Authority To Solicit Gifts and Donations, 44827-44830 [2016-16232]

Download as PDF Federal Register / Vol. 81, No. 132 / Monday, July 11, 2016 / Proposed Rules ADDRESSES. We seek any comments or information that may lead to the discovery of a significant environmental impact from this proposed rule. G. Protest Activities The Coast Guard respects the First Amendment rights of protesters. Protesters are asked to contact the person listed in the FOR FURTHER INFORMATION CONTACT section to coordinate protest activities so that your message can be received without jeopardizing the safety or security of people, places, or vessels. ehiers on DSK5VPTVN1PROD with PROPOSALS V. Public Participation and Request for Comments We view public participation as essential to effective rulemaking, and will consider all comments and material received during the comment period. Your comment can help shape the outcome of this rulemaking. If you submit a comment, please include the docket number for this rulemaking, indicate the specific section of this document to which each comment applies, and provide a reason for each suggestion or recommendation. We encourage you to submit comments through the Federal eRulemaking Portal at https:// www.regulations.gov. If your material cannot be submitted using https:// www.regulations.gov, contact the person in the FOR FURTHER INFORMATION CONTACT section of this document for alternate instructions. We accept anonymous comments. All comments received will be posted without change to https:// www.regulations.gov and will include any personal information you have provided. For more about privacy and the docket, you may review a Privacy Act notice regarding the Federal Docket Management System in the March 24, 2005, issue of the Federal Register (70 FR 15086). Documents mentioned in this NPRM as being available in the docket, and all public comments, will be in our online docket at https://www.regulations.gov and can be viewed by following that Web site’s instructions. Additionally, if you go to the online docket and sign up for email alerts, you will be notified when comments are posted or a final rule is published. 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 proposes to amend 33 CFR part 165 as follows: VerDate Sep<11>2014 14:20 Jul 08, 2016 Jkt 238001 PART 165—REGULATED NAVIGATION AREAS AND LIMITED ACCESS AREAS 1. The authority citation for part 165 continues to read as follows: ■ 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.T07–0077 to read as follows: 44827 p.m. from October 6 through October 9, 2016. Dated: June 27, 2016. J.F. Dixon, Captain, U.S. Coast Guard, Captain of the Port Jacksonville. [FR Doc. 2016–16331 Filed 7–8–16; 8:45 am] BILLING CODE 9110–04–P ■ § 165.T07–0077 Safety Zone; Daytona Beach Wings and Waves Air Show, Atlantic Ocean, Daytona Beach, FL. (a) Regulated Area. The following regulated area is a safety zone located offshore from Daytona Beach, FL. All waters of the Atlantic Ocean encompassed within an imaginary line connecting the following points: Starting at Point 1 in position 29°14′44.72″ N., 081°0′46.90″ W.; thence northeast to Point 2 in position 29°14′58.74″ N., 081°0′16.18″ W.; thence southeast to Point 3 in position 29°13′3.80″ N., 080°59′21.78″ W.; thence southwest to Point 4 in position 29°12′54.63″ N., 080°59′53.87″ W.; thence northwest back to origin. These coordinates are based on North American Datum 1983. (b) Definition. The term ‘‘designated representative’’ means Coast Guard Patrol Commanders, including Coast Guard coxswains, petty officers, and other officers operating Coast Guard vessels, and Federal, state, and local officers designated by or assisting the Captain of the Port Jacksonville in the enforcement of the regulated area. (c) Regulations. (1) All persons and vessels are prohibited from entering, transiting through, anchoring in, or remaining within the regulated area unless authorized by the Captain of the Port Jacksonville or a designated representative. (2) Persons and vessels desiring to enter, transit through, anchor in, or remain within the regulated area may contact the Captain of the Port Jacksonville by telephone at 904–714– 7557, or a designated representative via VHF–FM radio on channel 16, to request authorization. If authorization is granted, all persons and vessels receiving such authorization must comply with the instructions of the COTP Jacksonville or a designated representative. (3) The Coast Guard will provide notice of the regulated area through Broadcast Notice to Mariners via VHF– FM channel 16 or by on-scene designated representatives. (d) Enforcement Period. This section will be enforced daily 11 a.m. to 4:30 PO 00000 Frm 00027 Fmt 4702 Sfmt 4702 DEPARTMENT OF VETERANS AFFAIRS 38 CFR Part 38 RIN 2900–AP74 Authority To Solicit Gifts and Donations Department of Veterans Affairs. Proposed rule. AGENCY: ACTION: The Department of Veterans Affairs (VA) is proposing to amend its National Cemeteries regulation on the prohibition of officials and employees of VA from soliciting contributions from the public or authorizing the use of their names, name of the Secretary, or the name of VA for the purpose of making a gift or donation to VA. The amended regulation