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   {  |  } D   €    ‚ Ê ƒ  „ D … Ê vŸo'                3| x    …    H      (   S               3Î‘$ ©   ©   Ý
 ƒ  ©—! ÝÔ €  X-Ý  X  X X   ÔÓ     ÓÑ     ÑÝ    Ý  È¿      (   S               3Î‘$ §   §   Ý
 ƒ  ©—! ÝÔ €  X-Ý  X  X X   ÔÓ     ÓÑ     ÑÝ    Ý  È¿    È¿       Ý
 ƒ  ©—! ÝÔ €  X-Ý  X  X X   ÔÓ     ÓÑ     ÑÝ    ÝÑ7 €   -Ý  X  X       dð                  dÈ 7 ÑÑ    
 Ñà@    ÷÷ ì àòòUNITED€STATES€COURT€OF€APPEALS€FOR€VETERANS€CLAIMSóóˆÐ   	 °      ÐÌÌà@    %%% ì àNo.€96„938ˆÌÌà     àà    `	 àà@     ì àòòJohn€R.€Ryan,€Appellant,ˆÐ   	 `	°   ÐÌà@    šš) ì àv.ˆÌÌà@    ÖÖ! ì àTogo€D.€West,€Jr.,ˆÌà@     ì àSecretary€of€Veterans€Affairs,€Appelleeóó.ˆÐ   	 `	
   ÐÌÌà@    ee ì àOn€Appeal€from€the€Board€of€Veterans'€AppealsˆÌÌÌà@    ¬¬ ì à(Decided€ñƒñ€€November€15,€1999ñƒññ „ñ€€€€€€€€€€€€€€€€€€€€€€€€€€€ñ„ññ…ñÔ% €    Ôñ…ñ€€€)ˆÌÌÌÌà     àòòMichael€E.€Hendricksonóó€was€on€the€pleadings€for€the€appellant.Ð   	 pÀ   ÐÌà     àòòMary€Lou€Keeneróó,€General€Counsel;€òòRon€Garvinóó,€Assistant€General€Counsel;€and€òòThomasÐ   	 P    ÐA.€McLaughlinóó,€Special€Assistant€to€the€Assistant€General€Counsel€were€on€the€pleadings€for€theÐ   	 @   Ðappellee.ÌÌà     àBefore€NEBEKER,€òòChief€Judgeóó,€and€FARLEY€and€GREENE,€òòJudgesóó.Ð   	 `   ÐÌà     àFARLEYÓ    €     Ó,€òòJudgeóó:€€Before€the€Court€in€this€appeal€is€a€jurisdictional€issue€of€the€timelinessÐ   	 ð@   Ðof€the€appellant's€Notice€of€Appeal€(NOA).€€The€Court's€determination€of€this€issue€turns€on€whetherÏ38€U.S.C.€ðððð5902€and€7104(e),€as€amended€by€the€Veterans'€Benefits€Improvement€Act€(VBIA)€ofÏ1996,€Pub.€L.€No.€104„275,€ðððð508„09,€110€Stat.€3322,€3343„44€(1996),€must€be€retroactively€appliedÏto€this€appeal,€which€was€pending€before€the€Court€at€the€time€the€statute€was€enacted.€€€The€CourtÏwill€hold€that€VBIA€ðððð508€and€509€do€not€apply€retroactively,€and€that€the€120„day€period€for€filingÏan€NOA€in€this€Court€was€tolled€due€to€a€defect€in€the€mailing€of€a€copy€of€a€March€26,€1996,Ïdecision€of€the€Board€of€Veterans'€Appeals€(Board€or€BVA),€and€the€veteran's€NOA€is€timely;Ïtherefore,€the€Court€will€deny€the€Secretary's€motion€to€dismiss€for€lack€of€jurisdiction.€Ìâ
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 âà@    XX ì àà@ @  qq ì àòòIóó.€òòññ€ññRELEVANT€BACKGROUNDóóˆÐ   	 °      Ðà     àOn€April€4,€1974,€the€veteran€completed€VA€Form€23„22,€Appointment€of€ServiceÏOrganization€as€Claimant's€Representative€(VA€Form€23„22),€appointing€the€Military€Order€of€theÏPurple€Heart€(MOPH)€to€represent€him.€€At€that€time,€the€address€listed€on€the€form€for€the€MOPHÏwas:€€"c/o€ADES€„€Veterans€Service,€230N.€1st€Ave.,€Rm.€2024,€Phoenix,€AZ€€85025."€€(The€ADESÏwas€the€Arizona€Department€of€Economic€Security€subsequently€known€as€the€Arizona€VeteransÏService€Commission€(AVSC),€which€acted€as€the€local€representative€for€the€MOPH.€€òòSeeóóÐ   	 Æ   ÐDeclaration€of€Robert€L.€Ashworth€dated€November€7,€1996,€at€2„3.)