--- title: "Part II, Subpart iii, Chapter 1, Section A Applications for Benefits" document: "M-21-1" section: "Part II, Subpart iii, Chapter 1, Section A" canonical: "https://veteranai.co/va-regulations/m21-1/ii.iii.1.a-applications-for-benefits" source: "https://www.knowva.ebenefits.va.gov/system/templates/selfservice/va_ssnew/help/customer/locale/en-US/portal/554400000001018/content/554400000174869/M21-1-Part-II-Subpart-iii-Chapter-1-Section-A-Applications-for-Benefits" updated: "2026-09-07T14:37:01.861987Z" --- September 11, 2025 ### II.iii.1.A.1.a. Requirements for a Complete Claim Received on or After March 24, 2015 Effective March 24, 2015, the Department of Veterans Affairs (VA) only recognizes compensation, pension, survivors, and related claims if they are submitted on the required standard forms. Use the table below to determine the correct VA form to use based on the type of benefit sought by the claimant. | **If the benefit sought is ...**| **Then the prescribed form is _VA Form_...** * service connection (SC) (initial) * increased evaluation, or * a claim for a permanent and total (P&T) rating | [ _21-526EZ, Application for Disability Compensation and Related Compensation Benefits_]()[.]() associated with a supplemental claim| _[20-0995, Decision Review Request: Supplemental Claim]()._ associated with a request for higher-level review of a prior decision| [ _20-0996, Decision Review Request: Higher-Level Review_](). temporary total disability rating (paragraph 29 and 30 benefits)| [_21-526EZ_](). **Note:** Receipt of a _Report of Hospitalization_ at a VA hospital or military treatment facility will prompt review for entitlement to a temporary evaluation under [38 CFR 4.29]() and [38 CFR 4.30]() without a claimant’s submission of a claim. **References:** For more information on * scope of * hospitalization ratings, see [M21-1, Part VIII, Subpart iv, 8.B.1.b](), and * convalescent ratings, see [M21-1, Part VIII, Subpart iv, 8.C.1.d](), and * claims based on reports of examination or hospitalization, see [M21-1, Part II, Subpart iii, 2.D](). total disability rating based on individual unemployability (TDIU)| * [_21-8940, Veteran’s Application for Increased Compensation Based on Unemployability_](), or * [ _21-4140, Employment Questionnaire_](), (if submitted as part of the verification process described in [M21-1, Part VIII, Subpart iv, 3.D]()). TDIU can also be claimed on [_VA Form 21-526EZ_](). **Notes:** * [_VA Form 21-8940_]() is not required to claim individual unemployability (IU). However, submission of [_VA Form 21-8940_]() by the Veteran is required in the course of development of the IU claim and for the award of TDIU benefits. * [_VA Form 21-8940_]() is **_not_** an acceptable standard form for a claim for increase in the evaluation of a disability independent of a claim for IU. However, as a part of adjudication of the TDIU issue, the evaluation of the service-connected (SC) disabilities claimed to cause unemployability must be considered. **References:** For more information on * the role of [_VA Form 21-8940_]() in development of IU claims, see [M21-1, Part VIII, Subpart iv, 3.B.1.d]() * considering entitlement to an increased evaluation of SC disabilities when considering claims for TDIU, see [M21-1, Part VIII, Subpart iv, 3.B.1.e](), and * reasonably raised claims for IU, see [M21-1, Part VIII, Subpart iv, 3.B.1.f and g](). child incapable of self-support benefits| * [ _21-526EZ_]() * [ _21-686c, Application Request to Add and/or Remove Dependents_]() * _[21P-527EZ, Application for Veterans Pension]()_ * _[21P-534EZ, Application for D.I.C., Survivors Pension, and/or Accrued Benefits]()_, or * [ _21P-534a_ , _Application for Dependency and Indemnity Compensation by a Surviving Spouse or Child - In-Service Death Only_](). **Note:** Information about a child incapable of self-support submitted by a Veteran on a timely received _December 2017 or earlier_ version of [_VA Form 21-0538, Mandatory Verification of Dependents_](), will be sufficient to initiate a claim to add the dependent(s) to the Veteran’s award. Veterans Pension (initial)| [_21P-527EZ_]() dependency and indemnity compensation (DIC), Survivors Pension and accrued benefits (initial)| * [_21P-534a_]() (surviving spouse and child/ren only) * [_21P-534EZ_]() (surviving spouse and child/ren only) * [_21P-535, Application for Dependency and Indemnity Compensation by Parent(s) (Including Accrued Benefits and Death Compensation when Applicable)_]() (surviving parent(s) only), or * [ _21P-601, Application for Accrued Amounts Due a Deceased Beneficiary_](), for accrued benefits only. **Notes:** * _[VA Form 21P-0847, Request for Substitution of Claimant Upon Death of Claimant]()_ , may also be used as a prescribed form for accrued benefits if submitted by a surviving spouse _**and**_ the substitution determination results in the claimant being recognized as a valid substitute. * If an adult child, that does not meet the exception in [M21-1, Part X, Subpart ii, 6.B.1.a](), submits a [_VA Form 21P-534EZ_](), then a claim for accrued benefits should not be formally decided. Instead, process the accrued portion as a request for application and send the claimant the correct form to apply for benefits ([_VA form 21P-601_]()). **Reference:** For more information on actions to take upon receipt of [_VA Form 21-4182, Application for Dependency and Indemnity Compensation or Death Pension (Including Accrued Benefits and Death Compensation Where Applicable) From the Department of Veterans Affairs (Supplemental to Social Security Application Forms SSA-4, 5, 7 and 10)_](), see [M21-1, Part XII, Subpart i, 4.A](). income adjustments for running pension awards or to supplement initial applications (income/asset/net worth, liberalized legislation) | * [_21P-0512S-1,_ _Old Law and Section 306 Eligibility Verification Report (Surviving Spouse)_]() * [_21P-0512V-1,_ _Old Law and Section 306 Eligibility Verification Report (Veteran)_]() * [_21P-0513-1,_ _Old Law and Section 306 Eligibility Verification Report (Children Only)_]() * [_21P-0514-1, D.I.C. Parents' Eligibility Verification Report_]() * [ _21P-0516-1, Improved Pension Eligibility Verification Report (Veteran With No Children)_]() * [_21P-0517-1, Improved Pension Eligibility Verification Report (Veteran with Children)_]() * [_21P-0518-1, Improved Pension Eligibility Verification Report (Surviving Spouse With No Children)_]() * [_21P-0519C-1, Improved Pension Eligibility Verification Report (Child or Children)_]() * [_21P-0519S-1, Improved Pension Eligibility Verification Report (Surviving Spouse with Children)_]() * _[21P-0969, Income and Asset Statement in Support of Claim for Pension or Parents’ Dependency and Indemnity Compensation (D.I.C.)]