would give the Under Secretary of Memorial Affairs (USMA), or his designee, authority to solicit gifts and donations, which include monetary donations, in-kind goods and services, and personal property, or authorize the use of their names, the name of the Secretary, or the name of VA by an individual or organization in any campaign or drive for donation of money or articles to VA for the purpose of beautifying, or for the benefit of, one or more national cemeteries. DATES: Comments must be received by VA on or before August 10, 2016. ADDRESSES: Written comments may be submitted by email through https:// www.regulations.gov; by mail or handdelivery to Director, Regulation Policy and Management (02REG), Department of Veterans Affairs, 810 Vermont Avenue NW., Room 1068, Washington, DC 20420; or by fax to (202) 273–9026. (This is not a toll-free number.) Comments should indicate that they are submitted in response to ‘‘RIN 2900– AP74—Authority to Solicit Gifts and Donations.’’ Copies of comments received will be available for public inspection in the Office of Regulation Policy and Management, Room 1068, between the hours of 8:00 a.m. and 4:30 p.m., Monday through Friday (except holidays). Please call (202) 461–4902 for an appointment. (This is not a toll-free number.) In addition, during the comment period, comments may be SUMMARY: E:\FR\FM\11JYP1.SGM 11JYP1 ehiers on DSK5VPTVN1PROD with PROPOSALS 44828 Federal Register / Vol. 81, No. 132 / Monday, July 11, 2016 / Proposed Rules viewed online through the Federal Docket Management System (FDMS) at https://www.regulations.gov. FOR FURTHER INFORMATION CONTACT: Thomas Howard, Chief of Staff, National Cemetery Administration (NCA), Department of Veterans Affairs, (40A), 810 Vermont Avenue NW., Washington, DC 20420, (202) 461–6215. (This is not a toll-free number.) SUPPLEMENTARY INFORMATION: Title 38 U.S.C. 2407 authorizes the Secretary of VA to ‘‘accept gifts, devises, or bequests from legitimate societies and organizations or reputable individuals, made in any manner, which are made for the purpose of beautifying national cemeteries, or are determined to be beneficial to such cemetery.’’ In 1978, VA published implementing regulations for this authority at 38 CFR 1.603 (now redesignated as 38 CFR 38.603). 43 FR 26572 (June 21, 1978). Included in this regulation, at § 38.603(b), is a prohibition on the solicitation of contributions from the public by any VA official or employee. Unfortunately, as was common at the time, the proposed and final rulemaking documents provide less information regarding the rationale for the regulations than is commonly provided today, so the full rationale for this regulation, including the reason for the prohibition on solicitations, is no longer available. The prohibition is not contained in the statutory authority at section 2407, nor does the plain language of the statute indicate a rationale for the prohibition. We propose to ease this restriction because it negatively impacts VA’s ability to fully realize the potential of its authority to accept gifts and donations for the benefit of the national cemeteries. The gift and donation acceptance authority at section 2407 is just one of several authorities under which VA may accept gifts or donations that advance the mission or enhance the services that VA provides. These authorities include, among others, 38 U.S.C. 521 (acceptance of funds to support recreational activities furthering the rehabilitation of disabled veterans); 2406 (gifts of land for national cemeteries); 8103 and 8104 (acceptance of land, interests in land, or facilities for use as medical facilities); and 8301 (acceptance of gifts for use in carrying out all laws administered by VA). None of these statutory authorities nor any implementing regulations for any of the authorities, includes a provision like that contained in § 38.603(b), prohibiting the solicitation of contributions. Legal guidance indicates that such a prohibition is not required by law. In VerDate Sep<11>2014 14:20 Jul 08, 2016 Jkt 238001 2015, VA’s Office of General Counsel (OGC) issued a precedent opinion concluding that VA’s express statutory authority to accept gifts under section 8301 included the implied statutory authority to solicit those gifts. VAOPGCPREC 2–2015, Mar. 20, 2015. Outside VA, a 2001 opinion from the Office of Legal Counsel (OLC) of the Department of Justice found that the broad statutory authority granted by Congress in section 403(b)(1) of the Office of Government Ethics Authorization Act of 1996 to accept gifts implies the authority to solicit gifts. 