€€In€the€space€on€VA€FormÏ23-22€provided€for€the€name€and€address€of€the€chapter,€post,€or€unitñzñ,ñzñ€the€veteran€had€typedÏ"ADES-PHX."€€Ìà     àOn€March€26,€1996,€the€Board€mailed€to€the€veteran€a€copy€of€a€BVA€decision€which€wasÏissued€on€that€date.€€The€Board€also€mailed€a€copy€of€its€decision€to€the€national€appealsÏrepresentatives€of€the€MOPH€at€810€Vermont€Avenue,€NW,€Room€326„LAF,€Washington,€DC€Ï20420.€€òòId.óó€at€2.€€A€second€or€"courtesy"€copy€of€the€BVA€decision€was€forwarded€by€"flat€mail"€inÐ   	 5…   Ðcare€of€the€MOPH€at€the€Phoenix,€Arizona,€VA€Regional€Office€(RO).€€òòIdóó.€at€3.€€On€April€9,€1996,Ð   	 ŽÞ   Ða€copy€of€the€BVA€decision€was€received€by€the€MOPH€in€Phoenix,€Arizona.€€Previously,€in€1994,Ïthis€Court€had€found€the€"flat€mail"€procedures€used€to€forward€BVA€decisions€to€veterans'Ïauthorized€representatives€to€be€inconsistent€with€the€requirements€for€"mailing"€copies€of€BVAÏdecisions€under€38€U.S.C.€ðð7104(e)€and€required€all€BVA€decisions€to€be€mailed€through€the€U.S.ÏPostal€Service.€€òòSeeóó€òòDavis€v.Brownóó,€7Vet.App.€298,€303€(1994);€òòTrammell€v.Brownóó,€6Vet.App.Ð   	 K›&   Ð181,€182„83€(1994).Ìà     àOn€July€29,€1996,€the€veteran€filed€with€this€Court€an€NOA€from€the€March€26,€1996,€BVAÏdecision.€€In€his€NOA,€the€veteran€stated€that€he€had€tried€to€file€an€NOA€with€this€Court€on€July€11,Ï1996,€at€the€Court's€previous€address€of€1625€K€Street,€N.W.,€Suite€400,€Washington,€D.C.€€20006,Ïbut€it€was€returned€to€him€by€the€U.S.€Postal€Service€on€July€27,€1996.€€On€October€2,€1996,€theÏSecretary€filed€a€motion€to€dismiss€the€veteran's€appeal.€€As€grounds€for€his€motion,€the€SecretaryÏstated€that€the€veteran€had€not€filed€a€timely€NOA€within€120€days€of€a€final€BVA€decision.€€OnÏOctober€9,€1996,€the€Court€ordered€the€Secretary€to€file€a€copy€of€VA€Form€23„22€and€a€declarationÏaddressing€whether€the€BVA€had€mailed€a€copy€of€its€March€26,€1996,€decision€directly€to€theÏveteran€and€his€representative.€€Ð   
 Å+':   Ðà     àOn€November€8,€1996,€the€Secretary€submitted€a€copy€of€the€veteran's€VA€Form€23„22€andÏa€declaration€from€Robert€L.€Ashworth,€Assistant€Director€of€the€Administrative€Service€of€the€BVA.€ÏIn€his€declaration,€Mr.€Ashworth€stated,€inter€alia,€that€(1)€"[t]he€office€of€the€national€appealsÏrepresentatives€of€MOPH,€currently€located€in€room€326€of€the€Lafayette€Building[,€811€VermontÏAvenue,€NW,€Washington,€DC],€is€the€location€at€which€MOPH€has€requested€the€Board€deliverÏMOPH's€official€copies€of€BVA€decisions";€(2)€"[o]n€March€26,€1996,€Board€personnel€mailed€oneÏcopy€of€the€Board's€decision€of€that€same€date€to€MOPH€at€810€Vermont€Avenue€NW,€RoomÏ326-LAF,€Washington,€DC€20420€[and€that€the]€Board€mailed€MOPH's€copy€of€the€decision€to€thatÏaddress€pursuant€to€instructions€received€from€senior€officers€of€that€organization";€(3)€there€was€noÏindication€that€the€copy€of€€the€Board€decision€which€was€mailed€to€MOPH€was€returned€by€the€U.S.ÏPostal€Service€as€undeliverable;€(4)€"Board€procedures€in€effect€at€the€time€of€the€March€26,€1996,Ïdecision€instituted€as€a€result€of€the€Court's€decision€in€òòLeo€v.Brownóó,€8Vet.App.