()_ * [_21P-8416, Medical Expense Report_]() * [ _21P-8416b, Report of Medical, Legal, and Other Expenses Incident to Recovery for Injury or Death_]() * [ _21P-0571, Application for Exclusion of Children’s Income_]() * [ _21-8049, Request for Details of Expenses_]() * [ _21P-4165, Pension Claim Questionnaire for Farm Income_](), and * [ _21P-4185, Report of Income from Property or Business_](). _**Exception:** _VA does _not_ require beneficiaries to use a specific form to report a change in income that will result in a _decrease_ in benefits. A beneficiary may report such changes * in writing * by telephone or e-mail, or * through a VA claims submission service website. burial benefits (initial)| * _[21P-530EZ, Application for Burial Benefits (Under 38 U.S.C. Chapter 23)]()_ * [_21P-530a, State or Tribal Organization Application for Interment Allowance (Under 38 U.S.C. Chapter 23)_](), and * [ _21P-8834, Application for Reimbursement of Headstone or Marker Expense_](). specially adapted housing (SAH) or special housing adaptation (SHA)| * [_26-4555_ , _Application in Acquiring Specially Adapted Housing or Special Home Adaptation Grant (Title 38 U.S.C. Section 2101(a) or 2101(b))_](), and * [ _26-4555c_ , _Veteran/Servicemember's Supplemental Application for Assistance in Acquiring Specially Adapted Housing_](). SAH/SHA can also be claimed on [_VA Form 21-526EZ_](). **Important:** * [_VA Form 26-4555_]() or _[26-4555c]()_ can be used as a standalone initial claim. * [_VA Form 26-4555_]() or [_26-4555c_]() is a claim for both SAH and SHA. * A grant of SAH renders the issue of SHA moot since SAH is the greater benefit. SHA need not be addressed when SAH is granted. * If SAH is denied, the rating decision must address both SAH and SHA. **Note:** When eligibility is being determined in response to a request from a regional loan center referral, [_VA_ _Form 26-4555_]() or [_26-4555c_]() is not required in the claims folder. **Reference:** For more information on issues that may arise from consideration of [_VA Form 26-4555_](), see M21-1, Part II, Subpart iii,1.A.3.c. auto allowance| [ _21-4502_ , _Application for Automobile or Other Conveyance and Adaptive Equipment (Under 38 U.S.C. 3901-3904)_](). Auto allowance can also be claimed on [_VA Form 21-526EZ_](). **Important:** [_VA Form 21-4502_]() is required for the award of benefits and can be used as a standalone form for initial auto allowance claims. **Reference:** For more information on issues that may arise from consideration of [_VA Form 21-4502_](), see M21-1, Part II, Subpart iii, 1.A.3.c. special monthly compensation (SMC) for housebound/aid and attendance (A&A) including spousal A&A| * [ _21-526EZ_](), or * _[21-2680, Examination for Housebound Status or Permanent Need for Regular Aid and Attendance]()._ **Reference:** For more information on reviewing _[VA Form 21-2680]() _to identify the benefit sought, see M21-1, Part II, Subpart iii, 1.A.3.a-c. SMC for housebound/A&A for DIC benefits| * [ __21P-534EZ__]() * __[21-2680]()__ * __[_21P-535_]()_ _(Parents' DIC only), or * _[21-0779, Request for Nursing Home Information in Connection with Claim for Aid and Attendance]() _(nursing home patients only). **Note:** _[VA Forms 21-2680]() _and _[21-0779]() _are acceptable for SMC only when there is an active DIC claim or running DIC award.**Reference:** For more information on reviewing _[VA Form 21-2680]()_ to identify the benefit sought, see M21-1, Part II, Subpart iii, 1.A.3.a-c. special monthly pension (SMP) for housebound and/or A&A | * [_21P-527EZ_]() * [ _21-0779_]() (nursing home patients only) * [_21P-534EZ_]() , or * [ _21-2680_](). **Note:** [_VA Forms 21-2680_]() and [_21-0779_]() are acceptable for SMP only when there is an active pension claim or running pension award.**Reference:** For more information on reviewing [_VA Form 21-2680_]() __ to identify claims for SMP and SMC, see M21-1, Part II, Subpart iii, 1.A.3.a-c. spina bifida| [ _21-0304_ , _Application for Benefits for a Qualifying Veteran’s Child Born With Disabilities_](). apportionment| [ _21-0788_ , _Information Regarding Apportionment of Beneficiary’s Award_](). dependents| * [ _21P-527EZ_]() (pension only) * [_21P-534EZ_]() (survivors only) * [_21-686c_]() * 674-series to include [_21-674, Request for Approval of School Attendance_](), (school children over 18 only) * [_21P-509_ , _Statement of Dependency of Parent(s)_](), (for dependent parent(s) only) * [_21-4170, Statement of Marital Relationship_]() (for adding a spouse based on a common-law marriage), or * [ _21-0538_]() (versions _December 2017 and earlier_ , when timely submitted as part of the verification process described in [M21-1, Part VII, Subpart i, 1.B]()). **Notes:** * Past versions of [_VA Form 21-0538_](), dated _December 2017 or earlier_ , when timely submitted, could be used to **_initiate_** the process of adding a dependent to an award. * A [_VA Form 21-674_]() can be accepted as a standard form for a school child claiming DIC in their own right if the child was previously on a surviving spouse’s DIC award. **References:** For more information on * when a power of attorney (POA) representative may sign prescribed forms on behalf of a claimant, see [M21-1, Part I, Subpart i, 2.A.4.a and b]() * handling outdated or discontinued forms, see [M21-1, Part II, Subpart i, 2.B.4]() * prescribed forms used for claims under [38 U.S.C. 1151](), see [M21-1, Part VIII, Subpart iv, 6.B.5.a](), and * claims submitted at