M21-1 Manual / Part II, Subpart i, Chapter 2, Section A

Process Overview for Screening Mail

M21-1, Part II, Subpart i, Chapter 2, Section A

In This Section

This section contains the following topics:

Topic	Topic Name
1	Overview of the Initial Mail Screening Process
2	Process for Conducting a Routine Check of Complete Claims
3	Screening Subsequent Claims for Pending Appeals
4	Individual and Group Responsibilities for Division Mail Management
5	Intake Processing Center (IPC) Centralized Mail (CM) Screening and Processing Functions

1. Overview of the Initial Mail Screening Process

Introduction

This topic provides an overview of the initial mail screening process, including

purpose of initial mail screening, and
overview of the screening process and mail flow.

Change Date

August 30, 2018

II.i.2.A.1.a. Purpose of Initial Mail Screening

The purpose of initial mail screening is to review all incoming applications, correspondence, and evidence to determine if a claim

warrants priority processing because of its nature or facts
is submitted with evidence that requires review by the rating activity
is incomplete and requires further development, or
warrants denial.

References: For more information on
screening and processing mail in the Centralized Mail (CM) portal, see M21-1, Part II, Subpart i, 2.A.5
priority processing, see M21-1, Part X, Subpart i, 1
referrals to the rating activity, see M21-1, Part V, Subpart i, 1.B
awarding aid and attendance based on a beneficiary’s status as a patient in a qualified nursing home, see M21-1, Part IX, Subpart ii, 1.B.2, and
when a rating decision for insanity is required, see M21-1, Part X, Subpart iv, 2.A.1.d.

II.i.2.A.1.b. Overview of the Screening Process and Mail Flow

The table below provides an overview of the screening process.

Stage	Description
1	Review all incoming material to determine whether it is a claim or evidence in support of a claim an issue in the correct jurisdiction, or not a claim.
2	Depending on the nature of the material, determine whether it is necessary to obtain additional evidence refer the issue to another location or activity, or dispose of the issue.
3	Take the appropriate action.

References: For more information on

mail management, see M21-1, Part II, Subpart i, 2.C, and
intake processing center (IPC) CM screening and processing functions, see M21-1, Part II, Subpart i, 2.A.5.

2. Process for Conducting a Routine Check of Complete Claims

Introduction

This topic contains information about conducting a routine check of original claims, including

responsibilities of the IPC or the development activity upon receipt of a claim or legacy appeal
determining the benefit sought and type of claim
checking for the proper signature
processing on-line applications without a signature, and
checking for
- basic eligibility to the benefit sought
- character of discharge (COD)
- service verification
- blank spaces on the application or insufficient information, and
- acceptable dependency information.

Change Date

May 22, 2025

II.i.2.A.2.a. Responsibilities of the IPC or the Development Activity Upon Receipt of a Claim or Legacy Appeal

Responsibilities of the IPC or the development activity include

ensuring the claim or legacy appeal is substantially complete
verifying that basic eligibility exists
processing all submitted documents properly, and
updating the records using
- the Share corporate database
- the Veterans Benefits Management System (VBMS)
- the Veterans Appeals Control and Locator System (VACOLS), and/or
- Caseflow.

Reference: For more information on substantially complete claims, see

II.i.2.A.2.b. Determining the Benefit Sought and Type of Claim

Follow the steps in the table below to determine the type of claim.

Step	Action
1	Determine the type of benefit the claimant seeks, based on the type of application the claimant submitted information the claimant provided on the application, and any other supporting evidence the claimant submitted. Note: All new claims submitted on or after March 24, 2015, must be filed on a standard Department of Veterans Affairs (VA) application form. *Reference*: For a list of application forms claimants must use to file a claim, see M21-1, Part II, Subpart iii, 1.A.
2	Since a claim for one benefit can also be a claim for other benefits, consider entitlement to other benefits, if applicable.
3	Once the type of claim has been determined, ensure the proper end product (EP) has been established. Change the EP and/or claim label, or establish a new one, in VBMS or Share, if necessary. *Reference*: For more information on proper EPs, see M21-4, Appendix B.

