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M21-1, Part III, Subpart ii, Chapter 3, Section B – Paper and Electronic Claims Folders (eFolders)

Overview


In This Section

This section contains the following topics:
Topic
Topic Name
1
2
3
4
5
6

1.  Claims Folder Formats


Introduction

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

Change Date

February 19, 2019

III.ii.3.B.1.a.  Claims Folder Formats

The Veterans Benefits Administration (VBA) uses two formats for claims folders
  • electronic claims folders (eFolders), and
  • paper claims folders.

III.ii.3.B.1.b.  Definition:  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.  The Department of Veterans Affairs (VA) maintains eFolders in two systems
  • Veterans Benefits Management System (VBMS), and
  • Legacy Content Manager (LCM).
References:  For more information on

III.ii.3.B.1.c.  Definition:  Paper Claims Folder

paper claims folder is a repository for paper documents related to a single Veteran and associated with a claims folder number.  VBA maintains two types of paper claims folders
  • claims folders, and
  • notice of death (NOD) folders.
References:  For more information on

III.ii.3.B.1.d.  Format for New Claims Folders

Establish all new claims folders in an electronic format.
Exceptions:  Establish a paper claims folder for
  • all sensitive level 8 and above claims, including
    • witness protection, and
    • classified claims, and
  • Integrated Disability Evaluation System (IDES) claims requiring Military Services Coordinators (MSCs) to build a paper claims folder for original disability compensation claims.  Original IDES claims require creation of a paper claims folder only when service treatment records provided to the MSC are
    • hard copies, or
    • a combination of hard copies and electronic.
Important:  Do not convert documents to an electronic format for claims with a sensitive level 8 or above.  If scanned into Centralized Mail, print the documents for the paper claims folder and remove from the portal.
References:  For more information on

III.ii.3.B.1.e.  EP Establishment Requiring Conversion of Existing Paper Claims Folders

Not all adjudication actions require conversion of existing paper claims folders to an electronic format.  Send paper claims folders for conversion upon
  • establishment of any of the end products (EPs) and EP series listed below, or
  • initiation of (or receipt of notice of intent to initiate) any decision ready claim.
  • 010 series
  • 020 series
  • 030 series
  • 040 series
  • 095
  • 110 series
  • 130 series
  • 295
  • 310
  • 320 series
  • 400
  • 410 series
  • 420 series
  • 450 series
  • 510
  • 511
  • 512
  • 680 series, and
  • 930.
Important:
  • Do not send a paper claims folder for conversion for
  • For claim types qualifying for priority processing, only send the paper claims folder for conversion after taking all possible development actions.
References:  For more information on

III.ii.3.B.1.f.  Determining When to Request Conversion of a Paper Claims Folder

Upon establishment of an EP listed in M21-1, Part III, Subpart ii, 3.B.1.e, conduct a SINGLE INQUIRY in the Control of Veterans Records System (COVERS).
Use the table below to determine when to request conversion of a paper claims folder.
If the newly established EP … And the station number listed in the CURRENT FOLDER LOCATION field is … Then …
requires conversion of the claims folder the same as the regional office (RO) processing the documents
  • obtain the volumes remaining in paper through local procedures, and
  • route to scanning for conversion.
requires conversion of the claims folder
  • a facility related to another jurisdiction (other than station 101), and
  • not the Records Management Center (RMC) (station 376)
submit a request for permanent transfer of the claims folder through COVERS.
Important:  If the corresponding claim, higher-level review, or legacy appeal is subject to National Work Queue routing, add the Requested Claims Folder tracked item.
requires conversion of the claims folder RMC follow the guidance in M21-1, Part III, Subpart ii, 3.B.1.g.
does not require conversion of the claims folder either the same or different from the RO processing the documents
  • manage evidence, and
  • upload the documents to the eFolder.
 