or prior to separation from military service, including * Benefits Delivery at Discharge, see [M21-1, Part X, Subpart i, 6.A]()-[C](), and * Integrated Disability Evaluation System claims, see [M21-1, Part X, Subpart i, 6.E]()-[G](). ### II.iii.1.A.1.b. Situations Not Requiring a Prescribed Form A prescribed claim form is not required for * review based on clear and unmistakable error (CUE) * substitution * a finding of incompetency received from a first or third party, and * information that will result in a reduction in benefits, such as * removal of a dependent * a report of hospitalization at VA expense * a report that a beneficiary is a patient in a Medicaid-covered nursing home, or * a request to be reduced to the $90 rate. **References:** For more information on * accepting a request for substitution without use of [_VA Form 21_ _P-0847_](), see [38 CFR 3.1010]() * requests to remove dependents from an award without a specific form, see [M21-1, Part VII, Subpart i, 1.A.4.g]() * handling requests for review based on CUE, see [M21-1, Part X, Subpart ii, 5.A.2]() * first- or third-party requests for competency determinations, see [M21-1, Part X, Subpart ii, 6.A.1.f]() * determining whether an award adjustment is necessary based on hospitalization at VA expense, see [M21-1, Part X, Subpart iii, 1.A.2](), and * reduction of pension based on Medicaid-covered nursing home status, see [M21-1, Part IX, Subpart iii, 2.A](). ## 2. Principles for Application Review This topic contains information on reviewing applications to determine the benefit sought, including * using a claimant’s entries on _VA Form 21-526_ , _Veteran’s Application for Compensation and/or Pension_ , to determine which benefit the claimant is seeking * discretionary application of 38 CFR 3.151(a) * processing additional correspondence received with a prescribed form * examples of situations involving additional correspondence received with a prescribed form * receipt of EZ form requesting a different benefit application, and * considering unclaimed theories of SC. April 2, 2026 ### II.iii.1.A.2.a. Using a Claimant’s Entries on VA Form 21-526 to Determine Which Benefit the Claimant Is Seeking _VA Form 21-526, Veteran’s Application for Compensation and/or Pension,_ was discontinued effective February 19, 2019. Use the table below to determine whether a claimant’s entries on _VA Form 21-526_ constitute a claim for disability compensation, Veterans Pension, or both, for forms accepted prior to February 19, 2019.| **If the claimant …**| **Then consider the application a claim for …** asserts a relationship between service in the armed forces and an * illness * disease, or * injury ** _Example_** : The claimant provides dates of treatment that fall within the period of service.| compensation _only_. * claims to be totally disabled without indicating that this is due to service in the armed forces, and * furnishes information about * employment, and/or * income, or * has attained age 65, claims no disability, and furnishes information about * employment, and/or * income | pension _only_. * asserts a relationship between service in the armed forces and an * illness * disease, or * injury * claims to be totally disabled, and * furnishes information about * employment, and/or * income | compensation _and_ pension. completes all or a portion of * Part II of the application, which deals with service-related disabilities, and * Parts VII through X of the application, which deal with * income * net worth, and * deductible expenses | compensation _and_ pension. requests dental treatment _only_| dental treatment _only_ and follow the procedures at __[M21-1, Part XIII, Subpart i, 4.B.1.a]().**Reference:** For more information on claims involving dental conditions only, see * [M21-1, Part XIII, Subpart i, 4.B]() and [C]() * [38 CFR 17.161](), and * [38 U.S.C. 1712(a)(1)](). **Note:** If any doubt exists as to which benefit a claimant is seeking, ask the claimant for clarification. **Reference:** For more information on handling discontinued forms, see [M21-1, Part II, Subpart i, 2.B.4](). ### II.iii.1.A.2.b. Discretionary Application of 38 CFR 3.151(a) [38 CFR 3.151(a)]() instructs that a claim for compensation may be accepted as a claim for Veterans Pension and vice versa. Application of this provision of [38 CFR 3.151(a)]() is discretionary. _Not all_ claims for Veterans Pension are necessarily claims for compensation and vice versa. Consider the following three criteria when deciding whether VA will make the discretionary decision to apply [38 CFR 3.151(a)]() in the context of the Standard Claims and Appeals Forms rule. * Regardless of which claims form is submitted, the information on the claim must constitute a substantially complete claim for the unclaimed benefit being considered under [38 CFR 3.151(a)](). * If [_VA Form 21P-527EZ_]() is accepted as a claim for compensation, the claim form must include information that would otherwise be included on a claim for compensation. * If [_VA Form 21-526EZ_]() is accepted as a claim for Veterans Pension, the claim form must include information that would otherwise be included on a claim for Veterans Pension including income information. * The evidence of record must establish a likelihood that the benefit will be granted. * The claim must be reasonably interpreted to reflect an intent to claim benefits for the issue at hand. Generally, this is reflected via the claimant listing the issue on the claim form. **Important:** If all of the above criteria are not met, then the discretionary application of [38 CFR 3.151(a)]() is not warranted. In situations where the * discretionary application of [38 CFR 3.151(a)]() is not warranted and the claimant has submitted an improper form for application for a benefit, follow the request for application procedures at [M21-1, Part II, Subpart iii, 2.G.1](), or * evidence shows the presence of a chronic, unclaimed disability but the claimant has not expressed an intent to claim a benefit, solicit a claim per [M21-1, Part II, Subpart iii, 2.G.2](). _**Note**_ : For DIC and Survivors Pension, the claims provisions are _**not**_ discretionary.