25 Op. OLC 55, Jan. 19, 2001. VA believes that section 2407 similarly contains an implied statutory authority to solicit gifts and donations for the benefit of the national cemeteries and that, by prohibiting use of that implied statutory authority, the provision in § 38.603(b), in addition to not being legally necessary, may impede VA’s ability to fully realize the authority provided to VA in section 2407. The ability of VA to operate other gift and donation programs under the authorities mentioned above, effectively and within legal parameters, in the absence of a prohibition on the ability of principals to solicit gifts and donations, indicates that a prohibition like that contained in § 38.603(b) is unnecessary. Gifts and donations received by the national cemeteries under the authority of section 2407 have taken many forms, including monetary donations, donations of services and property (such as landscaping services or trees), and memorials and other commemorative works. Consistent with the plain language of the terms ‘‘gifts’’ and ‘‘donations,’’ we would clarify in the regulation that gifts and donations include monetary donations, in-kind goods and services, and personal property. These gifts and donations from generous persons and organizations enhance the experience of visitors to the national cemeteries. The prohibition contained in § 38.603(b) impedes VA’s ability to proactively advise donors or potential donors of gift and donation opportunities that could be beneficial to the national cemeteries. Although § 38.603(b) includes a provision that allows VA employees to discuss the ‘‘appropriateness’’ of a proposed gift, that discussion can only happen if a donor first approaches VA about a potential gift or donation. VA cannot proactively advise a donor that a particular gift or donation would be beneficial to the national cemeteries in general or any one national cemetery in particular. Easing the prohibition benefits not only the national cemeteries PO 00000 Frm 00028 Fmt 4702 Sfmt 4702 by ensuring that gifts and donations are more likely to be beneficial, but also is beneficial to donors who may not know of opportunities to provide beneficial gifts and donations to the national cemeteries. Therefore, we would amend § 38.603(b) to provide that the USMA, or his designee, may solicit gifts and donations, which include monetary donations, in-kind goods and services, and personal property, or authorize the use of their names, the name of the Secretary, or the name of VA by an individual or organization in any campaign or drive for money or articles to VA for the purpose of beautifying, or for the benefit of, one or more national cemeteries. While VA would ease the prohibition on solicitation of gifts and donations, the intent is not to remove the restriction in its entirety. VA maintains 133 national cemeteries, one national Veterans’ burial ground, and 33 soldiers’ lots and monument sites in 40 states and Puerto Rico, as national shrines, that is, places of honor and memory where visitors can sense the serenity, historic sacrifice, and nobility of purpose of those who have served in the military. The USMA is responsible for the operation of the national cemeteries and is in the best position to determine the appropriateness of any campaign to solicit gifts and donations. Although VA would replace the existing provision at § 38.603(b) with revised text that would allow the USMA or designee to solicit gifts and donations to VA for the purpose of beautifying, or for the benefit of, one or more national cemeteries, this rulemaking would not amend any other regulation governing solicitation or acceptance of gifts and donations under any other authority available to VA. We propose to revise the authority citation for part 38 to include the statutory authority 38 U.S.C. 2407. We also propose to add this statutory authority at the end of § 38.603. Administrative Procedure Act Concurrent with this proposed rule, we are also publishing a separate, substantially identical direct final rule in this Federal Register. See RIN 2900– AP75. The simultaneous publication of these documents will speed notice and comment rulemaking under the Administrative Procedure Act (5 U.S.C. 553) should we have to withdraw the direct final rule due to receipt of a significant adverse comment. For purposes of the direct final rulemaking, a significant adverse comment is one that explains why the rule would be inappropriate, including challenges to the rule’s underlying premise or approach, or why it would E:\FR\FM\11JYP1.SGM 11JYP1 ehiers on DSK5VPTVN1PROD with PROPOSALS Federal Register / Vol. 81, No. 132 / Monday, July 11, 2016 / Proposed Rules be ineffective or unacceptable without change. If VA receives a significant adverse comment, VA will publish a notice of receipt of a significant adverse comment in the Federal Register and withdraw the direct final rule. In determining whether an adverse comment is significant and warrants withdrawing a direct final rule, we will consider whether the comment raises an issue serious enough to warrant a substantive response in a notice-andcomment process in accordance with section 553 of the Administrative Procedure Act (5 U.S.C. 553). Comments that are frivolous, insubstantial, or outside the scope of the rule will not be considered adverse under this procedure. For example, a comment recommending an additional change to the rule will not be considered a significant adverse comment unless the comment states why the rule would be ineffective or unacceptable without the additional change. Under direct final rule procedures, if no significant adverse comment is received within the comment period, the direct final rule will become effective on the date specified in RIN 2900–AP75. After the close of the comment period, VA will publish a document in the Federal Register indicating