Notice2026-18904
Recognition of Organizations and Individuals To Assist Veterans, Family Members, and Caregivers Navigating Programs and Services of Veterans Health Administration
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Published
September 15, 2026
Issuing agencies
Veterans Affairs Department
Abstract
The Department of Veterans Affairs (VA) is requesting comments and information to assist VA in implementing the requirements of section 129 of the Senator Elizabeth Dole 21st Century Veterans Healthcare and Benefits Improvement Act (Dole Act). Section 129 of the Dole Act requires VA to establish a process to recognize organizations and individuals to assist veterans, their family members, or their caregivers in navigating Veterans Health Administration (VHA) programs and services. We invite comments concerning the proposed process outlined herein for VA to recognize organizations and individuals, including how such organizations and individuals can certify to VA that no fee or compensation will be charged to any individual for services rendered in providing assistance.
Full Text
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<title>Federal Register, Volume 91 Issue 177 (Tuesday, September 15, 2026)</title>
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[Federal Register Volume 91, Number 177 (Tuesday, September 15, 2026)]
[Notices]
[Pages 58559-58562]
From the Federal Register Online via the Government Publishing Office [<a href="http://www.gpo.gov">www.gpo.gov</a>]
[FR Doc No: 2026-18904]
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DEPARTMENT OF VETERANS AFFAIRS
[Docket No. VA-2026-VACO-0001]
Recognition of Organizations and Individuals To Assist Veterans,
Family Members, and Caregivers Navigating Programs and Services of
Veterans Health Administration
AGENCY: Department of Veterans Affairs.
ACTION: Notice; request for comments and information.
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SUMMARY: The Department of Veterans Affairs (VA) is requesting comments
and information to assist VA in implementing the requirements of
section 129 of the Senator Elizabeth Dole 21st Century Veterans
Healthcare and Benefits Improvement Act (Dole Act). Section 129 of the
Dole Act requires VA to establish a process to recognize organizations
and individuals to assist veterans, their family members, or their
caregivers in navigating Veterans Health Administration (VHA) programs
and services. We invite comments concerning the proposed process
outlined herein for VA to recognize organizations and individuals,
including how such organizations and individuals can certify to VA that
no fee or compensation will be charged to any individual for services
rendered in providing assistance.
DATES: Comments are due by October 15, 2026.
ADDRESSES: You may submit comments through <a href="http://www.regulations.gov">www.regulations.gov</a> under
Docket VA-2026-VACO-0001. Instructions for accessing agency documents,
submitting comments, and viewing the docket are available on
<a href="http://www.regulations.gov">www.regulations.gov</a> under ``FAQ.''
FOR FURTHER INFORMATION CONTACT: Christine Eickhoff, National Center
for Healthcare Advancement and Partnerships, Veterans Health
Administration, (202) 461-5751 or <a href="/cdn-cgi/l/email-protection#e9bfa1a8b6b9889b9d878c9b9a8180999aa9d588c9819b8c8fd4" http: va.gov">va.gov</a>">VHA_Partnerships@<a href="http://va.gov">va.gov</a></a>.
SUPPLEMENTARY INFORMATION:
I. Background
Section 129(a) of the Dole Act (Pub. L. 118-210) requires VA to
establish a process through which VA may recognize organizations and
individuals to assist veterans, their family members, or their
caregivers (as defined in 38 U.S.C. 1720G(d)) in navigating VHA
programs and services. Section 129(b) requires VA to solicit feedback
and recommendations in the creation of this process from such
organizations as VA may consider relevant. Section 129(c) prohibits VA
from recognizing an organization or individual pursuant to this process
unless the organization or individual has certified to VA that no fee
or compensation of any nature will be charged to any individual for
services rendered in providing assistance in navigating VHA programs
and services pursuant to section 129(a) of the Dole Act.
Currently, there is no established process for VA to recognize
organizations and individuals that assist veterans, their family
members, or their caregivers in navigating VHA programs and services.
Under 38 U.S.C. 5901-5904, VA may recognize organizations and
individuals for the purpose of preparing, presenting, and prosecuting
veterans' benefits claims. Pursuant to these authorities, VA has
established a robust accreditation, oversight, and fees program.
