Part II, Subpart ii, Chapter 1, Section A Establishing New and Converting Old Claims Folders — M-21-1

Revised December 17, 2025

II.ii.1.A.1.aAssociating Records With a Claims Folder Number

All records for claimants and beneficiaries that can be identified must be associated with a claims folder number and stored in the corresponding claims folder. There are two types of claims folder numbers used by the Veterans Benefits Administration (VBA) to establish the claims folder. The numbers are based on

the Veteran’s Social Security number (SSN), or
an eight-digit claims folder number assigned through the Beneficiary Identification and Records Locator Subsystem (BIRLS).

Use the table below to determine the type of claims folder number to assign.

For original applications from …	The claims folder number is based on …
Veterans with an established SSN	the SSN.
Philippine nationals, and other Veterans without an established SSN	BIRLS assignment.

Important:

All documents received by VBA with identifying personal information require association with a claims folder number regardless of the need for claims establishment or confirmation of Veteran status.
To avoid duplicate claim (DUPC) processing, conduct a thorough search of all systems for a previously established claims folder number as outlined in M21-1, Part II, Subpart ii, 1.A.1.c.

II.ii.1.A.1.bHow Claims Folders and Numbers Are Established

Veteran data is electronically sent from the Department of War to VBA and used to establish a corporate record for the individual. The establishment of the corporate record automatically creates the corresponding electronic claims folder (eFolder). Historically, claims processors had to manually generate the claims folder number and paper claims folders via legacy applications used to establish claims, update system information, and track folders. Reference: For more information on historical procedures for creating claims folders and numbers, see the attachments

Historical_M21-1III_ii_3_SecA_6-27-16 , and
Historical_M21-1III_ii_3_SecB_2-14-20.

II.ii.1.A.1.cChecking for a Previously Established or Duplicate Claims Folder Number

When processing mail or taking other claim actions, it may be necessary to determine if a claims folder had been previously established under another claims folder number and reconciliation of the records is needed. The table below provides guidance on checking for the existence of a previously established or duplicate claims folder number.

Step	Action
1	Review the correspondence for the BIRLS-generated eight-digit number or an SSN used as a claims folder number. If a claims folder number is available , use the SEARCH ALL IN LIST command in Share to pull up the claimant’s data for review, or is not available , attempt to locate the claimant in VBA systems using information from the correspondence and alternative data sources, including Veterans Benefits Management System (VBMS) advanced profile search Share BIRLS INQUIRY command Share CORPORATE INQUIRY command Participant Profile PERSON and NUMBERS searches in Share Compensation and Pension Record Interchange (CAPRI) enterprise search, and non-Department of Veterans Affairs (VA) sources, such as CLEAR Defense Finance and Accounting Service - Retired and Casualty Pay System, and Federal On-line Query (FOLQ), which can be accessed through the SSA INQUIRY in VBMS. Note: If the claims folder number cannot be obtained using alternative sources, go to Step 3.
2	Review the SEARCH ALL IN LIST results and verify that the claimant has both a BIRLS record and corporate record listed under the claims folder number. If a BIRLS and corporate record both exist under the claims folder number, no further action in this table is necessary, or a BIRLS or corporate record is missing, or the records exist under separate claims folder numbers (i.e. one under the eight-digit BIRLS number, the other using the claimant’s SSN), follow the guidance in M21-1, Part II, Subpart ii, 1.A.1.d. Note: If the Veteran reports that their SSN has been changed, complete a search using the old SSN.
3	Contact the claimant using information provided on the correspondence or obtained via alternative data sources indicated in Step 1, and obtain the missing information required to validate the claims folder number, or if necessary, establish a new record. If the claimant cannot be reached, continue processing the correspondence as unidentifiable mail, as instructed in M21-1, Part II, Subpart i, 2.C.5, or claim under the assumption that there is not a previously established or duplicate claims folder that must be reconciled.