II.i.2.A.2.c. Checking for the Proper Signature

A complete claim for any type of benefit must be signed by the

claimant
parent or guardian of a minor, or
fiduciary of a claimant who is incompetent.

Exceptions:
An authorized representative may prepare and submit certain non-original claims on behalf of the claimant without the claimant’s signature as noted in M21-1, Part I, Subpart i, 2.A.4.b.
An alternate signer may sign a claim on behalf of the claimant in certain situations as discussed in M21-1, Part II, Subpart i, 2.B.3.
Important:
VA accepts signatures on applications that are photocopied or faxed.
VA waives the signature requirement when a claim is filed electronically by the claimant through a VA claims-submission service website.
References: For more information on
processing on-line applications without a signature, see M21-1, Part II, Subpart i, 2.A.2.d
claimant signatures, see M21-1, Part II, Subpart i, 2.B.2, and
signature requirements for burial claims, see M21-1, Part XI, Subpart iii, 1.A.4.a.

II.i.2.A.2.d. Processing On-Line Applications Without a Signature

While normal development procedures and rules of evidence apply to on-line application claims, the signature requirement for a substantially complete claim is set aside when a claim is filed electronically through an on-line application. The table below summarizes the steps for processing an on-line application for benefits that a claimant submits electronically.

Step	Action
1	Review the application to ensure it is substantially complete.
2	Establish the appropriate EP. The date of claim (DOC) is electronically printed in the upper corner of the on-line application. *Important*: Applications received from a VA claims-submission service website can be identified by several attributes as discussed in M21-1, Part II, Subpart iii, 4.A.
3	Initiate development action by reviewing the claims folder to determine what evidence is necessary to support the claim, and request the evidence from the claimant.

Exception: Claims may be submitted by powers of attorney through the Stakeholder Enterprise Portal (SEP) and do not require a signature. However, original claims submitted through SEP involve additional claimant signature requirements to be substantially complete. Reference: For more information on claims for compensation submitted through SEP, including additional signature requirements for original claims, see M21-1, Part II, Subpart iii, 4.B.2.

II.i.2.A.2.e. Checking for Basic Eligibility to the Benefit Sought

Consider the basic criteria for eligibility to the benefit sought. Example: If the claim is for pension, consider whether or not the Veteran has sufficient wartime service or if the income and net worth are within limits. Reference: For more information on VA benefit programs, see M21-1, Part I, Subpart ii, 2.

II.i.2.A.2.f. Checking for COD

Follow the guidance in M21-1, Part X, Subpart iv, 1.A.1.p if the discharge document shows service that was not honorable, general, or under honorable conditions.

II.i.2.A.2.g. Checking for Service Verification

Review service department records and/or other available resources for verification of service. Reference: For more information on verifying service and character of discharge, see M21-1, Part III, Subpart i, 1.B.

II.i.2.A.2.h. Checking for Blank Spaces on the Application or Insufficient Information

If a claimant omits necessary information on an application, determine if it is substantially complete. References: For more information on
VA’s duty to notify claimants of necessary information or evidence, see M21-1, Part III, Subpart i, 2.B.1.a
criteria for substantially complete applications, see M21-1, Part I, Subpart i, 1.A.4.f, and
screening for a complete application and notification requirements, see M21-1, Part II, Subpart iii, 1.C.

II.i.2.A.2.i. Checking for Acceptable Dependency Information

The table below shows the submission requirements for establishing dependents.

If the claim for dependents was received …

Dependency may be established by a(n) …

prior to March 24, 2015

written statement from a claimant for marital or dependency status if sufficient information is provided, including the
- month, year, and place of the event (i.e., birth, marriage, adoption)
- full name and relationship of the other person
- Social Security number of the person, and
- in cases in which the dependent child does not reside with the claimant, the name and address of the person having custody of the child, or
- original document such as a marriage certificate, or a copy of an original document. If the copy does not appear genuine and free from alteration, the copy must be certified by
  - a public custodian of records
  - any VA employee who is authorized to administer oaths
  - certain representatives of Veterans service organizations
  - certain military personnel, or
  - certain officials of approved educational institutions.

on or after March 24, 2015

VA standard form as part of an original application for benefits or on dependency forms including VA Forms 21-686c, Application Request to Add and/or Remove Dependents, and 21-674, Request for Approval of School Attendance. Note: Fields left blank on the application can be considered none as long as sufficient information is present to establish dependency.