Note:  Follow the guidance in M21-1, Part III, Subpart ii, 3.B.1.h, Step 5 when the results of a SINGLE INQUIRY in COVERS indicates the paper claims folder is at a
  • Federal records center (FRC) (e.g. 010, 060, or 080), or
  • VA Records Center and Vault (VA RC&V) (e.g. 391).
References:  For more information on

III.ii.3.B.1.g.  Requesting Scanning of Paper Claims Folders located at RMC

If the results of a SINGLE INQUIRY command in COVERS show the folder’s located at RMC (station 376), request the folder in COVERS.
RMC sends the paper claims folders directly to a conversion site for scanning.
Example:
Exception:  An error preventing the claims processor from using the REQUEST FOLDER button may occur.  The button text appears gray and PRODADM is displayed as the last user to receive/confirm the location (as shown in the example below).  In this circumstance, an authorized user must submit a scanning request using the RMC Source Material Tracking System (SMTS) Portal.
Example:
Image of the COVERS error that prevents a claims processor from using the REQUEST FOLDER button.
References:  For more information on

III.ii.3.B.1.h.Determining the Claims Folder Format

Follow the steps in the table below to determine the format of the claims folder.
Step
Action
1
Execute a SINGLE INQUIRY command in COVERS using the claims folder number and take action using the table below.
If the results of the SINGLE INQUIRY command show in the …
Then …
MESSAGE AREA field of the SINGLE INQUIRY screen
proceed to Step 2.
DISPLAY FOLDER DATA screen
proceed to Step 6.
 
Reference:  For more information on executing a SINGLE INQUIRY command, see the COVERS User Guide.
2
Do the results in the MESSAGE AREA field of the SINGLE INQUIRY screen indicate a folder was not found in either COVERS, or the Beneficiary Identification and Records Locator Subsystem (BIRLS)?
Note:  The MESSAGE AREA field of the SINGLE INQUIRY screen may contain more information than is relevant to the question above.
3
Do the results in the MESSAGE AREA field of the SINGLE INQUIRY screen, indicate a folder was not found, but a BIRLS claims folder number does exist?
  • If yes,
  • If no, proceed to the next step.
4
Do the results in the MESSAGE AREA field of the SINGLE INQUIRY screen indicate a BIRLS claims folder number exists, and the claims folder location is FRC or VA RC&V?
  • If yes, proceed to the next step.
  • If no, proceed to Step 6.
5
Follow the instructions in the table below.
If folder conversion is …
Then …
necessary in accordance withM21-1, Part III, Subpart ii, 3.B.1.e
not necessary in accordance withM21-1, Part III, Subpart ii, 3.B.1.e
disregard the remaining steps in this table after
  • managing evidence, and
  • uploading documents to the VBMS eFolder.
 
References:  For more information on
6
Do the results in the DISPLAY FOLDER DATA screen contain onlyCOVERS locations listed in M21-1, Part III, Subpart ii, 3.B.1.i?
  • If yes, the claims folder is an eFolder.
  • If no, paper claims folders may exist.
Example:  The screen shot below shows a claims folder with a COVERS location that is among those listed in M21-1, Part III, Subpart ii, 3.B.1.i.
Screenshot of DISPLAY FOLDER DATA screen

III.ii.3.B.1.i.  Known eFolder COVERS Locations

Claims processors use the COVERS locations listed in the table below when a
  • paper claims folder is sent for scanning conversion, or
  • when establishing a claims folder where no paper claims folder previously existed.
COVERS 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 RMC and stored at SMS Janesville, WI.
PALL01- PALL22
Converted and stored at RMC.
VBMSRT
Location for claim folders that exist only in VBMS.
INVBMS
Location for claim folders that exist only in VBMS.
EFILE
Location for claim folders that exist only in VBMS.
INVVA
Location for claim folders that exists in LCM.
NEWXFF
Location for claim folders that exists in LCM.
ICMHS
Is being/was converted as part of the File Bank Extraction program.
 