**References:** For more information on * the discretionary application of [38 CFR 3.151(a)](), see [_Stewart v. Brown_](), 10 Vet.App. 15 (1997) * the non-discretionary application of [38 CFR 3.152(b)](), see M21-1, Part II, Subpart iii, 1.A.3.e, and * what constitutes a substantially complete application, see * [38 CFR 3.160(a)]() * [M21-1, Part II, Subpart iii, 1.C](), and * M21-1, Part II, Subpart iii, 1.A.4.a. ### II.iii.1.A.2.c. Processing Additional Correspondence Received With a Prescribed Form A claimant may submit additional correspondence, including but not limited to, statements and other prescribed forms, in conjunction with a prescribed form that identifies additional claimed issues. VA may accept the additional issues as part of the claim when * received at the same time as a substantially complete prescribed form appropriate to the benefit sought, _**and**_ * intent to claim the issue(s) is explicitly or implicitly expressed, considering the context of the submission. Follow the procedures in [M21-1, Part II, Subpart iii, 2.G](), when the additional correspondence requests a benefit without the appropriate prescribed form required for the benefit requested.**Important:** * Forms that require a signature must be signed, without regard to other accompanying forms bearing a signature. * When a claimant’s signature is included on a prescribed form but a POA’s signature is on additional correspondence _other than_ a prescribed form a POA has legal authority to sign (such as a _[VA Form 20-0995]())_, do not presume that the additional issues were intended to be submitted as part of the application package. In this situation, additional issues submitted and signed by a POA that are not on an appropriate prescribed form should be treated as a request for application. * The following do **_not_** , alone, show intent to claim an issue(s): * listing of non-service-connected (NSC) issues on a [_VA Form 21-8940_](), and/or * submissions of medical evidence, such as private or VA treatment records or disability benefits questionnaires. **Note:** When the source of additional correspondence received with a prescribed form cannot be ascertained, presume it is from the same source as the prescribed form unless there is evidence to the contrary. **References:** For more information on[ ]() * appropriate prescribed forms for the benefit sought, see M21-1, Part II, Subpart iii, 1.A.1.a * the mere existence of medical records not constituting a claim, see [M21-1, Part II, Subpart iii, 2.G.2.b]() * handling NSC issues listed on a [_VA Form 21-8940_](), see [M21-1, Part VIII, Subpart iv, 3.B.1.e]() * substantially complete applications, see [M21-1, Part I, Subpart i, 1.A.4.f]() * a representative’s authority to submit claims and other claims-related documents, see [M21-1, Part I, Subpart i, 2.A.4.b]() * checking for a proper signature, see [M21-1, Part II, Subpart i, 2.A.2.c](), and * examples of situations involving additional correspondence received with a prescribed form, see M21-1, Part II, Subpart iii, 1.A.2.d. ### II.iii.1.A.2.d. Examples: Situations Involving Additional Correspondence Received With a Prescribed Form ** _Example 1_** : A Veteran submits a claim for increase for SC right elbow condition on a [_VA Form 21-526EZ_](), also listing the previously denied SC issue of migraines, explaining migraines resulted from an in-service injury. At the same time the Veteran submits a supplemental claim for a previously denied SC right hip condition on a [_VA Form 20-0995_](), also listing SC for depression (not previously claimed) due to the SC back condition, and includes private treatment records.**Analysis:** Migraines can be accepted as a supplemental claim because the [_VA Form 20-0995_]() is the prescribed form for supplemental claims, potentially new evidence was received, and the [_VA Form 21-526EZ_]() was submitted at the same time as the prescribed [_VA Form 20-0995_](). Depression can be accepted as an initial claim for SC because the [_VA Form 21-526EZ_]() is the prescribed form for initial SC, and the [_VA Form 20-0995_]() was submitted at the same time as the prescribed [_VA Form 21-526EZ_](). **Example 2:** Same scenario as Example 1, except the Veteran also submits a [_VA Form 21- 10210, Lay/Witness Statement_](), at the same time, claiming SC for right wrist condition (not previously denied). The Veteran also states VA previously denied SC for a left knee condition on a direct basis and requests it be considered secondary to the SC back condition.**Analysis:** The right wrist condition can be accepted as a claim for SC because the [_VA Form 21-526EZ_]() is the prescribed form for initial SC and the _[VA Form 21-10210]()_ was received at the same time as the [_VA Form 21-526EZ_](). Left knee condition can be accepted as a supplemental claim because the [_VA Form 20-0995_]() is the prescribed form for supplemental claims, potentially new evidence was received, and the _[VA Form 21-10210]()_ was received at the same time as the [_VA Form 20-0995_](). **Example 3:** A Veteran submits a claim for an increase for SC right and left knee patellofemoral pain syndrome, and lumbosacral strain on a [_VA Form 21-526EZ_](). The Veteran also submits a _[VA Form 21-10210]()_ , at the same time as the [_VA Form 21-526EZ_]() that describes the worsening of the disabilities as well as a new right hip condition caused by an altered gait related to the knee conditions.**Analysis:** The right hip condition can be accepted as a claim because the [_VA Form 21-526EZ_]() is the prescribed form for initial SC disabilities and the _[VA Form 21-10210]()_ was submitted at the same time as the prescribed [_VA Form 21-526EZ_]().**Example 4:** A Veteran submits an initial claim for SC for cervical spine strain on a [_VA Form 21-526EZ_](). One day later, the Veteran submits a [_VA Form 21-10210_]() for SC for anxiety disorder.