References: For more information on

the evidence and information VA requires to establish that a familial relationship exists between a Veteran and another person, see
- 38 CFR 3.204
- 38 CFR 3.205
- 38 CFR 3.209, and
- M21-1, Part VII, Subpart i, 1.A, and
the requirement of standard forms for dependency claims on or after March 24, 2015, see M21-1, Part II, Subpart iii, 1.A.

3. Screening Subsequent Claims for Pending Appeals

Introduction

This topic describes screening and processing subsequent claims that may be duplicative of a pending appeal, including

screening subsequent claims for pending appeals
processing claims that are duplicative of a legacy or Board of Veterans’ Appeals (BVA) appeal, and
informing the claimant that a claimed contention is already on appeal.

Change Date

March 31, 2023

II.i.2.A.3.a. Screening Subsequent Claims for Pending Appeals

Always check for pending appeals when screening subsequent claims. Identify pending

notices of disagreement at the Board of Veterans’ Appeals (BVA) by checking Caseflow, and
legacy appeals by checking for a
- 070 or 170 series EP under the CLAIMS tab in VBMS and reviewing the contentions, or
- searching VACOLS and reviewing the ISSUES screen.
Note: As of July 30, 2021, VA must accept a supplemental claim for an issue that is also pending before a Federal court. This includes cases before the U.S. District Courts, the U.S. Court of Appeals for Veterans Claims, and the U.S. Supreme Court. BVA does not fall under this definition of a Federal court and is excluded.References: For more information on
supplemental claims for an issue that is also pending before a Federal court, see Policy Letter 23-01
Caseflow, see the Caseflow user guides and job aids, and
VACOLS, see the VACOLS User’s Guide.

II.i.2.A.3.b. Processing Claims That Are Duplicative of a Legacy or BVA Appeal

When a claimed contention is an exact match for an issue under a legacy or BVA appeal, consider the contention duplicative of the legacy or BVA appeal and follow the procedures outlined in M21-1, Part II, Subpart i, 2.A.3.c to notify the claimant the issue will be processed under the pending appeal. When a claimed contention is not an exact match of an issue under appeal, establish a claim for the contention in accordance with M21-1, Part II, Subpart iii, 3.A. Reference: For more information on determining if a legacy appeal is duplicative, see M21-5, Chapter 6, Section B.

II.i.2.A.3.c. Informing the Claimant That a Claimed Contention Is Already on Appeal

Upon discovery that a claimed contention is duplicative of a pending legacy or BVA appeal, notify the claimant that the issue will be processed as part of the pending appeal. Follow the steps in the table below to generate a letter informing the claimant of a duplicative contention.

Stage	Description
1	Create a Claim Already on Appeal Letter.
2	Adjust the criteria in the brackets to match the facts found in the claim form.
3	Send the letter to the claimant.
4	Associate a copy of the letter with the claims folder.
5	If an issue on appeal was added as a contention in VBMS under a rating EP, delete the contention.
6	If the contention referenced in Step 5 is the only claimed contention, change the rating EP (if previously established) to an EP 400, and clear the EP 400, or not the only claimed contention, clear an EP 400.

Reference: For more information on determining if a legacy appeal is duplicative, see M21-5, Chapter 6, Section B.

4. Individual and Group Responsibilities for Division Mail Management

Introduction

This topic describes mail management, including

importance of effective mail management, and
individual and group responsibilities.

Change Date

September 30, 2010

II.i.2.A.4.a. Importance of Effective Mail Management

Effective mail management is crucial to the success and control of workflow.

II.i.2.A.4.b. Individual and Group Responsibilities

The table below describes the individual and group responsibilities for establishing and following procedures for division mail management and control.