Important:
  • Scanning of claims folders stored at the RMC COVERS locations PALL01-PALL22 occurred prior to the implementation of vendor retention of scanned folders.  No additional unscanned claims folder materials are stored in these locations.
  • When RMC sent a folder to a conversion site for scanning, the COVERS location was marked received by station 101 at location DCSC1.  Do not use COVERS to request these folders.  The requests cannot be deleted and provide a false indication that a folder is still waiting to be scanned.
  • Requesting previously scanned claims folders from RMC via COVERS or e-mail negatively impacts timely delivery of Veteran’s records.
Reference:  For more information on resolving claims folder format discrepancies using the

III.ii.3.B.1.j.  Resolving Claims Folder Format Discrepancies Using the COVERS History Tab

Occasionally, a claim folder that exists only in VBMS may show a COVERS location not listed in M21-1, Part III, Subpart ii, 3.B.1.i.  Common scenarios creating this discrepancy include
  • claims brokered to another RO, and
  • claims processors accidentally receiving claims to their paper claims folder location.
Use the table below to analyze discrepancies in claims folder format, based on COVERS locations.
Stage
Description
1
Conduct a SINGLE INQUIRY command in COVERS.
2
On the DISPLAY FOLDER DATA screen select the HISTORY tab and review for a claims folder location listed in M21-1, Part III, Subpart ii, 3.B.1.i.
Example:
Screenshot of DISPLAY FOLDER DATA screen select the HISTORY tab
In the example above, the history shows the claims folder as received to DCSC1 on August 19, 2013, at RO 319.
Important:  Check the history of all volumes of a claims folder for a VBMS scanning location.
3
If the TRANS column of the CURRENT FOLDER LOCATION field indicates Temp or Perm, select the TRANSFER tab. Review the REMARKS field for an indication the claim is a VBMS case.
Example:
Screenshot of TRANS column of the CURRENT FOLDER LOCATION field indicates Temp or Perm, select the TRANSFER tab
 
Note:  Historically, VBMS claim folders required transfers via COVERS to give the receiving station jurisdiction over the brokered claim. Frequently, IPCs received brokered work in COVERS to a locally determined location not listed in M21-1, Part III, Subpart ii, 3.B.1.i.

III.ii.3.B.1.k. Resolving Claims Folder Format Discrepancies Using the VBMS Intake Tab

When a review of COVERS cannot conclusively determine 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 COVERS HISTORY tab to determine the suspected shipment date of the claim folder(s) to a scanning site.
Example:
Screenshot of COVERS HISTORY tab
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 HISTORY tab in COVERS, and
  • filter for results.
VBMS will display a list of each time an item was sent to scanning.
Screenshot of INTAKE tab in VBMS
3
Search the DATE CREATED column for a date corresponding with the DATE/TIME IN field in the COVERS HISTORY tab. A match verifies shipment to a scanning facility.
Example:
Note:  In the COVERS HISTORY tab, verify all volumes were received into a scanning location. If necessary, repeat the process for all volumes.

III.ii.3.B.1.l.Claims Folder Related Flashes

Corporate flashes are used to indicate the claims folder format.  The table below provides descriptions of claims folder related flashes.
Flash
Description
VBMS
The presence of this flash is a strong indicator that the claim folder is either
  • already in VBMS, or
  • is in route to a scanning facility.
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 in the VBMS eFolder.
PLCP
  • The Paperless Claims Processing (PLCP) flash was used with pre-discharge programs to indicate
    • no paper claims folder exists, and
    • the original location of the claims folder is LCM.
  • With the implementation of VBMS for pre-discharge claims, all content is now loaded into the VBMS eFolder.
Documents Exist in VBMS
  • When only this flash displays, it indicates that there are documents located in the VBMS eFolder.
  • This flash creates the blue message in the COVERS screen “VBMS Case.”
Note:  This flash does not always mean that the entire claim folder is in VBMS. It is possible even with this flash that the claims folder is still in paper format.
Example:
Screenshot of blue VBMS Case icon in VBMS
 
Note:  A combination of two or more flashes is common.

