[Federal Register Volume 64, Number 112 (Friday, June 11, 1999)]
[Rules and Regulations]
[Pages 31485-31488]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-14846]
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Rules and Regulations
Federal Register
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This section of the FEDERAL REGISTER contains regulatory documents
having general applicability and legal effect, most of which are keyed
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Federal Register / Vol. 64, No. 112 / Friday, June 11, 1999 / Rules
and Regulations
[[Page 31485]]
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OFFICE OF PERSONNEL MANAGEMENT
5 CFR Parts 213, 353, 870, and 890
RINS 3206-AG02 and 3206-AH15
Reemployment Rights of Employees Performing Military Duty
AGENCY: Office of Personnel Management.
ACTION: Final regulations.
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SUMMARY: The Office of Personnel Management (OPM) is issuing final
regulations to implement the provisions of the Uniformed Services
Employment and Reemployment Rights Act of 1994 (USERRA) which was
enacted into law on October 13, 1994. The law and these regulations
safeguard the job rights of Federal employees who leave their
employment to perform duty with the uniformed services.
These regulations also implement provisions that expand on the
coverage of the affected employees under the Federal Employees' Group
Life Insurance (FEGLI) Program and the Federal Employees Health
Benefits (FEHB) Program. The regulations were developed in consultation
with the Departments of Labor and Defense.
EFFECTIVE DATE: July 12, 1999.
FOR FURTHER INFORMATION CONTACT: For parts 213 or 353: Raleigh M.
Neville, (202) 606-0830. For parts 870 or 890: Abby L. Block, (202)
606-0004.
SUPPLEMENTARY INFORMATION: OPM published for comment on September 1,
1995 (at 60 FR 45650), and October 30, 1995 (at 60 FR 55173), interim
regulations implementing the new USERRA law.
Comments on Part 353
We received comments from two agencies on the restoration-to-duty
aspect of the law in 5 CFR part 353. We also received two comments from
an agency on the health and life insurance changes in parts 870 and
890.
Section 4314 of title 38, United States Code, enacted as part of
USERRA, requires OPM to place in other agencies a National Guard
technician when the adjutant general of a State determines that it is
``impossible or unreasonable'' to reemploy the person in a dual status
military/civilian technician position.
One commenter suggested that we make clear in the final regulations
that National Guard technicians who fail to maintain active military
membership in the Guard for reasons within their control (such as
misconduct, military retirement, failure to meet weight or security
requirements, etc.) are not eligible for the special mandatory
placement in other agencies provided under section 4314 of title 38.
We agree that the law was not intended to provide a mandatory
placement right in other agencies for Guard technicians who lose their
military membership for reasons within their control. To do so would be
to extend an extraordinary employment benefit to Guard technicians far
beyond that accorded to any other group--including disabled combat
veterans and others who have lost Federal jobs for reasons outside
their control. Such a placement provision would also be contrary to the
stated purpose of USERRA--which is to encourage and protect ``noncareer
service'' that lasts no more than a cumulative total of 5 years, with
some exceptions for training and emergency call-ups. (See 38 U.S.C.
4301)
Such a policy would also be inconsistent with 5 U.S.C. 3329--a
provision that was enacted specifically to protect long-term Guard
members, but which, significantly, provides only for priority placement
in the Department of Defense, not mandatory placement in other
agencies. (This is just one of a number of special protections already
provided for technicians; for example, 5 U.S.C. 3304 gives technicians
who are removed involuntarily a 1-year window of opportunity to be
appointed noncompetitively to another civil service job.)
Finally, National Guard technicians knew that they were making a
career decision when they volunteered for extended active duty with the
Guard. These technicians were not merely absent from their technician
positions (as envisioned by the law); rather, they had abandoned their
jobs in order to pursue careers in the military. Interruption of that
career for reasons within the individual's control should no more
entitle the Guard member to mandatory job rights in another agency than
would loss of Reserve membership for a Reservist or, for that matter,
loss of a career choice for any other Government or private sector
employee. We have, therefore, amended final regulation 5 CFR
353.110(a)(1)(iii) accordingly.