Step

Action

Review the correspondence for the BIRLS-generated eight-digit number or an SSN used as a claims folder number. If a claims folder number

is available , use the SEARCH ALL IN LIST command in Share to pull up the claimant’s data for review, or
- is not available , attempt to locate the claimant in VBA systems using information from the correspondence and alternative data sources, including
  - Veterans Benefits Management System (VBMS) advanced profile search
  - Share BIRLS INQUIRY command
  - Share CORPORATE INQUIRY command
  - Participant Profile PERSON and NUMBERS searches in Share
  - Compensation and Pension Record Interchange (CAPRI) enterprise search, and
  - non-Department of Veterans Affairs (VA) sources, such as
    - CLEAR
    - Defense Finance and Accounting Service - Retired and Casualty Pay System, and
    - Federal On-line Query (FOLQ), which can be accessed through the SSA INQUIRY in VBMS.

Note: If the claims folder number cannot be obtained using alternative sources, go to Step 3.

Review the SEARCH ALL IN LIST results and verify that the claimant has both a BIRLS record and corporate record listed under the claims folder number. If

a BIRLS and corporate record both exist under the claims folder number, no further action in this table is necessary, or
- a BIRLS or corporate record is missing, or the records exist under separate claims folder numbers (i.e. one under the eight-digit BIRLS number, the other using the claimant’s SSN), follow the guidance in M21-1, Part II, Subpart ii, 1.A.1.d.

Note: If the Veteran reports that their SSN has been changed, complete a search using the old SSN.

Contact the claimant using information provided on the correspondence or obtained via alternative data sources indicated in Step 1, and obtain the missing information required to validate the claims folder number, or if necessary, establish a new record. If the claimant cannot be reached, continue processing the

correspondence as unidentifiable mail, as instructed in M21-1, Part II, Subpart i, 2.C.5, or
claim under the assumption that there is not a previously established or duplicate claims folder that must be reconciled.

References: For more information on

CAPRI search functions, see the CAPRI User Manual , and
advanced search features in VBMS, see the VBMS Core User Guide.

II.ii.1.A.1.dHandling Missing or Discrepant BIRLS and Corporate Records

Use the table below to determine what steps to take when it is necessary to handle missing or discrepant BIRLS and corporate record data.

If ...	Then ...
a BIRLS record is missing	follow the guidance in the Duplicate Record Consolidation Materials to prevent duplicate record creation and, if directed, use the BIRLS ADD command in Share to create the BIRLS record. Note: Review the ALL RELATIONSHIPS tab in the CORPORATE record – the claimant may have a corporate record as a dependent, who is now seeking benefits related to their own military service.
corporate record is missing	use the BIRLS UPDATE command in Share to create the corporate record. Notes: The minimum information required to create a corporate record includes the SSN and/or eight-digit BIRLS claim number first name last name, and date of birth. If the minimum information required cannot be obtained via the alternative data sources or claimant contact discussed in M21-1, Part II, Subpart ii, 1.A.1.c, Steps 1-3, process the correspondence as unidentifiable mail.
a BIRLS and corporate record both exist but under different claims folder numbers	follow the duplicate claim processing guidance in the Duplicate Record Consolidation Materials.

If ...

Then ...

a BIRLS record is missing

follow the guidance in the Duplicate Record Consolidation Materials to prevent duplicate record creation and, if directed,
- use the BIRLS ADD command in Share to create the BIRLS record.

Note: Review the ALL RELATIONSHIPS tab in the CORPORATE record – the claimant may have a corporate record as a dependent, who is now seeking benefits related to their own military service.

corporate record is missing

use the BIRLS UPDATE command in Share to create the corporate record. Notes:

The minimum information required to create a corporate record includes the
- SSN and/or eight-digit BIRLS claim number
- first name
- last name, and
- date of birth.
If the minimum information required cannot be obtained via the alternative data sources or claimant contact discussed in M21-1, Part II, Subpart ii, 1.A.1.c, Steps 1-3, process the correspondence as unidentifiable mail.

a BIRLS and corporate record both exist but under different claims folder numbers

follow the duplicate claim processing guidance in the Duplicate Record Consolidation Materials.