Individual or Group	Responsibilities
Veterans Service Center (VSC) or pension management center (PMC), IPC coach	maintains a copy of the Mail Routing Guide reviews the guide at least once a year to ensure it is current, and designates at least one central point where VSC or PMC employees can deliver outgoing mail. *Note*: To eliminate unnecessary handling, the point of delivery for outgoing mail should also serve as the point of delivery for incoming mail.
VSC Manager or PMC Manager	establishes explicit regional office (RO) delivery procedures for all categories of mail, and ensures that procedures appear in the RO’s Mail Routing Guide. *Reference: For more information on official VA mail procedures, see VA Directive 6340, Enterprise Mail Management*.
Administrative Support Services Division	establishes local procedures for movement of all mail, including delivery of incoming mail, and pickup of outgoing mail.

5. IPC CM Screening and Processing Functions

Introduction

This topic provides an overview of IPC screening and processing functions in the CM portal, including

Super User mail-processing role in the CM portal
Basic User mail-processing role in the CM portal, and
processing
- mail in CM, and
- solicited and unsolicited mail.

Change Date

March 31, 2023

II.i.2.A.5.a. Super User Mail-Processing Role in the CM Portal

The IPC Super User

reviews and distributes all mail in the CM portal
notifies the IPC supervisor if mail containing Federal tax information (FTI) is discovered in the CM portal
routes mail to work queues based on a first in, first out (FIFO) received date
mentors Basic Users
provides guidance to Basic Users on processing complex mail, and
if applicable, processes the more complex cases.

Important:
Super Users should not prescreen mail before distributing it to work queues.
All users must process mail based on FIFO principles.
Notes:
In the CM portal, only Super Users can transfer mail to another RO’s CM queue.
IPC supervisors provide direction to non-supervisory Super Users on the amount of mail Super Users distribute to basic users.
Reference: For more information on the role of the Super User in CM, see the Centralized Mail Portal User Manual.

II.i.2.A.5.b. Basic User Mail-Processing Role in the CM Portal

The Basic User

screens mail assigned to the user’s work queue
notifies the Super User and/or IPC supervisor if mail containing FTI is discovered in the CM portal
establishes new claims or legacy appeals, including
- entering contentions
- sending Section 5103 notices (when applicable)
- assigning claims to the appropriate segmented lane, and
- routing paper claims folders to scanning vendors for conversion (when necessary)
makes necessary system updates for currently pending claims, including
- updating the claim-level suspense, and
- managing evidence/tracked items
updates claimant information in all applicable VA systems, and
uploads the mail into the appropriate electronic claims folder (eFolder) in VBMS or sends it to the appropriate business line.

Note: Routing of paper claims folders to scanning vendors is not necessary when the claim may be worked without claims-folder review. For example, claims for additional compensation for dependents eFolder are generally decided without claims-folder review. References: For more information on

establishing claims in VBMS or Share, see M21-1, Part II, Subpart iii, 3.A.1
managing evidence, see the VBMS Core User Guide
updating claimant information in VA systems, see M21-1, Part II, Subpart iii, 3.B
address changes for incompetent Veterans by a power of attorney (POA) or fiduciary, see M27-1, Part I, 3.29, and
the role of the Basic User in CM, see the Centralized Mail Portal User Manual.

II.i.2.A.5.c. Processing Mail in CM

Follow the steps in the table below when processing mail in CM.

Step

Action

Is the mail for a business line other than Compensation Service or Pension and Fiduciary Service?

If yes,
- reroute the mail to the appropriate business line, following the guidance in M21-1, Part II, Subpart i, 2.D.7, and
- take no further action.
If no, go to the next step.

Is the mail related to a pending claim, higher-level review, or legacy appeal, or does it represent late-flowing mail that was submitted in response to development of a recently adjudicated claim or legacy appeal?

If yes,
follow the instructions in M21-1, Part II, Subpart i, 2.A.5.d, and
disregard the remaining steps in this table.
If no, go to the next step.

Note: To answer the question posed in this step, check all applicable claims-processing systems, including
VBMS
VACOLS, and
Caseflow.

Does the mail involve a claim that falls under the jurisdiction of a restricted access claims center (RACC) because the claimant is a Veterans Benefits Administration (VBA) employee-Veteran, a relative of an employee, an employee or relative of a Veterans service organization, or other restricted record-designee as defined in M21-1, Part II, Subpart ii, 2.B?

If yes, go to the next step.
If no, go to Step 6.