€410€(1995),€alsoÐ   	 ƒÓ   Ðdirected€that€an€additional€copy€of€the€decision€should€have€been€mailed€on€that€date€to€the€addressÏindicated€in€box€number€three€of€the€VA€Form€23„22€executed€in€1974;€that€is,€to€ADES€...";€(5)heÏdid€not€believe€that€a€copy€of€the€BVA€decision€was€mailed€to€ADES€or€to€AVSC;€and€(6)€"[a]Ïsecond€or€'courtesy'€copy€of€the€appellant's€decision€was€forwarded€by€the€'flat€mail'€procedureÏdescribed€in€[òòTrammell,€supraóó]€in€care€of€MOPH€at€the€Phoenix€VARO."€€òòSeeóó€Declaration€ofÐ   	 @    ÐRobertL.€Ashworth€dated€November€7,€1996.Ìà     àOn€February€24,€1997,€the€veteran,€through€counsel,€responded€to€the€Secretary's€motion€toÏdismiss.€€The€veteran€requested€that€this€Court€find€that€the€120„day€appeal€period€had€not€startedÏuntil€April€9,€1996,€the€date€the€BVA€decision€was€received€by€the€MOPH€at€the€Phoenix€VARO.€ÏThe€veteran€asserted€that€the€Board's€transmittal€of€the€BVA€decision€by€"flat€mail"€to€the€veteran'sÏrepresentative€was€defective€under€38€U.S.C.€ðð7104(e)€and€rebutted€the€presumption€of€regularityÏthat€the€Board€had€properly€mailed€notice€of€its€decision.€€The€veteran€further€asserted€that€theÏdefective€mailing€was€not€cured€until€April€9,€1996,€when€the€BVA€decision€was€actually€receivedÏby€the€veteran's€representative.€€Ìà     àOn€March€5,€1997,€the€Court€denied€the€Secretary's€motion€to€dismiss.€€The€Secretary€filedÏa€renewed€motion€to€dismiss€on€April€30,€1997.€€In€an€order€dated€July€11,€1997,€the€Court€stayedÏproceedings€in€this€matter€pending€the€disposition€of€òòShepard€v.€Brown,€infra,óó€because€it€may€haveÐ   	 l*¼%8   Ðhad€a€direct€bearing€on€the€disposition€of€this€case.€€This€Court€issued€an€opinion€in€òòShepardóó€onÐ   	 Å+':   ÐDecember€31,€1998,€without€addressing€the€issue€presented€in€the€instant€case.€€òòShepard€v.Westóó,Ð   	 °      Ð12Vet.App.€107€(1998).€€On€March€15,€1999,€the€Court€again€stayed€proceedings€in€this€caseÏpending€the€resolution€in€òòDippel€v.€Westóó,€òòinfraóó,€in€which€the€Court€was€expected€to€address€the€issueÐ   	 b²   Ðof€the€retroactive€effect€of€VBIA€ðð509.€€However,€the€Court€resolved€the€òòDippelóó€case€on€July€7,Ð   	 »   Ð1999,€on€other€grounds.€€òòDippel€v.Westóó,€12Vet.App.€466€(1999).€€On€October€21,€1999,€the€instantÐ   	 
d   Ðcase€was€submitted€to€a€panel€for€consideration.ÌÔ'  o	°    ÔÌÓ    ÓòòII.€ñ€ñ€ñ€ñANALYSISÐ   	 o	   ÐóóÓ    Óà@    " ì àòòòòA.€€Pertinent€LawóóóóˆÐ   	 xÈ
   Ðà@    hh ì à1.€€Statutory€Provisions€in€Effect€in€March€1996ˆÌà     àIn€order€for€a€claimant€to€obtain€review€of€an€adverse€final€BVA€decision€by€this€Court,€he€Ïmust€file€an€NOA€with€the€Court€"within€120€days€after€the€date€on€which€notice€of€the€decision€isÏmailed€pursuant€to€section€7104(e)€of€this€title."€€38€U.S.C.€ðð7266(a);€òòseeóó€òòButler€v.Derwinskióó,Ð   	 Ü,   Ð960F.2d139,€140€(Fed.€Cir.€1992);€òòsee€alsoóó€òòU.S.€Vet.€App.€R.4óó.€€Prior€to€the€October€1996Ð   	 5…   Ðenactment€of€the€VBIA€and€at€the€time€that€the€BVA€rendered€its€March€26,€1996,€decision,Ï38U.S.C.