**Analysis:** _[VA Form 21-10210]()_ is not the prescribed form for initial claims for SC. Additionally, the _[VA Form 21-10210]()_ was not received at the same time as the prescribed [_VA Form 21-526EZ_](). The _[VA Form 21-10210]()_ would be processed as a request for application in accordance with [M21-1, Part II, Subpart iii, 2.G.1](). ### II.iii.1.A.2.e. Receipt of EZ Form Requesting a Different Benefit Application The [_VA Form 21-526EZ_]() and [_VA Form 21P-527EZ_]() contain instructions for the claimant to request a different benefit application.Use the table to determine what action must be taken upon receipt of such notice.| **If the _VA Form …_**| **Then send the claimant a request for application letter and attach …** [ _21-526EZ_]() has “Pension” written * at the top of the form, or * in the claimed disabilities section | [ _VA Form 21P-527EZ_](). [_21P-527EZ_]() has “Will claim compensation – send _VA Form 21-526EZ” _written * at the top of the form, or * in the claimed disabilities that prevent you from working section | [ _VA Form 21-526EZ_](). **Reference:** For more information on requests for applications, see * [M21-1, Part II, Subpart iii, 2.G.1](), and * [38 CFR 3.155(a)](). ### II.iii.1.A.2.f. Considering Unclaimed Theories of SC Although there may be multiple theories or means of establishing entitlement to a benefit for a disability, if the theories all pertain to the same benefit for the same disability, they constitute the same claim. A claim for SC encompasses all potential theories of SC, whether claimed or unclaimed. When a claimant has claimed SC for an issue, the evidence of record must be reviewed to determine the scope of that claim. All claims must be liberally read to consider other potential theories of SC when doing so would benefit the claimant.Although VA is obligated to determine all potential claims raised by the evidence, theories of SC which have no support in the record, or would not provide any additional benefit to the claimant, need not be further developed or specifically addressed in a rating decision. However, a denial of SC is a denial for all potential theories, whether specifically addressed in the rating or not. To determine whether an unclaimed theory of SC is reasonably raised by the record, consider factors or evidence such as * circumstances of service * type of disability for which the claimant seeks benefits, and * any evidence of record. **Example:** A Veteran claims SC for chronic sinusitis without specifying a basis. Service treatment records support the direct theory, showing numerous instances of treatment for the condition. However, the facts also confirm that the Veteran served in Djibouti during a qualifying timeframe and was discharged in 2021. As chronic sinusitis is defined in [38 CFR 3.320(a)(2)]() as a condition presumptively associated with exposure to fine particulate matter in covered locations, such as Djibouti, the theory of presumptive SC is reasonably raised within the scope of the claim, and sufficiently established. The direct theory of entitlement need not be pursued or developed further, as it would provide the Veteran no greater or added benefit. **Exception:** The requirement to liberally read claims based on multiple theories does not extend to claims of CUE, as the burden is on the claimant to specifically raise each issue. Each new CUE theory is independent. **References:** For more information on considering * CUE claims, see * [ _Andrews v. Nicholson_ ,]() 421 F.3d 1278 (Fed. Cir. 2005) * [_Robinson v. Shinseki_](), 22 Vet.App. 440 (2009), and * [M21-1, Part X, Subpart ii, 5.A]() * multiple theories of SC, see * [ _Robinson v. Peake_](), 21 Vet.App. 545 (2008) * [_Bingham v. Principi_](), 18 Vet.App. 470 (2004), and * [ _Roebuck v. Nicholson_](), 20 Vet.App. 307, 313 (2006), and * a new theory of SC in a supplemental claim, see * [M21-1, Part II, Subpart iii, 2.B.1.b](), and * [38 CFR 3.2501(a)(1)](). ## 3. Application Guidance for Specific Types of Claims This topic contains information on handling applications for specific types of claims, including * reviewing _VA Form 21-2680_ * to identify claims for SMC or SMP, and * for claims for spousal or survivors’ A&A or housebound benefits * issues that arise from consideration of _VA Forms 21-2680, 21-4502,_ or _26-4555_ * handling requests for P&T status for compensation, and * non-discretionary application of 38 CFR 3.152(b). September 11, 2025 ### II.iii.1.A.3.a. Reviewing VA Form 21-2680 to Identify Claims for SMC or SMP ##### ** ** [_VA Form 21-2680_](), can be used as a standalone form if the claimant and/or the supporting documentation identifies whether the benefit sought is SMP (_only when_ there is a running pension award) or SMC. Revisions to the form (effective September 2018) allow the claimant to identify the benefit sought. The identification of the benefit sought can be * specific, with the Veteran identifying on the form whether the claim is for SMC or SMP, or * based on sympathetic reading of the claim via reviewing the issues raised on [_VA Form 21-2680_]() in the context of the benefits the Veteran is receiving. When [_VA Form 21-2680_]() is submitted, the Veteran is identified as the claimant, and the benefit sought is * _not_ identified, determine the benefit sought and next action by applying the principles in the table below, or * identified, and is a claim for * SMC * if a prior original claim for compensation is of record (whether granted or denied), accept the claim for SMC and issue a decision based on the evidence of record, or * if no prior original claim for compensation is of record, consider the [_VA Form 21-2680_]() a request for application, and/or * if the evidence of record suggests that pension with SMP may be payable as a greater benefit, then _also_ apply the principles in the table below that correspond with the SMP claim and the Veteran’s benefit status to determine the appropriate next action to take. * SMP, apply the principles in the table below that correspond with the SMP claim _and_ the Veteran’s benefit status to determine the appropriate next action to take. **Note:** Although [_VA Form 21-2680_]() may be accepted as a prescribed claim form for SMC or SMP, it is not _required_ to grant entitlement to either benefit. Do not undertake routine development for completion of this form when deciding a claim for SMC or SMP. For more information on use of [_VA Form 21-2680_](), see [M21-1, Part VIII, Subpart iv, 4.A.1.i]().Use the table below to determine the benefits being sought by reviewing the Veteran's benefit status and _[VA Form 21-2680]()_.