2.  Establishing Claims Folders in VA Systems


Introduction

This topic contains information on establishing a claims folder in VA systems, including

Change Date

July 5, 2015

III.ii.3.B.2.a.  When to Establish a Claims Folder in VA Systems

If a claims folder was not previously established, a claims folder must be established in VA systems upon
  • creation of a claims folder number, or
  • receipt of documents from a claimant.
Reference:  For more information on when to establish a claims folder number, seeM21-1, Part III, Subpart ii, 3.A.1.c.

III.ii.3.B.2.b.  Actions in Share That Establish a Claims Folder in VA Systems

A claims folder is established in VA systems automatically via PROADM when a(n)
  • original claim is established using the CLAIMS ESTABLISHMENT C+P command in Share
  • the BIRLS ADD command is executed, or
  • the FIRST NOTICE OF DEATH command is executed.
Note:  If the claims folder location on the VID screen in BIRLS indicates No Folder Exists (NFE), a claims folder can also be manually established through the FOLDER CONTROLS field under the FOLDER LOCATION tab in BIRLS.
Important:  Always set the claims folder location in COVERS, and if a paper folder did not previously exist, add the No Paper Claim Folder flash.
References:  For more information on

III.ii.3.B.2.c.  Manually Establishing a Claims Folder in VA Systems

Follow the steps in the table below to manually establish a claims folder in VA systems when
  • a BIRLS record exists
  • no claims folder exists, and
  • processing of mail does not require executing the CLAIMS ESTABLISHMENT C+P command in SHARE.
Stage
Description
1
Execute a SINGLE INQUIRY command in COVERS using the anticipated claims folder number.
Manually establish a claims folder, if the results in the MESSAGE AREA field of the SINGLE INQUIRY screen indicate
  • a folder was not found, and
  • a BIRLS claims folder number exists.
Note:  If the MESSAGE AREA field of the SINGLE INQUIRY screen indicates a folder was not found in COVERS or BIRLS follow the guidance in M21-1, Part III, Subpart ii, 3.A.1.d.
2
In Share select the BIRLS UPDATE command and enter the following information then select SUBMIT:
  • claims folder number or Social Security number
  • payee code 00 for Veteran
  • Veteran’s first name, and
  • Veteran’s last name.
3
Update any additional information received on the VETERANS IDENTIFICATION DATA (VID) screen.
4
The CLAIM FOLDER LOCATION field on the VID screen will indicate that no folder exists.
Example:
Screenshot of CLAIM FOLDER LOCATION field on the VID screen
Select the FOLDER LOCATION tab.
5
  • In the FOLDER CONTROL FIELDS of the FOLDER LOCATION tab, select the radial button next to the textEstablish a, and a drop-down box will appear.
  • Select CLAIM in the drop-down box, and
  • Select UPDATE.
Example:
Screenshot of COPORATE FLASHES command
6
In Share select the CORPORATE FLASHES command. In the AVAILABLE RO FLASHES field
  • select the No Paper Claim Folder flash
  • use the arrows to move the flash into the SELECTED RO FLASHES field, and
  • select SUBMIT.
Example:
Screenshot of COPORATE FLASHES command
7
  • In COVERS, select the RECEIVE command.
  • On the ENTER FOLDER IDENTIFICATION screen, select the CHG LOC function, and
  • select the station’s VBMS scanning location from the drop-down menu.
Example:
Screenshot of COVERS change users location screen
8
On the ENTER FOLDER IDENTIFICATION screen, enter the claims folder number in the FILE NUMBER field and select OK.  A series of pop-ups appear; answer them as follows
  • No
  • OK, and
  • Yes.
Then select OK at the bottom of the ENTER FOLDER IDENTIFICATION screen to update the location.

III.ii.3.B.2.d.  Tracking of REPS Folders

VA does not track Restored Entitlement Program for Survivors (REPS) folders in BIRLS.
Reference:  For more information on REPS, see M21-1, Part IX, Subpart i, 6.A.1.