This commenter also suggested that we amend 5 CFR 353.211 to make
clear that, because the term ``employer,'' as it pertains to National
Guard technicians, means the Adjutant General of a State, these
technicians may no longer appeal to the Merit Systems Protection Board
(MSPB) a State's failure to reemploy them; they must now go to court.
We have made this change. (Note, however, that this does not affect a
technician's right to appeal to MSPB OPM's failure to place the
individual under 38 U.S.C. 4314(d).)
A commenter suggested that we delete the word ``substantially'' in
the third sentence in 5 CFR 353.108 (pertaining to the effect of
performance and conduct on restoration rights for both injured
employees and those on military duty), saying that this ``will
eliminate the suggestion that something less than substantial is
acceptable.'' Actually, this section says that an employee may not be
denied restoration rights unless he or she was separated ``for cause
that is substantially unrelated to the injury or to the performance of
uniformed service.'' There is no implication that restoration can be
denied when the separation was something less than ``substantially
unrelated'' to the injury or military duty. This standard will be
maintained.
This commenter also suggested that in 5 CFR 353.109 (concerning a
transfer of function to another agency), we substitute the words from
the statute ``of like seniority, status, and pay'' for ``equivalent''
in denoting the position to which the position to which the person is
entitled. Actually, ``equivalent position,'' in this context, has long
been interpreted as ``like seniority, status, and pay.'' We note, too,
that ``seniority'' is already included in the definition of ``status.''
We did not include the term
[[Page 31486]]
separately, here, however, because seniority is not typically a factor
for Federal positions and is thus not commonly used.
This commenter also questions whether OPM should create a 30-day
standard in 5 CFR 353.207 by which time agencies must restore an
employee who has been absent on military duty for more than 30 days.
The agency suggests that it may be preferable to require prompt or
reasonable reemployment, instead. The 30-day standard has been in
effect for many years and has been consistently applied by MSPB in such
a way as to require prompt and reasonable reemployment by an agency. In
this connection, it should be noted that 30 days is the maximum an
agency can delay a restoration. It is conceivable that by changing this
to a standard without a definite time limit, situations may devolve in
which it may be considered ``reasonable'' for an agency to restore
someone long after 30 days have elapsed.
Because of questions about the applicability of USERRA and other
laws to U.S. citizens located outside of the United States, one
commenter suggested that we clarify what USERRA does, in fact, cover
civil service employees stationed overseas. We have amended 5 CFR
353.103 to do so.
Other comments dealt with editorial and clerical errors.
Comments on Parts 870 and 890
OPM received two comments from a Federal agency on the interim
regulations. One commenter suggested that the sentence added at the end
of 5 CFR 870.501(d) be added to section 870.501(a) instead. Although we
did not accept this suggestion as stated, we amended paragraph section
870.501(a) to clarify that the last sentence of section 870.501(d) is
an exception. We also eliminated the words ``in nonpay status'' from
the last sentence of section 870.501(d) because it is possible to be in
a pay status and eligible for USERRA benefits at the same time.
These changes were incorporated into the final FEGLI regulations
that were published in the Federal Register on September 17, 1997 (62
FR 48731).
One commenter objected to three phrases in 5 CFR 890.303(i) and one
in section 890.304: (1) ``on the date that the absence to serve in the
uniform services begins,'' (2) ``enters on military furlough or,'' (3)
``provided the employee continues to be entitled to benefits under part
353,'' and (4) ``or the date entitlement to of this chapter.'' Since
these phrases reflect the requirements of USERRA, we cannot accept this
suggestion. For example, under the provisions of USERRA a separated
employee who leaves military service and does not return to his or her
civilian position within the time limit set by the law loses
eligibility for continued health benefits coverage.
One commenter suggests we delete the words ``but not earlier than
the date the enrollment would otherwise terminate under paragraph
(a)(1)(v)'' as not applicable to employees with continued coverage
under USERRA. (See 5 CFR 390.304) Paragraph (a)(1)(v) reflects the
provisions of the FEHB law and regulations giving employees who are in
nonpay status continued entitlement to FEHB coverage for 365 days. The
FEHB entitlement remains even if entitlement to coverage under USERRA
is lost. Therefore, we have not accepted this suggestion.