Does the mail represent a claim or legacy appeal that is subject to National Work Queue (NWQ) routing?

If yes,
- activate the Restricted Access corporate flash
- ensure access to the corresponding VA record is restricted by assigning one of the sensitivity levels described in M21-1, Part II, Subpart ii, 2.B, and
- go to the next step.
If no, go to the next step.

Important: ROs must request assistance from their NWQ point of contact when transferring a claim if they are unable to activate the Restricted Access corporate flash because VA has already assigned one of the sensitivity levels described in M21-1, Part II, Subpart ii, 2.B.References: For more information on

managing flashes, see the VBMS Core User Guide
appropriate restricted record and sensitive access designations, see the Sensitive Record Designations and Authorizations OBI Letter, and
restricted access claim attributes, see M21-4, Appendix E.1.

Transfer the mail to the appropriate RACC queue (St. Paul RACC, Milwaukee RACC, or San Diego RACC) and take no further action. Notes:
System access settings prevent most RO employees from updating VA’s systems to reflect the receipt of evidence or information included in mail that a RACC must ultimately process.
RACC development letters include a coversheet that recipients are instructed to place on top of mail they send to VA. Use of the coversheet in this manner facilitates automatic routing of the mail to the appropriate RACC queue.
To avoid improper routing in the CM portal, Public Contact Team personnel accepting mail from VBA employee-Veterans must use the appropriate coversheet from the RACC Cover Sheets site.
Reference: For more information on RACC jurisdiction, see M21-1, Part II, Subpart ii, 2.B.

Does the mail represent material that a PMC must review/process?

If yes,
- use the map below to determine the PMC with jurisdiction
- transfer the mail to the appropriate PMC queue, and
- take no further action.

If no, go to the next step.

Does the mail represent a new compensation-related claim, or does it include a VA Form 10182, Decision Review Request: Board Appeal (Notice of Disagreement), or VA Form 9, Appeal to Board of Veterans' Appeals?

If yes, go to the next step.
If no, go to Step 12.

Will the RO that received the mail retain jurisdiction?

If yes, go to the next step.
If no, go to Step 11.

Important:

ROs may not transfer claims (rating or non-rating), legacy appeals, or work items, to include mail received in the CM portal, to another RO solely because the claimant resides within another RO’s geographical jurisdiction. ROs may transfer a claim to another RO only if the
- claimant has requested a personal hearing
- claimant is a homeless Veteran, or
- claim is a “special mission claim” that a specific RO must process.

Does the mail represent a claim?

If yes,
- place the claim under control according to the instructions in M21-1, Part II, Subpart iii, 3.A.1, and
- go to the next step.
If no, go to the next step.

Upload the mail into the appropriate eFolder and disregard the remaining steps in this table.

Follow the instructions in the table below.

*If the claim, legacy notice of disagreement (NOD), or VA Form 9* …**	Then…
requires a formal legacy appeal or pre-decisional hearing, or pertains to a homeless Veteran	establish the EP in the appropriate claims-processing or appeals-management system broker the EP to the RO with geographic jurisdiction based on the claimant’s or appellant’s place of residence, and take no further action.
involves special mission issues with exclusive jurisdiction, or involves exceptions to general policy for claims folder jurisdiction	determine jurisdiction by following the guidance found in M21-1, Part II, Subpart ii, 3 transfer the mail to the proper RO’s queue, and take no further action.

Does the mail represent a fiduciary matter?

If yes, refer the incoming fiduciary-related mail, correspondence, or documents via the CM portal to the fiduciary hub (hub) of jurisdiction unless the PMC or VSC is authorized to take action on the mail as provided in M21-1, Part X, Subpart ii, 6.E.1.d.
If no, go to the next step.

Important:

Do not update the contact or direct deposit information when the beneficiary has a fiduciary or change the beneficiary’s name when a beneficiary is assigned a spouse fiduciary.
Follow the guidance in M21-1, Part II, Subpart iii, 3.B.1.c, to notify the hub of jurisdiction when a
- valid change of contact or direct deposit information is received for a beneficiary that has a fiduciary, or
- beneficiary is assigned a spouse fiduciary and a request to change the beneficiary’s name is received.