that VA received no significant adverse comments and restating the date on which the final rule will become effective. VA will also publish a notice in the Federal Register withdrawing this proposed rule. In the event that VA withdraws the direct final rule because of receipt of any significant adverse comment, VA will proceed with the rulemaking by addressing the comments received and publishing a final rule. The comment period for this proposed rule runs concurrently with that of the direct final rule. VA will treat any comments received in response to the direct final rule as comments regarding this proposed rule as well. VA will consider such comments in developing a subsequent final rule. Likewise, VA will consider any significant adverse comment received in response to the proposed rule as a comment regarding the direct final rule as well. VA has determined that it is not necessary to provide a 60-day comment period for this rulemaking because the rulemaking does not establish duties or benefits affecting members of the public, but merely makes a minor modification concerning the authority of certain officials or employees to solicit gifts and donations for the benefit of VA national cemeteries. VA has instead specified that comments must be received within VerDate Sep<11>2014 14:20 Jul 08, 2016 Jkt 238001 30 days after date of publication in the Federal Register. Effect of Rulemaking The Code of Federal Regulations, to be revised by this proposed rulemaking, would represent the exclusive legal authority on this subject. No contrary rules or procedures would be authorized. All VA guidance would be read to conform with this proposed rulemaking if possible or, if not possible, such guidance would be superseded by this rulemaking. Paperwork Reduction Act This proposed rule contains no provisions constituting a collection of information under the Paperwork Reduction Act of 1995 (44 U.S.C. 3501– 3521). Regulatory Flexibility Act The Secretary hereby certifies that this proposed rule would not have a significant economic impact on a substantial number of small entities as they are defined in the Regulatory Flexibility Act, 5 U.S.C. 601–612. This proposed rule would only affect individuals and would not directly affect small entities. Therefore, pursuant to 5 U.S.C. 605(b), this rulemaking is exempt from the initial and final regulatory flexibility analysis requirements of sections 603 and 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 the Office of Management and Budget (OMB), unless OMB waives such review, as ‘‘any regulatory action that is likely to result in a rule that may: (1) Have an annual effect on the economy of $100 million or more or adversely affect in a material way the economy, a sector of the economy, productivity, competition, jobs, the environment, public health or safety, or State, local, or tribal governments or communities; (2) Create a serious inconsistency or PO 00000 Frm 00029 Fmt 4702 Sfmt 4702 44829 otherwise interfere with an action taken or planned by another agency; (3) Materially alter the budgetary impact of entitlements, grants, user fees, or loan programs or the rights and obligations of recipients thereof; or (4) Raise novel legal or policy issues arising out of legal mandates, the President’s priorities, or the principles set forth in this Executive Order.’’ The economic, interagency, budgetary, legal, and policy implications of this regulatory action have been examined, and it has been determined not to be a significant regulatory action under Executive Order 12866. VA’s impact analysis can be found as a supporting document at https://www.regulations.gov, usually within 48 hours after the rulemaking document is published. Additionally, a copy of the rulemaking and its impact analysis are available on VA’s Web site at 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 the expenditure by State, local, and tribal governments, in the aggregate, or by the private sector, of $100 million or more (adjusted annually for inflation) in any one year. This proposed rule would have no such effect on State, local, and tribal governments, or on the private sector. Catalog of Federal Domestic Assistance There are no Catalog of Federal Domestic Assistance program numbers and titles affected by this document. Signing Authority The Secretary of Veterans Affairs, or designee, approved this document and authorized the undersigned to sign and submit the document to the Office of the Federal Register for publication electronically as an official document of the Department of Veterans Affairs. Gina S. Farrisee, Deputy Chief of Staff, Department of Veterans Affairs, approved this document on June 30, 2016, for publication. E:\FR\FM\11JYP1.SGM 11JYP1 44830 Federal Register / Vol. 81, No. 132 / Monday, July 11, 2016 / Proposed Rules Dated: June 30, 2016. Jeffrey Martin, Office Program Manager, Office of Regulation Policy & Management, Office of the Secretary, Department of Veterans Affairs. List of Subjects in 38 CFR Part 38 Administrative practice and procedure, Cemeteries, Claims, Crime, Veterans. For the reasons set out in the preamble, VA proposes to amend 38 CFR part 38 as follows: PART 38—NATIONAL CEMETERIES OF THE DEPARTMENT OF VETERANS AFFAIRS 1. Revise the authority citation for part 38 to read as follows: ■ Authority: 38 U.S.C. 107, 501, 512, 2306, 2402, 2403, 2404, 2407, 2408, 2411, 7105. 