€ðð7104(e)€required:ÌÓ       €  Óà8     àà8    `	Ð Ð  àAfter€reaching€a€decision€in€a€case,€the€Board€shall€promptly€mail€aÏcopy€of€its€written€decision€to€the€claimant€and€the€claimant'sÏauthorized€representative€(if€any)€at€the€last€known€address€of€theÏclaimant€and€at€the€last€known€address€of€such€representative€(if€any).Ó    €     ÓÐ    `	x`	x  Ð38€U.S.C.€ðð7104(e)€(1995);€òòsee€alsoóó€òòDavisóó,€7ñ wñVet.App.atñwññwñVet.App.€atñwñ€299„301;€òòTrammelóó,€6Vet.App.€at€182.€Ð   	 K›%   ÐAt€that€time,€the€Secretary€was€permitted€to€recognize€representatives€of€organizations€that€theÏSecretary€approved€"in€the€preparation,€presentation,€and€prosecution€of€claims€under€lawsÏadministered€by€Ô&  0 Ôthe€Secretary."€€38€U.S.C.€ðð5902(a)(1).€€Section€5902€of€title€38,€United€StatesÏCodeñ{ñ,ñ{ñ€further€provided:ÌÓ       €  Óà8     à(b)€No€individual€shall€be€recognized€under€this€section„ñ|ñ„ñ|ñÐ    Ð Ð   Ðà8     àà    `	 à(1)€unless€the€individual€has€certified€to€the€Secretary€that€no€fee€orÏcompensation€of€any€nature€will€be€charged€any€individual€for€services€rendered€inÏconnection€with€any€claim;€andÐ    Ð Ð   ÐÔ'  0V" '   Ôà8     àà    `	 à(2)€unless,€with€respect€to€each€claim,€such€individual€has€filed€with€theÏSecretary€a€power€of€attorney,€executed€in€such€manner€and€form€as€the€SecretaryÏmay€prescribe.Ó    €     ÓÐ    Ð Ð   Ð38€U.S.C.€ðð5902(b).Ð   	 Å+'7   ÐÔ&   Ôà@    ãã$ ì à2.€€Case€LawˆÌà     àIn€òòAshley€v.Derwinskióó,€2Vet.App.€307,€309€(1992),€this€Court€held€that€there€is€aÐ   	 	Y   Ðpresumption€of€regularity€"that€the€Secretary€and€the€BVA€Ô'  °®*   Ôproperly€discharged€their€official€dutiesÏby€mailing€a€copy€of€a€BVA€decision€to€the€claimant€and€the€claimant's€representative,€if€any,€on€theÏdate€the€decision€is€issued."€€òòSee€alsoóó€òòDavisóó,€7Vet.App.€at€300.€€However,€this€presumption€is€notÐ   	 
d   Ðabsolute€and€may€be€overcome€or€rebutted€by€the€submission€of€"clear€evidence€to€the€contrary."€Ð   	 m½
   ÐòòDavisóó€and€òòAshley,€supra.óó€€In€òòTrammellóó,€the€Court€determined€that€the€Board's€"flat€mail"€procedureÐ   	 Æ   Ðof€forwarding€the€BVA€decision€to€the€appellant's€representative€was€clear€evidence€which€rebuttedÏthe€presumption€of€regularity€that€the€Board€had€properly€mailed€notice€of€its€decision.€€6Vet.App.Ïat€183;€òòbut€seeóó€òòAshleyóó,€2€Vet.App.€at€311€(any€mailing€defect€is€cured€by€proof€of€actual€receipt€byÐ   	 Ñ!   Ðthe€representative).€€In€òòDavisóó,€the€Court€held€that€"the€phrase€'the€BVA€shall€promptly€mail'€inÐ   	 *z   Ð38U.S.C.€ðð7104(e)€means€that€the€BVA€decision€must€be€correctly€addressed,€stamped€with€theÏproper€postage,€and€delivered€directly€by€the€BVA€into€the€custody€of€the€U.S.€Postal€Service."€Ï7Vet.App.€at€303.€€The€burden€of€establishing€the€mailing€of€the€decision€to€the€veteran'sÏrepresentative€in€accordance€with€section€7104(e)€fell€upon€the€Secretary.€€òòIdóó.