One commenter suggests amending the interim regulations to specify
that the regulations apply to employees who met the requirements of
USERRA on October 13, 1994, so that they would cover employees whose
insurance terminated due to separation for military service, but who
met the USERRA requirements on or after that date. We have amended the
interim regulations to clarify that they apply to separated employees
as well as employees in nonpay status who met the USERRA requirements
on October 13, 1994.
Both commenters object to the requirement that the employee pay the
full premium (both employee and Government shares) plus an additional 2
percent after the initial 365 days of coverage. One commenter also
objects to the requirement that the employee pay premiums on a current
basis after the first 365 days. There is no statutory authority for the
Government to pay its share for coverage beyond 365 days, nor is there
statutory authority for OPM to waive the Government share after 365
days in nonpay status. Therefore, employees must pay it. Further, since
USERRA is patterned after COBRA, 29 U.S.C. 1161, et seq., (which
requires private sector employers to provide continued group health
coverage to separated employees for a period of 18 months at a cost to
the individual of up to 102 percent of the premium), we have patterned
these regulations after the temporary continuation of coverage (TCC)
provision of the FEHB law, 5 U.S.C. 8905(a), (the FEHB equivalent to
COBRA) to the extent applicable. The TCC provisions are not applicable
for the first 365 days because, under FEHB law and regulation, the
employees and the Government continue to pay their respective shares
for that period.
Both the FEGLI and FEHB regulations have been amended to show that
employees who separate to perform military service are considered to be
employees for the purpose of continuing these benefits. The FEHB
regulations have also been amended to show that FEHB coverage may
continue for up to 18 months after the employee enters military
service.
In addition to these changes, we added the phrase ``or similar
authority'' each time we refer to 5 CFR part 353 in the FEGLI and FEHB
regulations. This change clarifies that the FEGLI and FEHB provisions
also apply to entities covered by the FEGLI and FEHB regulations but
not by part 353.
The interim regulations for part 870 were adopted as final and
published in the Federal Register on September 17, 1997.
Technical and Clarifying Amendments
We have amended the final regulations to reflect perfecting changes
made by the Veterans' Benefits Improvements Act of 1996 (which includes
USERRA technical amendments), enacted into law on October 9, 1996.
We have also amended 5 CFR 353.106(c) to provide that agencies not
only have an obligation to consider employees absent on military duty
for any promotion they may have been entitled to, but also to any
``incident or advantage of employment.''
These regulations were developed in consultation with the
Departments of Labor and Defense.
Regulatory Flexibility Act
I certify that these regulations will not have a significant
economic impact on a substantial number of small entities because it
pertains only to Federal agencies.
List of Subjects in Parts 213, 353, 870, and 890
Administrative practice and procedure, Government employees, Health
facilities, Health insurance, Health professions, Hostages, Iraq,
Kuwait, Lebanon, Life insurance, Reporting and recordkeeping
requirements, Retirement.
Office of Personnel Management.
Janice R. Lachance,
Director.
Accordingly, OPM is adopting the interim regulations amending 5 CFR
parts 213, 353, 870, and 890, which were published at 60 FR 45650 and
60 FR 55173 on September 1, 1995, and October 30, 1995, respectively,
as final regulations with the following changes:
[[Page 31487]]
PART 353--RESTORATION TO DUTY FROM UNIFORMED SERVICE OR COMPENSABLE
INJURY
1. The authority citation for 5 CFR part 353 continues to read as
follows:
Authority: 38 U.S.C. 4301 et. seq., and 5 U.S.C. 8151.
2. Section 353.103 is amended by revising the first sentence in
paragraph (a) to read as follows:
Sec. 353.103 Persons covered.
(a) The provisions of this part pertaining to the uniformed
services cover each agency employee who enters into such service
regardless of whether the employee is located in the United States or
overseas. * * *
* * * * *
3. Section 353.106 is amended by adding a new sentence at the end
of paragraph (c) and by adding paragraphs (c)(1), (c)(2), and (c)(3) to
read as follows:
Sec. 353.106 Personnel actions during employee's absence.