2. In § 38.603, revise paragraph (b) and add an authority citaiton to read as follows: ■ § 38.603 Gifts and donations. * * * * * (b) The Under Secretary of Memorial Affairs, or his designee, may solicit gifts and donations, which include monetary donations, in-kind goods and services, and personal property, or authorize the use of their names, the name of the Secretary, or the name of the Department of Veterans Affairs by an individual or organization in any campaign or drive for donation of money or articles to the Department of Veterans Affairs for the purpose of beautifying, or for the benefit of, one or more national cemeteries. (Authority: 38 U.S.C. 2407) [FR Doc. 2016–16232 Filed 7–8–16; 8:45 am] BILLING CODE 8320–01–P ENVIRONMENTAL PROTECTION AGENCY 40 CFR Part 52 ehiers on DSK5VPTVN1PROD with PROPOSALS [EPA–R07–OAR–2016–0313; FRL–9948–83– Region 7] Approval and Promulgation of Implementation Plans; State of Kansas; Infrastructure SIP Requirements for the 2012 Annual Fine Particulate Matter (PM2.5) National Ambient Air Quality Standards (NAAQS) Environmental Protection Agency (EPA). ACTION: Proposed rule. AGENCY: The Environmental Protection Agency (EPA) is proposing to approve SUMMARY: VerDate Sep<11>2014 14:20 Jul 08, 2016 Jkt 238001 elements of a State Implementation Plan (SIP) submission from the State of Kansas addressing the applicable requirements of Clean Air Act (CAA) section 110 for the 2012 annual PM2.5 NAAQS. Section 110 requires that each state adopt and submit a SIP to support the implementation, maintenance, and enforcement of each new or revised NAAQS promulgated by the EPA. These SIPs are commonly referred to as ‘‘infrastructure’’ SIPs. The infrastructure requirements are designed to ensure that the structural components of each state’s air quality management program are adequate to meet the state’s responsibilities under the CAA. DATES: Comments must be received on or before August 10, 2016. ADDRESSES: Submit your comments, identified by Docket ID No. EPA–R07– OAR–2016–0313, to https:// www.regulations.gov. Follow the online instructions for submitting comments. Once submitted, comments cannot be edited or removed from Regulations.gov. 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: Heather Hamilton, Air Planning and Development Branch, U.S. Environmental Protection Agency, Region 7, 11201 Renner Boulevard, Lenexa, KS 66219 at (913) 551–7039, or by email at hamilton.heather@epa.gov. SUPPLEMENTARY INFORMATION: Throughout this document whenever ‘‘we,’’ ‘‘us,’’ or ‘‘our’’ is used, we refer to EPA. A detailed technical support document (TSD) is included in this rulemaking docket to address the following: a description of CAA section 110(a)(1) and (2) infrastructure SIPs; the applicable elements under sections 110(a)(1) and (2); EPA’s approach to the review of infrastructure SIP PO 00000 Frm 00030 Fmt 4702 Sfmt 4702 submissions, and EPA’s evaluation of how Kansas addressed the relevant elements of sections 110(a)(1) and (2). This section provides additional information by addressing the following questions: I. What is being addressed in this document? II. Have the requirements for approval of a SIP revision been met? III. What action is EPA taking? I. What is being addressed in this document? EPA is proposing to approve the infrastructure SIP submission received from the State of Kansas on November 25, 2015. The infrastructure SIP submission addresses the requirements of CAA sections 110(a)(1) and (2) as applicable to the 2012 annual PM2.5 NAAQS. A TSD is included as part of the docket to discuss the details of this proposal, including an analysis of how the SIP meets the applicable 110 requirements for infrastructure SIPs. II. Have the requirements for approval of a SIP revision been met? The state submission has met the public notice requirements for SIP submissions in accordance with 40 CFR 51.102. The submission also satisfied the completeness criteria of 40 CFR part 51, appendix V. In addition, as explained above and in more detail in the TSD which is part of this docket, the revision meets the substantive SIP requirements of the CAA, including section 110 and implementing regulations. III. What action is EPA taking? EPA is proposing to approve the November 25, 2015, infrastructure SIP submission from the State of Kansas which addresses the requirements of CAA sections 110(a)(1) and (2) as applicable to the 2012 annual PM2.5 NAAQS. The EPA’s analysis of the submission is addressed in a TSD as part of the docket to discuss the proposal. Based upon review of the state’s infrastructure SIP submissions and relevant statutory and regulatory authorities and provisions referenced in those submissions or referenced in Kansas’ SIP, EPA believes that Kansas’ SIP will meet all applicable required elements of sections 110(a)(1) and (2) with respect to the 2012 annual PM2.5 NAAQS. We are processing this as a proposed action because we are soliciting comments on this proposed action. Final rulemaking will occur after consideration of any comments. E:\FR\FM\11JYP1.SGM 11JYP1