€€The€Court€determinedÐ   	 ŽÞ   Ðthat€"the€presumption€of€regularity€was€rebutted€by€the€clear€evidence€that€the€BVA€did€not€itselfÏ'mail'€the€decision€within€the€meaning€of€38€U.S.C.€ðð7104(e)."€€òòIdóó.€€Ð   	 @    Ðà@    }} ì à3.€€October€1996€Enactment€of€the€VBIAˆÌà     àIn€October€1996,€Congress€enacted€Section€509€of€the€VBIA€in€direct€response€to€theÏòòTrammellóó€and€òòDavisóó€holdings.€€òòSeeóó€òòS.€Rep.€No.€104„371,óó€at€25€(1996),€òòreprinted€inóó€1996Ð   	 K›&   ÐU.S.C.C.A.N.€3762,€3776;€142€òòCong.€Rec.óó€S4976„77€(May€13,€1996)€(October€11,€1995,€letter€fromÐ   	 ¤ô(   ÐHon.€Jesse€Brown,€Secretary€of€Veterans€Affairs);€òòS.€Rep.€No.óó€104„371,€at€45€(1996),€òòreprinted€inóóÐ   	 ý M*   Ð1996€U.S.C.C.A.N.€3795„96€(statement€of€BVA€Chairman€Cragin).€€Section€509€amended€38€U.S.C.Ïðð7104(e)€to€read€as€follows:ÌÓ       €  Óà8     àà    `	 à(e)(1)€After€reaching€a€decision€on€a€case,€the€Board€shall€promptly€mail€aÏcopy€of€its€written€decision€to€the€claimant€at€the€last€known€address€of€the€claimant.Ð    Ð Ð   Ðà8     àÐ    Ð Ð   Ðà     àà    `	 à(2)€If€the€claimant€has€an€authorized€representative,€the€Board€shall„„ÌÌà8     àà8    `	Ð Ð  àà    ¸ à(A)€mail€a€copy€of€its€written€decision€to€the€authorizedÏrepresentative€at€the€last€known€address€of€the€authorizedÏrepresentative;€orÐ    `	x`	x  ÐÐ   	 8,ˆ'8   Ðà     àà8    `	 àà    ¸ à(B)€send€a€copy€of€its€written€decision€to€the€authorized€representativeÏby€any€means€reasonably€likely€to€provide€the€authorized€representative€withÏa€copy€of€the€decision€within€the€same€time€a€copy€would€be€expected€toÏreach€the€authorized€representative€if€sent€by€first„class€mail.Ó    €     ÓÐ    `	Ð `	Ð   Ð38U.S.C.€ðð7104(e).€The€express€purpose€of€VBIA€ðð509€was€to€reinstate€the€Board's€ability€"toÏprovide€copies€of€its€appellate€decisions€to€claimant's€representatives€reasonably€and€efficiently"€viaÏdelivery€systems€other€than€U.S.€mail,€and€thus€to€cure€any€defects€in€BVA€mailing€proceduresÏemployed€before€òòTrammellóó€and€òòDavisóó.€€òòSeeóó€òòS.€Rep.€No.óó104„371,€at€25€(1996),€òòreprinted€inóó€1996Ð   	 Æ   ÐU.S.C.C.A.N.€at€3776.€The€Chairman€of€the€Senate€Committee€on€Veterans'€Affairs€had€introducedÏthe€bill€as€"a€bill€to€revise€the€procedures€for€providing€claimants€and€their€representatives€withÏcopies€of€[BVA]€decisions...."€€òòIdóó.€Ð   	 Ñ!   Ðà     àAt€the€time€of€the€enactment€of€section€509€of€the€VBIA,€Congress€also€enacted€section€508Ïwhich€amended€38€U.S.C.€ðð5902€to€include€a€new€subsection€(c).€€Subsection€(c)€reads,€in€relevantÏpart:ÌÓ       €  Óà8     à(2)€Whenever€the€Secretary€is€required€or€permitted€to€notify€a€claimant'sÏrepresentative,€and€the€claimant€has€named€in€a€power€of€attorney€an€organizationÏlisted€in€or€approved€under€subsection€(a),€a€specific€office€of€such€an€organization,Ïor€a€recognized€representative€of€such€an€organization€without€specifically€indicatingÏa€desire€to€appoint€only€a€recognized€representative€of€the€organization,€the€SecretaryÏshall€notify€the€organization€at€the€address€designated€by€the€organization€for€theÏpurpose€of€receiving€the€notification€concerned.