Through this program, VA accredits Veterans Service Organizations (VSO)
and their representatives (see 38 U.S.C. 5902 and 38 CFR 14.628 and
14.629(a)), as well as attorneys and claims agents in their individual
capacity (38 U.S.C. 5904 and 38 CFR 14.629(b)), to ensure that VA
claimants receive competent and qualified representation when pursuing
their VA benefit claims. Additionally, VA may use special authorization
to recognize individuals who certify that no fees will be charged to
the claimant, allowing them to assist with a single claim without
accreditation, and in rare circumstances, assist on multiple claims
without accreditation. 38 CFR 14.630(a)-(b). Similar to the health care
navigation services that will be provided by organizations and
individuals recognized under section 129 of the Dole Act, the claims
services provided by VA-accredited VSO representatives and specially
authorized individuals are always free to the individuals using those
services. However, recognition under section 129 of the Dole Act would
be distinct from the recognition process and requirements of 38 U.S.C.
5901-5904. This notice requests information related specifically to
section 129 of the Dole Act. Any comments not related to section 129 of
the Dole Act will not be considered within the scope of this notice.
II. Consultation With Interested Parties
Section 129(b) of the Dole Act requires VA to solicit feedback and
recommendations in the creation of the process from organizations that
VA may consider relevant. The proposed process outlined below was
developed with feedback from initial listening sessions with the
Elizabeth Dole Foundation, the Independence Fund, the National Resource
Directory, Operation Homefront, Paralyzed Veterans of America, the Red
Cross Military Veteran Caregiver Network, and the Wounded Warrior
Project. The feedback and recommendations obtained during these
sessions provided a baseline for the draft implementation framework
outlined below. Initial feedback from organizations included the types
of offerings organizations provide and how they provide resources that
assist veterans and their families, caregivers, and survivors with
navigating VHA programs and services. Through this request for comments
and information, VA is soliciting additional feedback and
recommendations from organizations and individuals to help inform VA's
recognition process under section 129 of the Dole Act.
III. Assistance in Navigating VHA Programs and Services
VA notes that assistance in navigating programs and services in a
health care context is not defined for purposes of section 129 of the
Dole Act. However, VA believes there are common factors for what could
constitute assistance in navigating in this area. Assistance in
navigating VA health programs and services could include guidance
offered to potential and existing beneficiaries such as overcoming
barriers and facilitating timely, high-quality, patient-
[[Page 58560]]
centered care.\1\ Providing support in navigating a health care system
could also include logistical and emotional support needed to engage in
the services and resources the system provides.\2\ Organizations and
individuals who assist in navigating may serve as ``brokers who help
individuals or families confront complex systems'' and ``offer possible
solutions to program access challenges because they coordinate
services, increase knowledge via education, and even promote systems
change efforts that reduce barriers to access and make service delivery
more welcoming to targeted populations''.\3\ Similar feedback from
listening sessions included ``making it easy to understand what you are
eligible to receive'' and ``navigating the system at large.''
Additional feedback from organizations also identified ``connecting
beneficiaries to the services available,'' ``a warm hand-off to a
specific program the veteran wants,'' ``education about resources,''
``training to community partners about new VA programs,'' and
leveraging ``the peer-to-peer connection'' as activities that they
would consider to be assistance with navigating VHA programs and
services.
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\1\ Freund, K.M., Battaglia, T.A., Calhoun, E., Dudley, D.J.,
Fiscella, K., Paskett, E., Raich, P.C., and Roetzheim, R.G. (2008),
National Cancer Institute Patient Navigation Research Program.
Cancer, 113: 3391-3399. <a href="https://doi.org/10.1002/cncr.23960">https://doi.org/10.1002/cncr.23960</a>.
\2\ Id.
\3\ Manhattan Strategy Group, Di Biase, C., & Mochel, M. (2021).
Navigators in Social Service Delivery Settings: A Review of the
Literature with Relevance to Workforce Development Programs. In D.
Martierrez, Senior Evaluation Specialist, U.S. Department of Labor.
<a href="https://www.dol.gov/sites/dolgov/files/ETA/publications/ETAOP_2021-37_NavigatorLitReview_20211203_508.pdf">https://www.dol.gov/sites/dolgov/files/ETA/publications/ETAOP_2021-37_NavigatorLitReview_20211203_508.pdf</a>.