3.  Creating and Destroying a Paper Claims Folder 


Introduction

This topic contains information on creating and destroying a paper claims folder, including

Change Date

May 30, 2017

III.ii.3.B.3.a.  Types of Paper Claims Folders

VA requires the use of a specific paper folder type based on the applicant’s claim.
Use the table below to select the appropriate folder type.
Paper Folder Type Description Stock Number Type of Claim/Form Filed By Applicant
Claims Red-rope, three-flap folder with fasteners attached on the inside

 

NSN-7530-00-707-8406
  • VA receives an original claim for benefits from a Veteran with a sensitivity level of 8 or higher, including
    • claimants in a witness protection program, or
    • whose claim includes classified and confidential material, or
  • IDES claims requiring MSCs to build paper claims folders for original disability compensation claims.
References:  For more information on
NOD Lightweight, two-flap manila folder with fasteners attached on the inside NSN-7530-00-757-4108
  • VA receives a first NOD from a claimant with a sensitivity level of 8 or higher, and
  • results in a new claims folder number assignment, or
  • a first NOD is processed and a claim number exists but
    • there is no claims folder, or
    • the claims folder is located at a records processing center.
Reference:  For more information on folder establishment during the NOD process, see M21-1, Part III, Subpart ii, 8.B.2.j.
 
Important:
  • Create a paper claim or NOD folder only if there are documents to store in it.
  • Activate the No Paper Claim Folder corporate flash when
    • an e-Folder exists, and
    • no paper claims folder exists (even if BIRLS shows one exists).
  • Activate the No Paper Notice of Death Folder corporate flash when
    • an eFolder exists, and
    • no paper NOD folder exists (even if BIRLS shows one exists).

III.ii.3.B.3.b.  When to Destroy a Paper Folder

Destroy empty paper claim or NOD folders if all of the claims-related materials associated with that folder are scanned into an approved system of record, such as VBMS or LCM.
When destroying an existing folder, create a COVERS location titled PAPERLESS, after applying the corporate flashes described in M21-1, Part III, Subpart ii, 3.B.3.a. Destroy the folder in accordance with VBA Letter 20-08-63, VBA Policy on Management of Veterans’ and Other Governmental Paper Records.   A signature is not required to destroy the folder.
Note:  This topic does not authorize the destruction of claims material.  It only references an empty paper claim or NOD folder.

4.  Preparing Paper Claims Folders and Establishing Charge Cards


Introduction

This topic contains information about handling new paper claims folders, including

Change Date

July 5, 2015

III.ii.3.B.4.a.  Preparation of Paper Claims Folders and Charge Cards

For most cases, COVERS can generate pre-printed, self-adhesive folder and charge card labels containing
  • the Veteran’s name
  • the Veteran’s claim number, and
  • an identifying barcode.
In cases in which the COVERS application cannot be used, follow the steps in the table below to
  • annotate the paper claims folder, and
  • complete and file the charge card.
Step
Action
1
  • Use letters at least three-eighths inch high on the upper left corner of the cut edge of the left flap of the paper claims folder, and
  • print the last, first, and middle names (or middle initial, if only the initial is known) of the Veteran.
2
  • Use digits at least one-half inch high on the upper right corner of the cut edge of the left flap of the paper claims folder, and
  • print the claims folder number, including one of the following prefixes, as appropriate:
    • C (claim number)
    • SS (Social Security number)
    • XC (deceased Veteran’s claim number), or
    • XSS (deceased Veteran’s Social Security number).
3
  • Establish a VA Form 3025, File Charge Card, for the folder, and
  • print, in the upper left corner of VA Form 3025, the last, first, and middle names (or middle initial) of the Veteran.
4
Print, in the upper right corner of VA Form 3025, the
  • claims folder number, and
  • prefix.
5
  • Determine the color code for the charge card, as outlined inM21-1, Part III, Subpart ii, 3.B.5, and
  • color code the charge card by centering a three-quarter inch strip of colored tape at the top of the VA Form 3025.
 
Reference:  For more information on COVERS, see the COVERS User Guide.