Ó    €     ÓÐ    Ð Ð   Ð38€U.S.C.€ðð5902(c)(2)(1996);€òòsee€alsoóó€VBIA€of€1996,€Pub.€L.€No.€104„275,€ðð508(a),€110€Stat.Ð   	 òB!   Ð3322,€3343„44€(1996).€€The€public€law€enacting€the€amendment€stated€that€the€amendment€"wouldÏapply€to€any€power€of€attorney€filed€with€VA€regardless€of€the€date€of€its€execution."€VBIA€ðð508(b).Ìà@    &&! ì à4.€€òòDippel€v.€WestóóˆÐ   	 ý M'   Ðà@    ——# ì ài.€€VBIA€ðð509ˆÌà     àIn€òòDippelóó,€it€appeared€that€the€Court€would€have€to€determine€whether€VBIA€ðð€509€was€toÐ   	 ¯#ÿ+   Ðbe€given€retroactive€application.€€Rather€than€base€its€holding€on€such€a€determination€however,€theÏCourt€held€that€VBIA€ðð509€and€its€possible€retroactivity€had€no€application€to€that€case.€€ItÏconcluded€that€the€veteran's€NOA€had€been€filed€timely€because€any€defect€that€may€have€occurredÏin€the€Board's€mailing€of€notification€of€its€decision€had€been€cured€by€the€veteran's€action€in€filingÏa€motion€for€reconsideration€with€the€Board's€Chairman€or€in€filing€his€NOA.€€Specifically,€the€CourtÏstated:€€Ð   	 Å+'7   ÐÓ       €  Óà8     àThis€Court's€holding€today€is€an€extension€of€this€Court's€holding€in€òòAshleyóó€that€aÐ   	 °      Ðdefective€BVA€mailing€to€an€appellant's€representative€under€38€U.S.C.€ðð7104(e)€isÏcured€by€proof€of€actual€receipt€by€the€representative....Thus,€by€virtue€of€the€factÏthat€the€BVA's€mailing€defect€was€cured€by€the€veteran's€own€action€in€filing€hisÏreconsideration€motion€or€NOA,€there€was€then€no€defect€for€the€subsequentlyÏenacted€VBIA€ðð509€to€cure.€€Hence,€VBIA€ðð509€has€no€application€to€a€case€suchÏas€this,€and€the€Court's€jurisdiction€is€not€altered€by€the€cross€reference€of€38ÏU.S.C.ðð7266(a)€to€38€U.S.C.€ðð7104(e).€€Accordingly,€we€hold€that€even€if€VBIAÏðð509€is€considered€retroactive€it€would€have€no€application€to€a€case€in€which€thereÏwas€no€mailing€defect€on€the€date€of€the€law's€enactment€because€a€prior€mailingÏdefect€under€prior€section€7104(e)€and€òòDavisóó€and€òòTrammellóó,€both€òòsupraóó,€had€beenÐ   	 ¬ü
   Ðcured€€by€the€claimant's€actions....Ó    €     ÓÐ    Ð Ð   Ð12€Vet.App.€at€472.€€Ìà     àNevertheless,€the€Court€proceeded€to€delve€into€a€detailed€and€instructive€discussion€in€whichÏit€concluded€that€ðð509€was€not€intended€to€be€treated€retroactively.€€The€Court€looked€to€theÏSupreme€Court's€decisions€in€òòLandgraf€v.€USI€Film€Productsóó,€511€U.S.€244,€265€(1994),€and€òòHughesÐ   	 öF   ÐAircraft€Co.€v.€United€Statesóó,€520€U.S.€939,€946€(1997),€which€recognized€a€deeply€rootedÐ   	 OŸ   Ðjurisprudential€presumption€against€retroactive€legislation€and€stated€that€this€presumption€shouldÏbe€applied€"unless€Congress€has€clearly€manifested€its€intent€to€the€contrary."€€òòSee€Dippelóó,Ð   	 Q   Ð12Vet.App.€at€474;€òòsee€also€Martin€v.€Hadixóó,€119€S.Ct.€1998,€2006€(1999)€(when€Congress€has€notÐ   	 Zª   Ð"expressly€prescribed"€proper€reach€of€a€statute,€a€court€would€have€to€determine€whether€applicationÏof€a€section€in€a€particular€case€would€have€retroactive€effects€inconsistent€with€the€usual€rule€thatÏlegislation€is€deemed€to€be€prospective).