References: For more information on

basic user mail-processing roles in the CM portal, see M21-1, Part II, Subpart i, 2.A.5.b
hub jurisdiction and contact information, see M21-1, Part X, Subpart ii, 6.C.1.d
handling a name change for a beneficiary, custodian, or fiduciary, see M21-1, Part X, Subpart ii, 6.E.1.d, and
beneficiary is assigned a spouse fiduciary and a request to change the beneficiary’s name is received, see M21-1, Part II, Subpart iii, 3.B.1.c.

Does a review of the mail reveal that no action is needed?

If yes,
- treat the mail as “file mail” or “drop mail,” and
- upload the mail into the appropriate eFolder.
If no,
- take all necessary actions (such as processing an intent to file (ITF) a claim, changing an address, updating the POA, and so on), and
- upload the mail into the appropriate eFolder.

Note: Effective March 24, 2015, new claims/legacy appeals must be filed on a fully completed, prescribed VA form. Reference: For more information about ITF and VA Form 21-0966, Intent to File a Claim for Compensation and/or Pension, or Survivors Pension and/or DIC, see M21-1, Part II, Subpart iii, 2.A.

II.i.2.A.5.d. Processing Solicited and Unsolicited Mail

Solicited and unsolicited mail refers to mail submitted in association with development of a claim or legacy appeal. Note: New legacy NODs and perfected legacy appeals (VA Form 9) are not types of solicited or unsolicited mail. M21-1, Part II, Subpart i, 2.A.5.c describes the proper procedure for handling new and perfected legacy appeals and other types of mail. When processing solicited or unsolicited mail, update VBMS according to instructions in the following table.

Step	Action
1	Does the solicited or unsolicited mail pertain to a pending EP? If yes, go to the next step. If no, determine whether the mail requires hub action as provided in Step 12 of the table found in M21-1, Part II, Subpart i, 2.A.5.c. If hub action is required, take the appropriate action as provided in Step 12 of the table found in M21-1, Part II, Subpart i, 2.A.5.c, or is not required, go to Step 6.
2	Does the mail represent evidence requested and documented by a tracked item? If yes, go to the next step (the mail is considered solicited). If no, go to Step 4 (the mail is considered unsolicited).
3	Update the tracked item RECEIVED field with the date of receipt of the mail select the SAVE button upload the mail into the appropriate eFolder in VBMS, and take no further action. *Example*:
4	Update the MANAGING EVIDENCE screen to reflect the mail VA received under the ADD UNSOLICITED tab. *Examples*:
5	Add any new contentions by selecting ADD CONTENTIONS on the CONTENTIONS LIST tab upload the mail into the appropriate eFolder in VBMS, and take no further action. *Example:Notes*: Remember to include the DOC (date of receipt of new contention) for each contention. Do not change the segmented lane already assigned unless there is a new special issue or special operations contention.
6	Check VACOLS to determine whether an appeal is pending.Does the mail pertain to a pending legacy appeal? If yes, update VBMS to reflect receipt of the mail, as outlined in Step 4 upload the mail into the appropriate eFolder in VBMS, and go to Step 8. If no, go to the next step. *Reference: For more information on using VACOLS, see the VACOLS User's Guide*.
7	Is an EP 930 warranted (does the mail relate to a claim VA already decided, and did VA receive the mail before it decided the claim)? If yes, establish an EP 930 in the appropriate claim system and go back to Step 4. If no, treat the mail as a request for an application, and disregard the remaining step in this table. *Note: Use the appropriate claim label to differentiate between a rating and non-rating EP 930. References*: For more information on using EP 930, see M21-4, Appendix B establishing claims in the appropriate claim system, see M21-1, Part II, Subpart iii, 3.A, and handling a request for an application, see M21-1, Part II, Subpart iii, 2.G.
8	Is the appeal under the jurisdiction of BVA? If yes, send the mail to the re-route queue (a Super User will reassign the mail to BVA in the CM portal). If no, take no further action.

Reference: For more information on processing CM, see the Centralized Mail Portal User Manual.

Source: VA M21-1 Adjudication Procedures Manual, M21-1, Part II, Subpart i, Chapter 2, Section A (U.S. government work, reproduced for reference). Browse all sections →