| **If ...**| **Then accept the _VA Form 21-2680_ as ...** the Veteran is * receiving compensation * entitled to receive compensation but has elected to receive military retired pay, or * submitting any initial claim for compensation | a claim for SMC regardless of the conditions listed on the [_VA Form 21-2680_](). _**Exception:** _If the evidence of record suggests that pension with SMP may be payable as a greater benefit if claimed, then _also_ accept the _[VA Form 21-2680]()_ as a request for application for pension with SMP. the Veteran is * receiving pension, or * submitting any initial claim for pension | a claim for SMP regardless of the conditions listed on [_VA Form 21-2680_](). dual entitlement exists| a claim for * SMC if the Veteran is in receipt of compensation, or * SMP if in receipt of pension. **Important:** In addition to accepting the _[_VA Form 21-2680_]()_ as a claim for SMC or SMP based on the benefit currently being received (as directed above), _also a_ ccept the [_VA Form 21-2680_]() as a * claim for the opposite benefit (the benefit the Veteran is not currently in receipt of) _only if_ the opposite benefit can be granted and the grant results in a greater benefit to the Veteran, or * request for application if the Veteran is currently receiving compensation _and_ the evidence suggests that pension may be the greater benefit but no income information is of record. has _not_ submitted a prior or current original claim for compensation or pension| a request for application. **Reference:** For more information on handling a request for application, see [M21-1, Part II, Subpart iii, 2.G.1](). * the Veteran is not in receipt of, entitled to receive, or currently claiming VA compensation or pension benefits, and * has previously submitted an original claim for either pension or compensation which has been denied | a request for application. **Note:** When a Veteran is SC with a 0-percent combined disability evaluation, accept the [_VA Form 21-2680_]() as a request for application since the Veteran is not in receipt of monetary compensation. **Reference:** For more information on handling a request for application, see [M21-1, Part II, Subpart iii, 2.G.1](). * a prior claim for SMC or SMP has been denied, and * [ _VA Form 20-0995_]() is submitted with [_VA Form 21-2680_]() (identifying the SMC/SMP issue) | a supplemental claim. **Notes:** * Submission of [_VA Form 21-2680_]() is not required for the supplemental claim. * When a prior claim for SMC or SMP has been denied but [_VA Form 21-2680_]() is not accompanied by [_VA Form 20-0995_](), then accept the submission of [_VA Form 21-2680_]() as an initial claim for * SMC, or * SMP only if there is a running award or pending pension claim, and * follow the applicable procedure based on corresponding claim status or benefit entitlement as directed in the remaining guidance in this table. the Veteran is already in receipt of A&A for compensation| a request for application. **Reference:** For more information on handling a request for application, see [M21-1, Part II, Subpart iii, 2.G.1](). the Veteran is already in receipt of A&A for pension| a duplicate request for SMP, unless following the above procedures within this table allows for acceptance of the [_VA Form 21-2680_]() as a claim for SMC. **Note:** If the claim is accepted as a duplicate request for SMP, provide notice that the claimed benefit has previously been awarded. **Reminder:** When accepting [_VA Form 21-2680_]() as a claim for SMC or SMP, the form is a potential claim for _both_ A&A and housebound benefits. * A grant of A&A renders the issue of housebound moot for the same type of benefit (either SMC or SMP) since A&A is the greater benefit. The issue of entitlement to SMC or SMP based on housebound status need not be addressed when A&A is granted for the same type of benefit (SMC or SMP). * [_VA Form 21-2680_]() is a claim for both A&A and housebound benefits. If A&A is denied, the rating decision must address the issue of housebound status. If, however, housebound has been previously granted, the issue of entitlement to housebound need not be readdressed and/or continued in the rating decision. **References:** For more information on * reviewing [_VA Form 21-2680_]() for claims for spousal A&A, surviving spouse’s A&A or housebound benefits, or parent’s A&A, see M21-1, Part II, Subpart iii, 1.A.3.b * signature requirements when accepting [_VA Form 21-2680_]() as a claim for SMC or SMP, see M21-1, Part II, Subpart iii, 1.A.4.e * considering competency information included on [_VA Form 21-2680_](), see [M21-1, Part X, Subpart ii, 6.A.2.b](), and * procedures for addressing A&A or housebound status as an unclaimed issue within scope of another claimed issue, see * [M21-1, Part V, Subpart ii, 3.A.2.b](), and * [M21-1, Part VIII, Subpart iv, 4.A.8.h](). ### II.iii.1.A.3.b. Reviewing VA Form 21-2680 for Claims for Spousal or Survivors’ A&A or Housebound Benefits [ _VA Form 21-2680_]() can be used as a standalone form to claim spousal or survivors’ A&A or housebound benefits when there is an active claim and/or running DIC or Survivors Pension award and the benefit sought is adequately identified. Revisions to the form (effective September 2018) allow the claimant to identify the benefit sought. The identification of the benefit sought can be * specific, with the claimant identifying which benefit is being claimed, or * based on sympathetic reading of the claim such as * identifying the dependent as the claimant or the individual being examined on the [_VA Form 21-2680_](), and * considering the information on the form in the context of the VA benefits being paid based on the Veteran’s service. Use the table below when a Veteran’s spouse, surviving spouse, or parent is identified as the claimant or the individual being examined on [_VA Form 21-2680_]().