Agencies

[Federal Register Volume 81, Number 132 (Monday, July 11, 2016)]
[Proposed Rules]
[Pages 44827-44830]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2016-16232]


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DEPARTMENT OF VETERANS AFFAIRS

38 CFR Part 38

RIN 2900-AP74


Authority To Solicit Gifts and Donations

AGENCY: Department of Veterans Affairs.

ACTION: Proposed rule.

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SUMMARY: The Department of Veterans Affairs (VA) is proposing to amend 
its National Cemeteries regulation on the prohibition of officials and 
employees of VA from soliciting contributions from the public or 
authorizing the use of their names, name of the Secretary, or the name 
of VA for the purpose of making a gift or donation to VA. The amended 
regulation would give the Under Secretary of Memorial Affairs (USMA), 
or his designee, authority to solicit gifts and donations, which 
include monetary donations, in-kind goods and services, and personal 
property, or authorize the use of their names, the name of the 
Secretary, or the name of VA by an individual or organization in any 
campaign or drive for donation of money or articles to VA for the 
purpose of beautifying, or for the benefit of, one or more national 
cemeteries.

DATES: Comments must be received by VA on or before August 10, 2016.

ADDRESSES: Written comments may be submitted by email through https://www.regulations.gov; by mail or hand-delivery to Director, Regulation 
Policy and Management (02REG), Department of Veterans Affairs, 810 
Vermont Avenue NW., Room 1068, Washington, DC 20420; or by fax to (202) 
273-9026. (This is not a toll-free number.) Comments should indicate 
that they are submitted in response to ``RIN 2900-AP74--Authority to 
Solicit Gifts and Donations.'' Copies of comments received will be 
available for public inspection in the Office of Regulation Policy and 
Management, Room 1068, between the hours of 8:00 a.m. and 4:30 p.m., 
Monday through Friday (except holidays). Please call (202) 461-4902 for 
an appointment. (This is not a toll-free number.) In addition, during 
the comment period, comments may be

[[Page 44828]]

viewed online through the Federal Docket Management System (FDMS) at 
https://www.regulations.gov.

FOR FURTHER INFORMATION CONTACT: Thomas Howard, Chief of Staff, 
National Cemetery Administration (NCA), Department of Veterans Affairs, 
(40A), 810 Vermont Avenue NW., Washington, DC 20420, (202) 461-6215. 
(This is not a toll-free number.)