2Claims Folder Formats

This topic contains information on the format of claims folders, including

claims folder formats
definition of
- an eFolder, and
- a paper claims folder
eFolder locations
end products (EPs) that require scanning of unconverted paper claims folders
determining if a scanning request is necessary
resolving claims folder format discrepancies, and
claims folder related flashes.

Revised March 17, 2025

II.ii.1.A.2.aClaims Folder Formats

VBA has two formats for claims folders:

eFolders, and
paper claims folders.

While some paper claims folders still exist, all new claims folders are established in the electronic format unless explicitly stated as an exception.

II.ii.1.A.2.bDefinition: eFolder

An electronic claims folder (eFolder) is an electronic repository for scanned documents related to a single Veteran and associated with a claims folder number. VA maintains eFolders inVBMS.References: For more information on

VBMS eFolders, see the VBMS Core User Guide , and
claims folder numbers, see M21-1, Part II, Subpart ii, 1.A.1.

II.ii.1.A.2.cDefinition: Paper Claims Folder

A paper claims folder is a repository for paper documents related to a single Veteran and associated with a claims folder number. VBA has two types of paper claims folders:

claims folders, and
notice of death folders.

Important:

A paper claims folder that has been scanned and uploaded to an electronic record system (i.e. converted) is thereafter considered an eFolder, unless the folder in storage is explicitly referenced.
Most paper claims folders not currently located at a Federal records center (FRC) are stored at a scanning facility and have already been converted to eFolders or are queued to be converted.

Reference: For more information on claims folder numbers, see M21-1, Part II, Subpart ii, 1.A.1.

II.ii.1.A.2.deFolder Locations

VBA uses the folder locations listed in the table below when a(n)

paper claims folder is sent for scanning conversion, or
eFolder is established and no paper claims folder previously existed.

Folder Location	Description
DCSC1	Converted and stored at CSRA Newnan, GA.
DCSC2	Converted and stored at CSRA Mt Vernon, KY.
DCSS1	Converted and stored at SMS Janesville, WI.
DCSS2	Converted by Records Management Center and stored at SMS Janesville, WI.
VBMSRT	Location for claim folders that exist only in VBMS.
INVBMS	Location for claims folders that were established as eFolders, or converted paper claims folders with discrepant folder location data that has been corrected.
EFILE	Location for claim folders that exist only in VBMS.
INVVA	Location for claim folders that exist in VBMS.
INPLCP	Location for claim folders that exist in VBMS.
NWXFR	Location for claim folders that exist in VBMS.
ICMHS	Location for claim folders that exist in VBMS.
SYS – NFE REASON	Location for claims folders that were established as eFolders by certain system functions or legacy application commands. Follow instructions for resolving claims folder format discrepancies in M21-1, Part II, Subpart ii, 1.A.2.g when this location code is identified as the current claims folder location.

Important : Records involving claims folders scanned to the SYS – NFE REASON folder location are more likely to be associated with duplicate records. These claims folders must be carefully reviewed to determine if a duplicate record exists and then appropriate duplicate record remediation procedures must be followed.

References: For more information on

resolving claims folder format discrepancies using the FOLDER LOCATION, see M21-1, Part II, Subpart ii, 1.A.2.g, and
duplicate record remediation, see
- Duplicate Record Consolidation Materials , and
- M21-1, Part II, Subpart ii, 1.B.3.

II.ii.1.A.2.eEP Establishment Requiring Conversion of Existing Paper Claims Folders

Not all adjudication actions require scanning of unconverted paper claims folders. The following end products (EPs) and EP series listed below require conversion to an eFolder:

010 series
020 series
030 series
040 series
095
110 series
130 series
140 series
160 series
290
295
310
320 series
400
410 series
420 series
450 series
510
511
512
680 series, and

Important: Do not request scanning of a paper claims folder if the EP is not listed above unless approved for scanning as a result of specific guidance issued by VA Central Office.References: For more information on

circumstances under which claims processors establish the EPs referenced in this block, see M21-4, Appendix B, and
claim types that qualify for priority processing, see M21-1, Part X, Subpart i, 1.1.a.