* * * * *
(c) * * * In addition, agencies have an obligation to consider
employees absent on military duty for any incident or advantage of
employment that they may have been entitled to had they not been
absent. This is determined by:
(1) Considering whether the ``incident or advantage'' is one
generally granted to all employees in that workplace and whether it was
denied solely because of absence for military service;
(2) Considering whether the person absent on military duty was
treated the same as if the person had remained at work; and
(3) Considering whether it was reasonably certain that the benefit
would have accrued to the employee but for the absence for military
service.
4-5. In Sec. 353.110 paragraph (a)(2) is amended by removing the
word ``time'' from the first sentence and paragraph (a)(1)(iii) is
revised to read as follows:
Sec. 353.110 OPM placement assistance.
(a) * * *
(1) * * *
(iii) National Guard technicians when the Adjutant General of a
State determines that it is impossible or unreasonable to reemploy a
technician otherwise eligible for restoration under 38 U.S.C. 4304 and
4312 (pertaining to character and length of service), and the
technician is a noncareer military member who was separated
invountarily from the Guard for reasons beyond his or her control; and
* * * * *
6. Section 353.203(a)(4)(ii) is revised to read as follows:
Sec. 353.203 Length of service.
(a) * * *
(4) * * *
(ii) Ordered to or retained on active duty (other than for
training) under any provision of law during a war or during a national
emergency declared by the President or the Congress, as determined by
the Secretary concerned.
* * * * *
Sec. 353.208 [Amended]
7. Section 353.208 is amended by removing the number 6 before the
word ``permitted'' in the first sentence of the section.
8. Section 353.210 is revised to read as follows:
Sec. 353.210 Department of Labor assistance to applicants and
employees.
USERRA requires the Department of Labor's Veterans' Employment and
Training Service [VETS] to provide employment and reemployment
assistance to any Federal employee or applicant who requests it. VETS
staff will attempt to resolve employment disputes brought to
investigate. If dispute resolution proves unsuccessful, VETS will, at
the request of the employee, refer the matter to the Office of the
Special Counsel for representation before the Merit Systems Protection
Board (MSPB).
9. In Sec. 353.211 paragraph (b) is amended by adding two new
sentences at the end to read as follows:
Sec. 353.211 Appeal rights.
* * * * *
(b) * * * However, National Guard technicians do not have the right
to appeal to MSPB a denial of reemployment rights by the Adjutant
General. Technicians may file complaints with the appropriate district
court in accordance with 38 U.S.C. 4323 (USERRA).
PART 890--FEDERAL EMPLOYEES HEALTH BENEFITS PROGRAM
10. The authority citation for part 890 is revised to read as
follows:
Authority: 5 U.S.C. 8913; Sec. 890.102(f) also issued under sec.
153 of Pub. L. 104-134, 110 Stat 1321; section 890.803 also issued
under 50 U.S.C. 403p, 22 U.S.C. 4069c and 4069c-1; subpart L is also
issued under sec. 599C of Pub. L. 101-513, 104 Stat. 2064, as
amended.
11. Section 890.303 is amended by revising paragraph (i) to read as
follows:
Sec. 890.303 Continuation of enrollment.
* * * * *
(i) Service in the uniformed services. The enrollment of an
individual who separates to enter the uniformed services under
conditions that entitle him or her to benefits under part 353 of this
chapter, or similar authority, may continue for the 18-month period
beginning on the date that the absence to serve in the uniformed
services begins, provided that the individual continues to be entitled
to benefits under part 353 of this chapter, or similar authority. The
enrollment of an employee who enters on military furlough or is placed
in nonpay status to serve in the uniformed services may continue for
the 18-month period beginning on the date that the absence to serve in
the uniformed service begins, provided that the employee continues to
be entitled to benefits under part 353 of this chapter, or similar
authority. An employee in nonpay status is entitled to continued
coverage under paragraph (e) of this section if the employee's
entitlement to benefits under part 353 of this chapter, or similar
authority, ends before the expiration of 365 days in nonpay status. The
enrollment of an employee who met the requirements of chapter 43 of
title 38, United States Code, on October 13, 1994, may continue for the
18-month period beginning on the date that the absence to serve in the
uniformed services began, provided that the employee continues to be
entitled to continued coverage under part 353 of this chapter, or
similar authority. If the enrollment of such an employee had terminated
due to the expiration of 365 days in nonpay status or because of the
employee's separation from service, it may be reinstated for the
remainder of the 18-month period beginning on the date that the absence
to service in the uniformed service began, provided that the employee
continues to be entitled to continued coverage under part 353 of this
chapter, or similar authority.