SUPPLEMENTARY INFORMATION: Title 38 U.S.C. 2407 authorizes the 
Secretary of VA to ``accept gifts, devises, or bequests from legitimate 
societies and organizations or reputable individuals, made in any 
manner, which are made for the purpose of beautifying national 
cemeteries, or are determined to be beneficial to such cemetery.'' In 
1978, VA published implementing regulations for this authority at 38 
CFR 1.603 (now redesignated as 38 CFR 38.603). 43 FR 26572 (June 21, 
1978). Included in this regulation, at Sec.  38.603(b), is a 
prohibition on the solicitation of contributions from the public by any 
VA official or employee. Unfortunately, as was common at the time, the 
proposed and final rulemaking documents provide less information 
regarding the rationale for the regulations than is commonly provided 
today, so the full rationale for this regulation, including the reason 
for the prohibition on solicitations, is no longer available. The 
prohibition is not contained in the statutory authority at section 
2407, nor does the plain language of the statute indicate a rationale 
for the prohibition. We propose to ease this restriction because it 
negatively impacts VA's ability to fully realize the potential of its 
authority to accept gifts and donations for the benefit of the national 
cemeteries.
    The gift and donation acceptance authority at section 2407 is just 
one of several authorities under which VA may accept gifts or donations 
that advance the mission or enhance the services that VA provides. 
These authorities include, among others, 38 U.S.C. 521 (acceptance of 
funds to support recreational activities furthering the rehabilitation 
of disabled veterans); 2406 (gifts of land for national cemeteries); 
8103 and 8104 (acceptance of land, interests in land, or facilities for 
use as medical facilities); and 8301 (acceptance of gifts for use in 
carrying out all laws administered by VA). None of these statutory 
authorities nor any implementing regulations for any of the 
authorities, includes a provision like that contained in Sec.  
38.603(b), prohibiting the solicitation of contributions.
    Legal guidance indicates that such a prohibition is not required by 
law. In 2015, VA's Office of General Counsel (OGC) issued a precedent 
opinion concluding that VA's express statutory authority to accept 
gifts under section 8301 included the implied statutory authority to 
solicit those gifts. VAOPGCPREC 2-2015, Mar. 20, 2015. Outside VA, a 
2001 opinion from the Office of Legal Counsel (OLC) of the Department 
of Justice found that the broad statutory authority granted by Congress 
in section 403(b)(1) of the Office of Government Ethics Authorization 
Act of 1996 to accept gifts implies the authority to solicit gifts. 25 
Op. OLC 55, Jan. 19, 2001. VA believes that section 2407 similarly 
contains an implied statutory authority to solicit gifts and donations 
for the benefit of the national cemeteries and that, by prohibiting use 
of that implied statutory authority, the provision in Sec.  38.603(b), 
in addition to not being legally necessary, may impede VA's ability to 
fully realize the authority provided to VA in section 2407. The ability 
of VA to operate other gift and donation programs under the authorities 
mentioned above, effectively and within legal parameters, in the 
absence of a prohibition on the ability of principals to solicit gifts 
and donations, indicates that a prohibition like that contained in 
Sec.  38.603(b) is unnecessary.
    Gifts and donations received by the national cemeteries under the 
authority of section 2407 have taken many forms, including monetary 
donations, donations of services and property (such as landscaping 
services or trees), and memorials and other commemorative works. 
Consistent with the plain language of the terms ``gifts'' and 
``donations,'' we would clarify in the regulation that gifts and 
donations include monetary donations, in-kind goods and services, and 
personal property. These gifts and donations from generous persons and 
organizations enhance the experience of visitors to the national 
cemeteries. The prohibition contained in Sec.  38.603(b) impedes VA's 
ability to proactively advise donors or potential donors of gift and 
donation opportunities that could be beneficial to the national 
cemeteries. Although Sec.  38.603(b) includes a provision that allows 
VA employees to discuss the ``appropriateness'' of a proposed gift, 
that discussion can only happen if a donor first approaches VA about a 
potential gift or donation. VA cannot proactively advise a donor that a 
particular gift or donation would be beneficial to the national 
cemeteries in general or any one national cemetery in particular. 
Easing the prohibition benefits not only the national cemeteries by 
ensuring that gifts and donations are more likely to be beneficial, but 
also is beneficial to donors who may not know of opportunities to 
provide beneficial gifts and donations to the national cemeteries. 
Therefore, we would amend Sec.  38.603(b) to provide that the USMA, or 
his designee, may solicit gifts and donations, which include monetary 
donations, in-kind goods and services, and personal property, or 
authorize the use of their names, the name of the Secretary, or the 
name of VA by an individual or organization in any campaign or drive 
for money or articles to VA for the purpose of beautifying, or for the 
benefit of, one or more national cemeteries.
    While VA would ease the prohibition on solicitation of gifts and 
donations, the intent is not to remove the restriction in its entirety. 
VA maintains 133 national cemeteries, one national Veterans' burial 
ground, and 33 soldiers' lots and monument sites in 40 states and 
Puerto Rico, as national shrines, that is, places of honor and memory 
where visitors can sense the serenity, historic sacrifice, and nobility 
of purpose of those who have served in the military. The USMA is 
responsible for the operation of the national cemeteries and is in the 
best position to determine the appropriateness of any campaign to 
solicit gifts and donations. Although VA would replace the existing 
provision at Sec.  38.603(b) with revised text that would allow the 
USMA or designee to solicit gifts and donations to VA for the purpose 
of beautifying, or for the benefit of, one or more national cemeteries, 
this rulemaking would not amend any other regulation governing 
solicitation or acceptance of gifts and donations under any other 
authority available to VA.
    We propose to revise the authority citation for part 38 to include 
the statutory authority 38 U.S.C. 2407. We also propose to add this 
statutory authority at the end of Sec.  38.603.

Administrative Procedure Act

    Concurrent with this proposed rule, we are also publishing a 
separate, substantially identical direct final rule in this Federal 
Register. See RIN 2900-AP75. The simultaneous publication of these 
documents will speed notice and comment rulemaking under the 
Administrative Procedure Act (5 U.S.C. 553) should we have to withdraw 
the direct final rule due to receipt of a significant adverse comment.
    For purposes of the direct final rulemaking, a significant adverse 
comment is one that explains why the rule would be inappropriate, 
including challenges to the rule's underlying premise or approach, or 
why it would

[[Page 44829]]