| **When ...**| **Then accept the _VA Form 21-2680_ as a claim for ...** * a Veteran is in receipt of, entitled to receive, or claiming compensation, and * the spouse is identified as the individual being examined on the form | spousal A&A. * a surviving spouse is receiving DIC or Survivors Pension, and * the spouse is identified as the individual being examined on the form | surviving spouse’s A&A and housebound benefits. * a Veteran’s parent is receiving parent’s DIC, and * the parent is identified as the individual being examined on the form | A&A for the parent. **Reference:** For more information on handling claims for spousal A&A when the combined evaluation of the Veteran’s SC conditions is less than 30 percent, see [M21-1, Part VII, Subpart i, 1.A.4.c](). ### II.iii.1.A.3.c. Issues That Arise From Consideration of VA Forms 21-2680, 21-4502, or 26-4555 [ _VA Forms 21-2680_](), [_21-4502_](), and [_26-4555_]() are not specific claims for increased evaluation of an SC disability. However, the issue of increased evaluation can be considered within the scope of the claim for SMC, auto, or adapted housing benefits and should be addressed in the rating decision when evidence on the form or in * the evidence associated with the claim indicates the presence of a disability that is within the scope of an SC disability (such as a complication of diabetes), or * other lay or medical evidence associated with the claim indicates the SC disability may have worsened. **Important:** If the medical evidence is insufficient to evaluate the disability, request examination of the condition as a part of the claim for SMC, auto, or adapted housing benefits. Do not routinely request examinations without first assessing the medical evidence for sufficiency. Only address the condition in the rating decision when examination or other medical evidence confirms a change in the disability evaluation of the SC issue is warranted or confirms the presence of the condition that is within the scope of another SC condition.**References:** For more information on * conducting dependency development during the initial development phase when a claim for spousal A&A is received but the spouse is not on the Veteran’s award, see [M21-1, Part VII, Subpart i, 1.A.5.b](), and * within scope determinations, see * [38 CFR 3.155(d)](), and * [M21-1, Part V, Subpart ii, 3.A.2](). ### II.iii.1.A.3.d. Handling Requests for P&T Status for Compensation Veterans may submit a specific request for P&T status related to receipt of compensation benefits. * A request for P&T status must * be received on a prescribed form for SC or increased evaluation, and * specify the SC issue or issues that are associated with the claimed P&T status. * Handle requests for P&T status that do not identify the associated issue(s) as incomplete applications _except_ when only one SC disability exists. When a single SC disability exists, presume that the claim for P&T status is associated with the single SC disability. * A request for P&T status for compensation purposes is inherently tied to an underlying claim for SC or increased evaluation. Thus, development of the underlying claim satisfies any development need associated with the request for P&T status. **Note:** Requests for P&T status may be routinely addressed as entitlement to Dependents' Educational Assistance (DEA) in the rating decision. **References:** For more information on * considering P&T status associated with pension, see [M21-1, Part IX, Subpart i, 2.2]() * handling incomplete applications, see [M21-1, Part II, Subpart iii, 1.C]() * the definition of * permanent disability, see [M21-1, Part V, Subpart ii, 3.D.4.b](), and * total disability, see [M21-1, Part V, Subpart ii, 3.D.4.a]() * the relationship between P&T disability and entitlement to DEA, see [M21-1, Part XIII, Subpart i, 1.A.1](), and * commissary and exchange privileges associated with P&T disability, see [M27-1, Part I, 5.05.g](). ### II.iii.1.A.3.e. Non- Discretionary Application of 38 CFR 3.152(b) [38 CFR 3.152(b)]() provides that a survivor's claim for * DIC _**will**_ also be considered a claim for Survivors Pension and accrued benefits, and * Survivors Pension _**will**_ also be considered a claim for DIC and accrued benefits. VA has no discretion in this matter. Use the table below to determine which benefits VA must address depending on the form the claimant submits.| **If ...**| **Then VA must address the claimant’s entitlement to ...** a surviving parent submits [_VA Form 21P-535_]()| * DIC, **_and_** * accrued benefits. a surviving spouse or child submits [_VA Form 21P-534EZ_]()| * DIC * Survivors Pension, **_and_** * accrued benefits. _**Note**_ : If the application is received from an adult child that does not meet the exception in [M21-1, Part X, Subpart ii, 6.B.1.a](), process the accrued portion as a request for application and send the claimant the correct form to apply for accrued benefits (_[VA Form 21P-601]()_). _**Note**_ : When a claimant does not indicate which benefit is sought or only checks accrued on the original application, the proper end product (EP) is 140. When a claimant is clearly only applying for pension the proper EP is 190. Change the EP to 140 if it later becomes clear that * the survivor is claiming DIC, or * there is a reasonable possibility that the Veteran's death is SC and a rating decision is required. _**References**_ : For more information on * the non-discretionary nature of survivors' claims, see [38 U.S.C. 5101(b)](), and * survivors' claims procedures, see [M21-1, Part XII, Subpart i, 1.B](). ## 4. Reviewing Application Completeness and Handling Variances This topic contains miscellaneous information on claims for VA benefits, including * what constitutes a substantially complete application * when to place an application for benefits under EP control * determining the proper date of claim (DOC) for claims establishment purposes * identifying an incomplete application * handling an unsigned application for benefits * requests for benefits that are not filed on a prescribed form, and * furnishing applications to claimants. April 14, 2021 ### II.iii.1.A.4.a. What Constitutes a Substantially Complete Application VA has a duty to assist claimants who file a substantially complete application for benefits. The criteria for a substantially complete application are found in [38 CFR 3.160(a)]() and [M21-1, Part I, Subpart i, 1.A.4.f]().