12. In Sec. 890.304 paragraphs (a)(1)(vi), (a)(1)(vii), and
(a)(1)(viii) are revised to read as follows:
Sec. 890.304 Termination of enrollment.
(a) * * *
(1) * * *
(vi) The day he or she is separated, furloughed, or placed on leave
of absence to serve in the uniformed services under conditions
entitling him or her to benefits under part 353 of this chapter, or
similar authority, for the purpose of performing duty not limited to 30
days or less, provided the employee elects in writing to have the
enrollment so terminated.
(vii) For an employee who separates to serve in the uniformed
services under
[[Page 31488]]
conditions entitling him or her to benefits under part 353 of this
chapter, or similar authority, for the purpose of performing duty not
limited to 30 days or less, the date that is 18 months after the date
that the absence to serve in the uniformed services began or the date
entitlement to benefits under part 353 of this chapter, or similar
authority, ends, whichever is earlier, unless the enrollment is
terminated under paragraph (a)(1)(vi) of this section.
(viii) For an employee who is furloughed or placed on leave of
absence under conditions entitling him or her to benefits under part
353 of this chapter, or similar authority, the date that is 18 months
after the date that the absence to serve in the uniformed services
began or the date entitlement to benefits under part 353 of this
chapter, or similar authority, ends, whichever is earlier, but not
earlier than the date the enrollment would otherwise terminate under
paragraph (a)(1)(v) of this section.
* * * * *
13. In Sec. 890.305 paragraph (a) is revised to read as follows:
Sec. 890.305 Reinstatement of enrollment after military service.
(a) The enrollment of an employee or annuitant whose enrollment was
terminated under Sec. 890.304(a)(1)(vi), (vii), or (viii) or
Sec. 890.304(b)(4)(iii) is automatically reinstated on the day the
employee is restored to a civilian position under the provisions of
part 353 of this chapter, or similar authority, or on the day the
annuitant is separated from the uniformed services, as the case may be.
* * * * *
14. In Sec. 890.501 paragraphs (e), (f), and (g) are revised to
read as follows:
Sec. 890.501 Government contributions.
* * * * *
(e) Except as provided in paragraphs (f) and (g) of this section,
the employing office must make a contribution for an employee for each
pay period during which the enrollment continues.
(f) Temporary employees enrolled under 5 U.S.C. 8906a must pay the
full subscription charge including the Government contribution.
Employees with provisional appointments under Sec. 316.403 of this
chapter are not considered to be enrolled under 5 U.S.C. 8906a for the
purposes of this paragraph.
(g) The Government contribution for an employee who enters the
uniformed services and whose enrollment continues under Sec. 890.303(i)
ceases after 365 days in nonpay status.
15. In Sec. 890.502 paragraph (f) is revised to read as follows:
Sec. 890.502 Employee withholdings and contributions.
* * * * *
(f) Uniformed services. (1) Except as provided in paragraph (f)(2)
of this section, an employee whose coverage continues under
Sec. 890.303(i) is responsible for payment of the employee share of the
cost of enrollment for every pay period for which the enrollment
continues for the first 365 days of continued coverage as set forth
under paragraph (b) of this section. For coverage that continues after
365 days in nonpay status, the employee must pay, on a current basis,
the full subscription charge, including both the employee and
Government shares, plus an additional 2 percent of the full
subscription charge.
(2) Payment of the employee's share of the cost of enrollment is
waived for the first 365 days of continued coverage in the case of an
employee whose coverage continues under Sec. 890.303(e) following
furlough or placement on leave of absence under the provisions of part
353 of this chapter, or similar authority, or under Sec. 890.303(i) if
the employee was ordered to active duty before September 1, 1995, under
section 12301, 12304, 12306, 12307, or 688 of title 10, United States
Code, in support of Operation Desert Storm.
[FR Doc. 99-14846 Filed 6-10-99; 8:45 am]
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