to the health or safety of people or other
service animals, VA will make an individualized assessment based on
objective indications to ascertain the severity of the risk. Such
indications include but are not limited to:
(1) External signs of aggression from the service animal, such as
growling, biting or snapping, baring its teeth, lunging; or
(2) External signs of parasites on the service animal (e.g. fleas,
ticks), or other external signs of disease or bad health (e.g. diarrhea
or vomiting).
(iii) Service animals will be restricted from accessing certain
areas of VA property under the control of the Veterans Health
Administration (VHA properties) to ensure patient care, patient safety,
or infection control standards are not compromised. Such areas include
but are not limited to:
(A) Operating rooms and surgical suites;
(B) Areas where invasive procedures are being performed;
(C) Acute inpatient hospital settings when the presence of the
service animal is not part of a documented treatment plan;
(D) Decontamination, sterile processing, and sterile storage areas;
(E) Food preparation areas (not to include public food service
areas); and
(F) Any areas where personal protective clothing must be worn or
barrier protective measures must be taken to enter.
(iv) Service animals will be restricted from accessing certain
areas of VA property under the control of the National Cemetery
Administration (NCA properties) to ensure that public safety,
facilities and grounds care, and maintenance control are not
compromised. Such areas include but are not limited to:
(A) Open interment areas, except as approved to observe an
individual interment or inurnment.
(B) Construction or maintenance sites; and
(C) Grounds keeping and storage facilities.
(v) If a service animal is denied access to VA property or removed
from VA property in accordance with (a)(11)(ii) of this section, or
restricted from accessing certain VA property in accordance with
paragraphs (a)(11)(iii) and (iv) of this section, then VA will give the
individual with a disability the opportunity to obtain services without
having the service animal on VA property.
(vi) Unless paragraph (a)(11)(vii) of this section applies, an
individual with a disability must not be required to provide
documentation, such as proof that an animal has been certified,
trained, or licensed as a service animal, to gain access to VA property
accompanied by the service animal. However, an individual may be asked
if the animal is required because of a disability, and what work or
task the animal has been trained to perform.
(vii) An individual with a disability, if such individual will be
accompanied by the service animal while receiving treatment in a VHA
residential program, must provide VA with documentation that confirms
the service animal has had a current rabies vaccine as determined by
state and local public health requirements, and current core canine
vaccines as dictated by local veterinary practice standards (e.g.
distemper, parvovirus, and adenovirus-2).
(viii) A service animal means any dog that is individually trained
to do work or perform tasks for the benefit of an individual with a
disability, including a physical, sensory, psychiatric, intellectual,
or other mental disability. Other species of animals, whether wild or
domestic, trained or untrained, are not service animals for the
purposes of this definition. The work or tasks performed by a service
animal must be directly related to the individual's disability. The
crime deterrent effects of an animal's presence and the provision of
emotional support, well-being, comfort, or companionship do not
constitute work or tasks for the purposes of this definition. Service
dogs in training are not considered service animals. This definition
applies regardless of whether VA is providing benefits to support a
service dog under 38 CFR 17.148.
(ix) Generally, animals other than service animals (``non-service
animals'') are not permitted to be present on VA property, and any
individual with a non-service animal must remove it. However, a VA
facility head or designee may permit certain non-service animals to be
present on VA property for the following reasons:
(A) Animals may be permitted to be present on VA property for law
enforcement purposes;
(B) Animals under the control of the VA Office of Research and
Development may be permitted to be present on VA property;
(C) Animal-assisted therapy (AAT) animals may be permitted to be
present on VHA property when the presence of such animals would not
compromise patient care, patient safety, or infection control
standards. AAT is a goal-directed clinical intervention, as provided or
facilitated by a VA therapist or VA clinician, that incorporates the
use of an animal into the treatment regimen of a patient. Any AAT
animal present on VHA property must facilitate achievement of patient-
specific treatment goals, as documented in the patient's treatment
plan. AAT animals must be up to date with all core vaccinations or
immunizations, prophylactic parasite control medications, and regular
health screenings as determined necessary by a licensed veterinarian
consistent with local veterinary practice standards. Proof of
compliance with these requirements must be documented and accessible in
the area(s) where patients receive AAT.
(D) Animal-assisted activity (AAA) animals may be permitted to be
present on VHA property when the presence of such animals would not
compromise patient care, patient safety, or infection control
standards. AAA involves animals in activities to provide patients with
casual opportunities for motivational, educational, recreational, and/
or therapeutic benefits. AAA is not a goal-directed clinical
intervention that must be provided or facilitated by a VA therapist or
clinician, and therefore is not necessarily incorporated into the
treatment regimen of a patient or documented in the patient's medical
record as treatment. AAA animals must be up to date with all core
vaccinations or immunizations, prophylactic parasite control
medications, and regular health screenings as determined necessary by a
licensed veterinarian consistent with local veterinary practice
standards. Proof of compliance with these requirements must be
documented and accessible in the area(s) where patients may participate
in AAA.
(E) Animals participating in a VA Community Living Center (CLC)
residential animal program or a Mental Health Residential
Rehabilitation Treatment Program (MHRRTP) may be permitted to be
present on VHA property, when the presence of such animals would not
compromise patient care, patient safety, or infection control
standards. A residential animal program in a VA CLC or a MHRRTP is a
program that uses the presence of animals to create a more homelike
environment to foster comfort for veterans, while also stimulating a
sense of purpose, familiarity, and belonging. Any VA CLC or MHRRTP
residential animal present on VHA property must facilitate achievement
of therapeutic outcomes (such as described above), as documented in
patient treatment plans. Residential animals in a VA CLC or MHRRTP must
be up to date with all core vaccinations and immunizations,
prophylactic parasite control
[[Page 49164]]
medications, and regular health screenings as determined necessary by a
licensed veterinarian consistent with local veterinary practice
standards. Proof of compliance with these requirements must be
documented and accessible in the VA CLC or MHRRTP.
(F) Animals may be present on NCA property for ceremonial purposes
during committal services, interments, and other memorials, if the
presence of such animals would not compromise public safety, facilities
and grounds care, and maintenance control standards.
(x) For purposes of this section, a disability means, with respect
to an individual, a physical or mental impairment that substantially
limits one or more major life activities of the individual; a record of
such an impairment; or being regarded as having such an impairment.
(OMB has approved the information collection requirements in this
section under control number XXXX-XXXX.)
* * * * *
(Authority: 38 U.S.C. 901, 40 U.S.C. 3103)
[FR Doc. 2015-20182 Filed 8-14-15; 8:45 am]
BILLING CODE 8320-01-P