**References:** For more information on * notification requirements for complete and incomplete applications, see [M21-1, Part II, Subpart iii, 1.C](), and * VA’s duty to assist with requesting records, see [M21-1, Part III, Subpart i, 2.C](). ### II.iii.1.A.4.b. When to Place an Application for Benefits Under EP Control Do **_not_** establish EP control for an application for benefits unless it is substantially complete. **References:** For more information on * criteria for a substantially complete application, see * _[38 CFR 3.159(a)(3)]()_ * [38 CFR 3.160(a)](), and * [M21-1, Part I, Subpart i, 1.A.4.f](), and * notification requirements for an incomplete application, see [M21-1, Part II, Subpart iii, 1.C](). ### II.iii.1.A.4.c. Determining the Proper DOC for Claims Establishment Purposes The date of claim (DOC) for claims establishment purposes is the earliest date **_any_** VA facility received the claim.**Important:** Pension and burial claims electronically submitted via [VA.gov]() use the actual date of VA receipt of the application and _**not**_ the Centralized Mail time stamp. Applications submitted via [VA.gov]() will have a submission number and text of _Submitted Electronically_ in the upper left corner of every page.**Example Scenario:** * A VA medical center (VAMC) receives the application on October 14, 2025. * The VAMC forwards the application to the regional office (RO) on November 3, 2025. * The RO does **_not_** receive the application in its mailroom until November 5, 2025. **Result:** When the RO places the claim under EP control, it must use October 14, 2025, as the DOC. ### II.iii.1.A.4.d. Identifying an Incomplete Application Consider an application **_incomplete_** if it is signed but the claimant has not provided all the information described in [M21-1, Part II, Subpart iii, 1.C](). **Reference:** For more information on the criteria for a substantially complete application, see [38 CFR 3.160(a)]() and _[38 CFR 3.159(a)(3)]()_. ### II.iii.1.A.4.e. Handling an Unsigned Application for Benefits ** **| | A lack of signature from the claimant or other legally authorized individual renders an application incomplete for * _original_ claims received prior to March 24, 2015, and * ** __all__** claims received on or after March 24, 2015. Upon receipt of an unsigned application for benefits, follow the procedures for handling incomplete applications included at [M21-1, Part II, Subpart iii, 1.C](). **Exception:** No claimant signature is required when * [ _VA Form 21-2680_]() is accepted as a prescribed form for a claim for SMC or SMP * [ _VA Form 21-0779_]() is accepted as a prescribed form for a claim for A&A (nursing home patients only), or * [ _VA Form 21P-0969_]() is accepted as a statement in support of a pending claim for pension or Parents’ DIC. **Important:** The application must be signed by the claimant or other legally authorized individual somewhere on the application itself. The submission of an unsigned application with other signed forms is not sufficient to satisfy the requirement for a signed application. **References:** For more information on * handling incomplete applications, see * [38 CFR 3.155(c)](), and * [M21-1, Part II, Subpart iii, 1.C]() * policies and procedures for acceptance of claimant signatures, see [M21-1, Part II, Subpart i, 2.B.2 and 3]() * checking for the proper signature, see [M21-1, Part II, Subpart i, 2.A.2.c]() * situations in which signatures are not required on supplemental claims submitted by POAs through the Stakeholder Enterprise Portal, see [M21-1, Part II, Subpart iii, 4.B.2.g and h]() * the procedures for processing claims received through Veterans Online Application Direct Connect, see [M21-1, Part II, Subpart iii, 4.A]() and [B](), and * procedures for waiving signature requirements for documents submitted electronically through a VA claims-submission service website, see [M21-1, Part II, Subpart i, 2.A.2.c](). ### II.iii.1.A.4.f. Requests for Benefits That Are Not Filed on a Prescribed Form Use the table below to determine whether a request for benefits that is **_not_** filed on a prescribed form is considered an informal claim **_or_** a request for application.| **If received …**| **And …**| **Then process the submission as …** prior to March 24, 2015| the submission represents the original claim for benefits| an informal claim. VA previously processed an original claim for benefits| a claim and * establish EP control, and * initiate development of the claim. on or after March 24, 2015| N/A| a request for application. **References:** For more information on * requirements for a formal application received prior to March 24, 2015, see [M21-1, Part II, Subpart iii, 2.H.2]() * requirements for a complete claim received on or after March 24, 2015, see M21-1, Part II, Subpart iii, 1.A.1.a * informal claims received prior to March 24, 2015, see [M21-1, Part II, Subpart iii, 2.H.1]() * requests for application, see * [M21-1, Part II, Subpart iii, 2.G.1](), and * [38 CFR 3.155(a)]() * furnishing applications, see * [38 CFR 3.150](), and * M21-1, Part II, Subpart iii, 1.A.4.g, and * handling outdated or discontinued forms, see [M21-1, Part II, Subpart i, 2.B.4](). ### II.iii.1.A.4.g. Furnishing Applications to Claimants VA has an obligation under [38 CFR 3.150]() to provide an application for benefits to anyone who requests one. Before furnishing an application to a claimant _in person_ , enter the Veteran’s name and file number in the appropriate spaces on the form. **Rationale:** When the claimant eventually returns the application to VA, it will be easier and faster to * identify the Veteran on whom the claim is based, and * associate the application with the proper claims folder.