be ineffective or unacceptable without change. If VA receives a 
significant adverse comment, VA will publish a notice of receipt of a 
significant adverse comment in the Federal Register and withdraw the 
direct final rule. In determining whether an adverse comment is 
significant and warrants withdrawing a direct final rule, we will 
consider whether the comment raises an issue serious enough to warrant 
a substantive response in a notice-and-comment process in accordance 
with section 553 of the Administrative Procedure Act (5 U.S.C. 553). 
Comments that are frivolous, insubstantial, or outside the scope of the 
rule will not be considered adverse under this procedure. For example, 
a comment recommending an additional change to the rule will not be 
considered a significant adverse comment unless the comment states why 
the rule would be ineffective or unacceptable without the additional 
change.
    Under direct final rule procedures, if no significant adverse 
comment is received within the comment period, the direct final rule 
will become effective on the date specified in RIN 2900-AP75. After the 
close of the comment period, VA will publish a document in the Federal 
Register indicating that VA received no significant adverse comments 
and restating the date on which the final rule will become effective. 
VA will also publish a notice in the Federal Register withdrawing this 
proposed rule.
    In the event that VA withdraws the direct final rule because of 
receipt of any significant adverse comment, VA will proceed with the 
rulemaking by addressing the comments received and publishing a final 
rule. The comment period for this proposed rule runs concurrently with 
that of the direct final rule. VA will treat any comments received in 
response to the direct final rule as comments regarding this proposed 
rule as well. VA will consider such comments in developing a subsequent 
final rule. Likewise, VA will consider any significant adverse comment 
received in response to the proposed rule as a comment regarding the 
direct final rule as well.
    VA has determined that it is not necessary to provide a 60-day 
comment period for this rulemaking because the rulemaking does not 
establish duties or benefits affecting members of the public, but 
merely makes a minor modification concerning the authority of certain 
officials or employees to solicit gifts and donations for the benefit 
of VA national cemeteries. VA has instead specified that comments must 
be received within 30 days after date of publication in the Federal 
Register.

Effect of Rulemaking

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

Paperwork Reduction Act

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

Regulatory Flexibility Act

    The Secretary hereby certifies that this proposed rule would not 
have a significant economic impact on a substantial number of small 
entities as they are defined in the Regulatory Flexibility Act, 5 
U.S.C. 601-612. This proposed rule would only affect individuals and 
would not directly affect small entities. Therefore, pursuant to 5 
U.S.C. 605(b), this rulemaking is exempt from the initial and final 
regulatory flexibility analysis requirements of sections 603 and 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 the Office of 
Management and Budget (OMB), unless OMB waives such review, as ``any 
regulatory action that is likely to result in a rule that may: (1) Have 
an annual effect on the economy of $100 million or more or adversely 
affect in a material way the economy, a sector of the economy, 
productivity, competition, jobs, the environment, public health or 
safety, or State, local, or tribal governments or communities; (2) 
Create a serious inconsistency or otherwise interfere with an action 
taken or planned by another agency; (3) Materially alter the budgetary 
impact of entitlements, grants, user fees, or loan programs or the 
rights and obligations of recipients thereof; or (4) Raise novel legal 
or policy issues arising out of legal mandates, the President's 
priorities, or the principles set forth in this Executive Order.''
    The economic, interagency, budgetary, legal, and policy 
implications of this regulatory action have been examined, and it has 
been determined not to be a significant regulatory action under 
Executive Order 12866. VA's impact analysis can be found as a 
supporting document at https://www.regulations.gov, usually within 48 
hours after the rulemaking document is published. Additionally, a copy 
of the rulemaking and its impact analysis are available on VA's Web 
site at 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 the expenditure by 
State, local, and tribal governments, in the aggregate, or by the 
private sector, of $100 million or more (adjusted annually for 
inflation) in any one year. This proposed rule would have no such 
effect on State, local, and tribal governments, or on the private 
sector.

Catalog of Federal Domestic Assistance

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

Signing Authority

    The Secretary of Veterans Affairs, or designee, approved this 
document and authorized the undersigned to sign and submit the document 
to the Office of the Federal Register for publication electronically as 
an official document of the Department of Veterans Affairs. Gina S. 
Farrisee, Deputy Chief of Staff, Department of Veterans Affairs, 
approved this document on June 30, 2016, for publication.


[[Page 44830]]


    Dated: June 30, 2016.
Jeffrey Martin,
Office Program Manager, Office of Regulation Policy & Management, 
Office of the Secretary, Department of Veterans Affairs.

List of Subjects in 38 CFR Part 38

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

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

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

0
1. Revise the authority citation for part 38 to read as follows:

    Authority: 38 U.S.C. 107, 501, 512, 2306, 2402, 2403, 2404, 
2407, 2408, 2411, 7105.


0
2. In Sec.  38.603, revise paragraph (b) and add an authority citaiton 
to read as follows:


Sec.  38.603  Gifts and donations.

* * * * *
    (b) The Under Secretary of Memorial Affairs, or his designee, may 
solicit gifts and donations, which include monetary donations, in-kind 
goods and services, and personal property, or authorize the use of 
their names, the name of the Secretary, or the name of the Department 
of Veterans Affairs by an individual or organization in any campaign or 
drive for donation of money or articles to the Department of Veterans 
Affairs for the purpose of beautifying, or for the benefit of, one or 
more national cemeteries.

(Authority: 38 U.S.C. 2407)


[FR Doc. 2016-16232 Filed 7-8-16; 8:45 am]
 BILLING CODE 8320-01-P
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