€€The€Court€also€looked€to€its€decision€inÏòòKarnasv.Derwinskióó,€1Vet.App.€308,€313€(1991),€which€held€that€where€a€law€changes€after€a€claimÐ   	 ¾#   Ðhas€been€filed€but€before€the€judicial€process€has€been€concluded€the€version€most€favorable€to€theÏappellant€will€apply€unless€Congress€has€provided€otherwise.€€The€Secretary€had€argued€that€theÏòòKarnasóó€decision€did€not€control€because€its€rule€applied€only€to€legislative€or€regulatory€changesÐ   	 É")   Ðwhich€were€substantive€and€not€to€changes€in€process€or€procedure.€€The€Court€rejected€thatÏargument€stating€that€it€"has€applied€òòKarnasóó€to€changes€in€process€or€procedures€established€byÐ   	 {%Ë -   Ðstatute."€€òòDippelóó,€12€Vet.App.€at€473.€€The€Court€also€reviewed€the€Secretary's€arguments,€and€theÐ   	 Ô&$"/   Ðlegislative€history€of€the€VBIA€and€its€particular€sections,€and€determined€that€"there€[was]Ïabsolutely€no€evidence€that€Congress€intended€to€have€that€amendment€[to€38€U.S.C.€ðð7104(e)]Ïapply€retroactively€[and]€[s]ection€509€contains€no€language€that€declares€expressly€when€thatÏsection€was€to€be€effective€or€to€which€cases€it€was€to€be€applied."€€òòDippelóó,€12€Vet.App.€at€474.€Ð   	 8,ˆ'7   Ðà     àAlthough€the€Court's€analysis€in€òòDippelóó€concerning€the€retroactive€application€of€VBIA€ðð509Ð   	 °      Ðand€its€determination€that€ðð509€was€not€to€be€treated€retroactively€had€no€application€to€theÏdisposition€of€that€case,€and€must€be€considered€òòobiter€dictumóó,€the€Court€concludes€that€thatñwñ›ñwñ€analysisÐ   	 b²   Ðœand€determination€were›€œcorrect.€€There€is€no€indication€in€VBIA€ðð509€that€"Congress€has€clearlyÏmanifested€its€intent"€to€apply€that€section€retroactively.€€òòSeeóó€òòMartin,€Hughes€Aircraft,óó€and€òòLandgrafóó,Ð   	 
d   Ðall€òòsupraóó;€òòaccordóó€òòDippelóó,€12€Vet.App.€at€474.€€Therefore,€the€presumption€against€retroactiveÐ   	 m½
   Ðlegislation€has€not€been€overcome€and€the€Court€holds€today€that€VBIA€ðð509€is€not€to€be€appliedÏretroactively.€€€Ìà@    {{# ì àii.€€VBIA€ðð508ˆÌà     àIn€reaching€its€determination€that€VBIA€ðð509€did€not€apply€retroactively,€the€òòDippelóó€CourtÐ   	 Ñ!   Ðalso€found€support€in€its€comparison€of€the€absence€of€retroactivity€language€in€that€section€with€theÏpresence€of€such€language€in€VBIA€ðð508.€€The€Court€stated€in€dicta€that€VBIA€ðð508€containedÏexplicit€language€that€the€section€would€apply€retroactively€when€it€stated:€€"The€amendments€madeÏby€this€section€apply€to€any€power€of€attorney€filed€with€[VA],€regardless€of€the€date€of€itsÏexecution,"€and€concluded€that€section€509€did€not€contain€such€"explicit€applicability€language."€ÏòòDippelóó,€12Vet.App.€at€474.€€Upon€closer€examination€of€that€language,€however,€we€conclude€ñ yññxñÔ% €    Ôñxññyññ €ññyñÔ% €    Ôñyññ€ñthatÐ   	 ç7   Ðthatñwñ›ñwñ€sentence€œdoes€not›€show€a€clear€intent€by€Congress€to€give€the€statute€retroactive€œapplication.