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Assistance in navigating VHA programs and services could also
encompass coordination of the type described in 38 U.S.C. 523(b), which
requires VA to seek to achieve the effective coordination of the
provision, under laws administered by VA, of benefits and services (and
information about such benefits and services) with appropriate programs
(and information about such programs) conducted by State and local
governmental agencies and by private entities at the State and local
level. Such assistance could also encompass the services described in
38 U.S.C. 2034(a) and carried out through VA's Homeless Programs to
assist certain veterans with navigating resources provided by the
Federal government and State, local, and Tribal governments.
Expanding on the input provided by organizations in the listening
sessions, VA believes that assistance in navigating VHA programs and
services could include:
<bullet> Identifying and describing programs, services, and
resources VHA provides.
<bullet> Understanding and navigating eligibility for different VHA
benefits and services, including where to find eligibility information
and how to apply for VHA benefits.
<bullet> Discussing the impact of utilizing VHA services on
eligibility for other VA or community services or resources.
<bullet> Addressing questions about completing applications for and
otherwise requesting VA health benefits, including benefits under the
Program of Comprehensive Assistance for Family Caregivers and the
Program of General Caregiver Support Services.
<bullet> Providing VA points of contact for VA health benefits,
questions, and support.
IV. Framework for Recognition and Certification
VA proposes to establish the following framework for recognition of
and certification by organizations or individuals under section 129 of
the Dole Act.
A. Application for Recognition
VA proposes to establish an online platform for organizations and
individuals to submit a recognition application. VA plans to begin
accepting applications in 2026 once necessary processes are in place
and only after VA has reviewed and considered comments received in
response to this Notice. Organizations and individuals interested in
being recognized under section 129 of the Dole Act would submit their
request through the online platform. Organizations or individuals
seeking recognition by VA would have to provide information, as
applicable, including:
<bullet> For organizations, a brief description of the
organization's mission and purpose.
<bullet> What services or programs the organization or the
individual offers to veterans, their families, or caregivers.
<bullet> How the organization or individual provides their services
(for example, in-person, online).
<bullet> How the services offered assist veterans, their families,
or their caregivers in navigating VHA programs and services.
B. VA Reviews the Application
Upon receipt of an application, VA would review the application to
ensure that the organization or individual could meet the statutory
requirements in section 129 of the Dole Act, specifically that: (1) the
organization or individual will assist veterans, their families, or
their caregivers in navigating VHA programs and services; and (2) the
organization or individual will certify to VA that no fee or
compensation of any nature will be charged to any individual for
services rendered in providing such assistance. To meet the first
criterion, the organization or individual must demonstrate that their
services directly assist veterans, their families, or their caregivers
with navigating VHA programs and services. While there is no specific
definition for ``navigating [VHA] programs and services'' for purposes
of section 129 of the Dole Act, VA would consider activities like those
discussed in the section III above to meet this criterion. VA would
also consider the information provided by the organization or
individual in response to the application for recognition as discussed
in section IV.A above. To meet the second criterion, the organization
or individual would need to provide a signed document upon agreeing to
the terms, as further described in section IV.D below, certifying to VA
that no cost, fee, or compensation of any nature will be charged to any
individual for services rendered in navigating VHA programs and
services.
C. VA Notifies Organization or Individual of Decision
Following review, VA would notify, in writing, organizations and
individuals of VA's decision on whether VA could recognize the
organization or individual. This would not constitute formal
recognition, but it would inform the applicant of VA's findings and
preliminary conclusions and, if applicable, the next steps for
recognition of the organization or individual. VA received feedback
from the listening sessions that recommended using written notification
to applicants. This notice would standardize communications between VA
and those seeking recognition and help manage expectations and
responsibilities. As applicable, the written notification would
specify, at minimum, the purpose of the recognition, responsibilities,
expectations of the organization or individual, duration of the
recognition under section 129 of the Dole Act, any limitations, the
terms of renewal and termination, and VA contact information for the
organization or individual recognized; the organization or individual
would need to provide its contact information as well. The notification
would include the appeal rights for organizations and
[[Page 58561]]
individuals, including those who have not been selected for
recognition. The notification would also explain, as applicable, that
VA reserves the right to propose modifications to or terminate the
recognition under section 129 of the Dole Act if the organization or
individual fails to comply with the terms or fails to meet the
recognition criteria. As applicable, the notification would include a
document setting forth the terms and conditions of recognition with a
signature line for the organization or individual.