II.ii.1.A.2.fDetermining if a Scanning Request Is Necessary

Upon establishment of an EP listed in M21-1, Part II, Subpart ii, 1.A.2.e, identify the claims folder location and use the table below to determine if a scanning request is necessary.

If the folder location is ...	Then ...
an eFolder location shown in M21-1, Part II, Subpart ii, 1.A.2.d	the folder has already been scanned/converted to an eFolder.
an FRC (e.g. 010, 060, or 080)	follow the guidance on requesting claims folders from FRCs in M21-1, Part II, Subpart ii, 3.

Note: Review the information in M21-1, Part II, Subpart ii, 1.A.2.g, if irregular or discrepant folder location history makes it difficult to determine if a scanning request is necessary.

Reference: For more information on identifying folder locations, see the VBMS Core User Guide.

II.ii.1.A.2.gResolving Claims Folder Format Discrepancies

Claims folders that have been converted or only existed electronically may show a folder location not listed in M21-1, Part II, Subpart ii, 1.A.2.d. Common scenarios creating this discrepancy include

claims brokered to another regional office, and
claims processors accidentally receiving claims to their paper claims folder location when using legacy folder tracking applications.

When a review of the folder location does not conclusively identify the format of the claims folder, use the VBMS INTAKE tab to research shipments of claims material to scanning vendors. The table below outlines the process of verifying shipments to a scanning site using the INTAKE tab in VBMS.

Step	Action
1	Use the HISTORY button on the FOLDER LOCATION tab in VBMS to determine the suspected shipment date of the claim folder(s) to a scanning site.
2	Under the INTAKE tab in VBMS enter the claims folder number in the FILE NUMBER field ensure the DATE SHIPPED and DATE CREATED fields are blank set the INTAKE SITE field to All Intake Sites match the STATION field in VBMS with the station listed in the STATION column of the CLAIMS FOLDER HISTORY screen in VBMS, and filter for results.
VBMS will display a list of each time an item was sent to scanning.
3	Search the DATE CREATED column for a date corresponding with the DATE IN field in the CLAIMS FOLDER HISTORY screen. A match verifies shipment to a scanning facility. Example:
4	Change the incorrect folder location to INVBMS to reflect its conversion to an eFolder and apply the VBMS corporate flash if it has not already been added.

Notes:

Verify all volumes were received into a scanning location. If necessary, repeat the process for all volumes.
Historically, VBMS claim folders required transfers via legacy applications to give the receiving station jurisdiction over the brokered claim. Frequently, intake processing centers marked the folder received at locally-determined locations not listed in M21-1, Part II, Subpart ii, 1.A.2.d.

Reference: For more information on the intake tab and claims folder information in VBMS, see the VBMS Core User Guide.

II.ii.1.A.2.hClaims Folder Related Flashes

Corporate flashes are used to indicate the claims folder format. A combination of two or more flashes is common. The table below provides descriptions of claims folder related flashes and when they should be applied.

Flash	Description
VBMS	The presence of this flash is a strong indicator that the claim folder has either already been electronically converted into a VBMS eFolder, or is in route to a scanning facility. This flash must be added when it has been confirmed that the paper claims folder has been converted.
No Paper Claim Folder	This flash is added when a claims folder is established after the implementation of VBMS, and a paper claims folder never existed. Definitively establishes that the entire claims folder is the VBMS eFolder.
PLCP	The Paperless Claims Processing (PLCP) flash was used with pre-discharge programs to indicate no paper claims folder exists. With the implementation of VBMS for pre-discharge claims, all content is now loaded into the VBMS eFolder and this flash is no longer applied.
Documents Exist in VBMS	When only this flash displays, it indicates that there are documents located in the VBMS eFolder. Note: This flash does not always mean that the entire claims folder is in VBMS. It is possible even with this flash that the claims folder is still in paper format.

End of Part II, Subpart ii, Chapter 1, Section A

Part II, Subpart ii, Chapter 1, Section AEstablishing New and Converting Old Claims Folders