III.ii.3.B.4.b.  Creation of Additional Volumes for Paper Claims Folders

If a paper claims folder becomes too large or bulky to provide adequate preservation, separate the contents into smaller, more manageable volumes.  Consider creating an additional volume if the paper claims folder reaches two to three inches in thickness or there is less than one-half inch remaining on the prongs used to file-down documents on any of the flaps.
Important:
  • Each volume will be sequentially identified as Volume 1Volume 2, etc.
  • Prepare a corresponding VA Form 3025 for each volume of the claims folder.
Notes:
  • When a paper claims folder is needed for review, all volumes should be pulled and routed together, with appropriate annotation in COVERS.
  • Store all documents from the right and left flaps of the paper claims folder in the highest number volume.

5.  Color Coding for Paper Claims Folders


Introduction

This topic contains information about color coding paper claims folders, including


Change Date

July 5, 2015

III.ii.3.B.5.a.  Paper Claims Folders That Require Color Coding

Color code the following types of paper claims folders based on the last two digits (terminal digits) of the claim number:
  • claims, and
  • NOD.

III.ii.3.B.5.b.  Color Codes for Terminal Digits of Claim Numbers

The table below contains the color code for each range of terminal digits for claim numbers.

Terminal Digit Range
Color Code
00-09
Red
10-19
Light blue
20-29
Orange
30-39
Light green
40-49
Brown
50-59
Medium blue
60-69
Yellow
70-79
Black
80-89
White
90-99
Medium green

III.ii.3.B.5.c.  Color Coding Paper Claims Folders

To color code a paper claims folder, place a single three-inch-long strip of three-quarter-inch self-adhesive tape on the outside of the paper claims folder
  • over the center fold (one-and-one-half inch overlap on each side), and
  • one inch from the edge of the upper right corner.

6.  Standard Notations on Paper Claims Folders


Introduction

This topic contains information about standard notations on paper claims folders, including

Change Date

July 5, 2015

III.ii.3.B.6.a.  Importance of Paper Claims Folder Notations

VA uses stamped notations on paper claims folders to denote the existence or disposition of a record that is related to the basic claims folder.

III.ii.3.B.6.b.  Current Standard Paper Claims Folder Notations

The table below describes the usage for each type of current standard notation.
Standard Notation
Usage
[Name] RO outpatient treatment records reviewed for death compensation or pension claim
Date ____ Initials ___
Stamp the notation on the inside right cover of the deceased Veteran’s claims folder to indicate review by the Veterans Service Center of the associated outpatient treatment folder for existence and removal of adjudicatory material not appearing elsewhere.
Dual benefit
If a beneficiary receives benefits from two or more deceased Veterans
  • stamp the notation on the claims folder or deceased Veteran’s claims folder, followed by the claims folder number(s) of the cross-referenced case(s), and
  • pull the companion folder when the claims folder or deceased Veteran’s claims folder is requested.
Note:  There is no prohibition against adjusting dual beneficiary awards without reviewing the deceased Veteran’s claims folders if the Benefits Delivery Network data is sufficient to properly work the awards.
Employee
Affix VA Form 23-8949, VA Employee Folder Label, to the front of all Veteran-employee folders that the RO maintains in locked files.
Inactive deceased Veteran’s claims folder exists
Stamp the notation on the newly created deceased Veteran’s claims folder when the inactive folder is created.
Note:  The notation indicates that records created or received in the RO before the Veteran’s death are in the inactive deceased Veteran’s claims folder.
Reference:  For more information about deceased Veterans’ claims folders, see M21-1, Part III, Subpart ii, 4.F.2.
POW
Affix VA Form 10-5558, POW Label
  • to the front cover of the claims folder, and
  • approximately one inch below and parallel to the Veteran’s name.
Note:  Complete this action for each Veteran identified by an indicator in BIRLS as a former prisoner of war.
Rebuilt folder
Place the notation on the jacket of a folder that was established because the original record could not be located.
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