D. Organization or Individual Agrees to Terms
Upon receipt of the written notification, the organization or
individual would have to sign this document agreeing to the terms and
conditions associated with recognition in order to be recognized. To
ensure agreement with these requirements at the outset, organizations
or individuals would have to:
<bullet> Certify that the organization or individual provides their
services directly for no fee or compensation of any nature from the
individual(s) assisted.
<bullet> Certify that the organization or individual is responsible
for ensuring that any contractors, sub-contractors, or third parties do
not charge a fee, cost, or compensation to individuals for services
rendered in providing assistance under section 129 of the Dole Act.
<bullet> Affirm that the organization or individual recognized
offers two-way real time interactive communication with a person to
assist veterans, their families, or their caregivers with navigating
VHA services and programs.
<bullet> Affirm that the organization or individual does not have a
history of controversies, unethical or illegal business or financial
practices, leadership issues, or other negative optics that, if the
organization or individual were recognized under section 129 of the
Dole Act, would put veterans, VA staff, or the Department at increased
legal, safety, or ethical risk. ``Negative optics'' would refer to any
ongoing or previous activity that includes controversy, legal
judgments, scams, alleged illegal or unethical activities, conflicts of
interest, or lawsuits. VA would determine compliance with these
requirements consistent with how VA makes such determinations for
public-private partnerships in accordance with existing VA policy
(specifically, VA Directive 0008, Developing Non-Monetary Public-
Private Partnerships with, and Accepting Gifts to VA from Non-
Governmental Organizations, available online at: <a href="https://www.my.sites.va.gov/policy/">https://www.my.sites.va.gov/policy/</a>).
<bullet> Affirm that the organization has been registered as a
legally operating entity with at least one State for at minimum 24
months (note, this requirement would not apply to individuals). To be
registered as a legally operating entity, the organization must have a
certificate of incorporation or similar legal document from a State
government office (for example, Secretary of State Business Services).
This is typically the State where the organization files for taxes. The
minimum 24-months' time frame ensures the relevant filing systems
reflect currently operating organizations. For purposes of this notice,
State means each of the several States, Territories, and possessions of
the United States, the District of Columbia, and the Commonwealth of
Puerto Rico.
<bullet> Affirm that the organization has an active listing on the
National Resource Directory led by the Department of Defense (note,
this requirement would not apply to individuals).
<bullet> Affirm that the information available about the
organization supports the details they provided in their recognition
request (note, this requirement would not apply to individuals). VA
would determine compliance with these requirements consistent with how
VA makes such determinations for public-private partnerships in
accordance with existing VA policy (specifically, VA Directive 0008,
Developing Non-Monetary Public-Private Partnerships with, and Accepting
Gifts to VA from, Non-Governmental Organizations).
By signing the document, the organization or individual would agree
to these terms and conditions, and the organization or individual would
certify that no fee or compensation of any nature will be charged to
any individual for services rendered by the organization or individual
in providing assistance with navigating VHA programs and services. This
document would have to be returned to VA before VA can publicly
recognize the organization or individual.
E. VA Publicly Recognizes the Organization or Individual
Upon receipt of the signed document, and verification that
applicable requirements have been met, VA would issue a notice in
writing to the organization or individual that recognizes the
organization or individual for purposes of section 129 of the Dole Act
and sets forth applicable training requirements for the organization or
individual. VA would maintain a list of recognized organizations and
individuals on a public-facing website on the <a href="http://va.gov">va.gov</a> domain so that
veterans, their families, their caregivers, and VA staff may easily
identify those organizations and individuals that have been recognized
as a resource to assist with navigating VHA programs and services.
V. Request for Comments and Information
This request for comments and information will assist VA in
formalizing the process for recognition of organizations and
individuals to assist veterans, their families, or their caregivers in
navigating VHA programs and services. Comments not related to the
process for recognition required under section 129 of the Dole Act,
such as comments on specific VHA programs and services, health care
delivery, VSO accreditation, contracts, acquisition, grants, or other
types of monetary relationships, are not within the scope of this
request for comments and information. VA notes that feedback received
is intended to inform the process, and not all feedback will
necessarily be incorporated in the process. Comments received that are
applicable to the recognition process will be considered by VA.
Currently, VA plans to implement section 129 of the Dole Act without
rulemaking. However, if VA decides to promulgate regulations under
section 129, comments received in response to this request could inform
future rulemaking.
Commenters are encouraged to provide complete, but concise,
responses to the questions outlined below. Commenters do not need to
address every question below and are encouraged to focus on those that
relate to their expertise or perspectives. In addition to the questions
below, VA may accept input on topics related to each question, as
applicable. Please ensure to clearly indicate which topics and issues
you address in your response. VA requests feedback and recommendations
on the following topics.
A. Recognition Eligibility and Criteria
1. What qualifications should organizations or individuals possess
to be eligible for recognition under section 129 of the Dole Act?
Please provide justification and any recommendations for or against a
qualification for an organization or individual that may seek
recognition.
2. What feedback do you have on the proposed steps for VA receiving
[[Page 58562]]
recognition requests and recognizing an individual or organization as
outlined in section IV ``Framework for Recognition and Certification?''
3. Are there any criteria for recognition identified in section IV
``Framework for Recognition and Certification'' of this notice that
should be modified? Please provide clear justification and any
recommendations for any proposed modifications to criteria listed above
and include language for any proposed revision.
4. What are examples of publicly available vetting tools (e.g.,
background checks, websites, directories, organizational profiles,
etc.) that should be leveraged to assist in validating the eligibility
of organizations or individuals?
5. VA is planning to recognize organizations and individuals for an
initial one-year timeframe, and to allow for annual renewal for up to
three total years, provided the organization or individual continues to
meet the recognition criteria. After the maximum recognition timeframe,
an organization or individual would need to complete a new recognition
application to renew their recognition, and the process outlined above
would repeat. This would help ensure their information is current and
the organization or individual still meets the requirements of section
129 of the Dole Act. Please provide a justification for any feedback
you may have on these proposed timeframes.
6. What are examples of supporting documents or evidence
organizations or individuals should provide as part of their
recognition request to help demonstrate how they meet section 129 of
the Dole Act and the proposed criteria for recognition?
B. Assistance in Navigating VHA Programs and Services
1. What are examples of documents an organization or individual
should provide as evidence to detail each specific type of assistance
or support they provide to veterans, their family members, or their
caregivers in navigating VHA programs and services?
2. What are examples of assistance veterans, their families, or
their caregivers may need in navigating VHA programs and services?
3. What are examples of assistance that organizations or
individuals may provide in navigating VHA programs and services?
4. What activities or training should an organization or individual
engage in to ensure they have the critical skills and expertise to
assist with navigating VHA programs and services?
C. ``No Fee or Compensation'' Certification to VA
1. What are examples of documents, attestations, etc., an
organization should provide to certify to VA that no fee or
compensation of any nature will be charged to any individual for
services rendered in providing assistance?
2. What are examples of documents, attestations, etc., an
individual should provide to certify to VA that no fee or compensation
of any nature will be charged for services rendered in providing
assistance?
3. What are examples of publicly available tools, websites,
directories, profiles, etc. that could be leveraged to assist in
certifying that no fee or compensation of any nature will be charged
for services rendered in providing assistance?
4. In the case that a recognized organization or individual charges
a fee or requires compensation for services rendered in providing
assistance in navigating VHA programs or services, VA would take action
to revoke their recognition. Should any other consequences or penalties
apply in these circumstances (for example, with respect to future
recognition of the organization or individual)?
5. Should organizations or individuals that offer both free and
paid services other than those for navigating VHA programs and services
be eligible for recognition under section 129 of the Dole Act, or
should organizations or individuals that only provide free services be
eligible? Please provide clear justification on your recommendation.
D. Oversight
1. What are examples of existing platforms that could be leveraged
to allow veterans, their families, or caregivers to provide feedback to
VA about recognized organizations and individuals and the assistance
they provide in navigating VHA programs or services?
2. In the case that a recognized organization or individual does
not provide the assistance they claimed to, or fails to meet the
recognition criteria under section 129 of the Dole Act, VA would take
action to revoke their recognition. Should any other consequences or
penalties apply in these circumstances (for example, with respect to
future recognition of the organization or individual)?
Signing Authority
Douglas A. Collins, Secretary of Veterans Affairs, approved this
document on September 8, 2026 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.
Jacquelyn Collins,
Alternate Federal Register Liaison Officer, Department of Veterans
Affairs.
[FR Doc. 2026-18904 Filed 9-14-26; 8:45 am]
BILLING CODE 8320-01-P
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