›€ÏœIt€is€unclear€from€the€cited€language€whether€Congress€intended€to€compel€application€of€section€508Ïto€future€notifications€"regardless"€of€the€date€of€execution€of€a€power€of€attorney€or€whetherÏCongress€intended€to€give€nunc€pro€tunc€validation€to€past€notifications.€€At›€best,€the€language€œofÏthe€sentence€is›€ambiguous€and€insufficient€to€overcome€the€œdeeply€rooted›€presumption€againstÏretroactive€legislation€especially€in€light€of€the€œcanon›€that€"interpretative€doubt€is€to€be€resolved€inÏthe€veteran's€favor."€€òòBrown€v.€œGardner›óó,€513€U.S.€115,€118€(1994);€œòòsee›€œgenerally€Martin,€HughesÐ   	 V"¦,   ÐAircraftóó,€and€òòLandgrafóó,€all€òòsupra.óó€€Ð   	 ¯#ÿ.   Ðà     àIn€òòHughes€Aircraft,óó€the€Supreme€Court€determined€that€the€presumption€against€retroactivityÐ   	 %X 0   Ðhad€not€been€rebutted€where€there€was€no€clear€statutory€expression€of€congressional€intent€to€applyÏa€1986€amendment€to€the€False€Claims€Act€to€pre„1986€conduct€and€where€the€legal€effect€ofÏapplying€the€application€of€a€1986€amendment€would€have€been€to€deprive€the€petitioner€of€a€fullÏdefense.€€138€L.Ed›.2d€at€147.€€Similarly€in€the€instant€case,€if€the€Court€were€to€apply€the€1996Ïamendment€to€38€U.S.C.€ðð5902,€such€application€would€deprive€the€veteran€of€a€defense€œfor›€hisÐ   	 Å+':   Ðpurportedly€untimely€filing€of€his€NOA.€€Accordingly,€the€Court€holds€today€that€VBIA€ðð508€doesÏnot€have€retroactive€application€to€past€notifications€by€the€Secretary.€Ìà@    ää ì àœòòòòB.›€€Application€of€Law€to€FactsóóóóˆÐ   	 b²   Ðœà     àAt€the€time€of€the€March€26,€1996,€BVA€decision,€the€Board€was€required€to€mail€theÏdecision€to€the€veteran's€representative;€that€is,€the€BVA€decision€was€to€be€"correctly€addressed,Ïstamped€with€the€proper€postage,€and€delivered€directly€by€the€BVA€into€the€custody€of€the€U.S.ÏPostal€Service."€€òòSee€Davis,€supraóó.€€At€that€time,€the€veteran's€representative€had€been€identified€onÐ   	 Æ   ÐBlock€3€of€€VA€Form€23„22€as€the€MOPH€with€an€address€of€"c/o€ADES€„€Veterans€Service,€230N.Ï1st€Ave.,€Rm.€2024,€Phoenix,€AZ€€85025."€€In€the€space€provided€for€listing€the€name€and€addressÏof€the€chapter,€post,€or€unit,€€the€ñ }ñ€ñ}ñveteran€typed€"ADES„PHX."€òò€Id.óó€€Ð   	 Ñ!   Ðà     àIn€òòLeonard€v.€Brownóó,€this€Court€was€faced€with€the€issue€of€whether€the€BVA€had€properlyÐ   	 *z   Ðdischarged€its€duties€of€mailing€the€BVA€decision€to€the€veteran's€representative€where€the€BoardÏhad€mailed€the€decision€by€first€class€mail€to€the€national€headquarters€of€the€veteran's€representativeÏbut€had€forwarded€by€"flat€mail"€a€copy€of€the€decision€to€the€veteran's€local€representative.€ÏÔ&   Ô10Vet.App.€315€(1997);€òòsee€alsoóó€òòLeo€v.Brownóó,€8Vet.App.€410€(1995).€€The€Court€stated:Ð   	 ŽÞ   ÐÓ       €  Óà8     à[I]f›€the€appellant€had€designated€the€local€representative€in€Block€3,€VA€Form€23„22,Ïas€œ"his"›€representative,€then€the€flat€mail€to€that€individual€would€be€irregular€byÏÔ'  Ž›a   Ôstandards€of€the€statute€then€in€effect€(since€amended)€and€the€time€limit€for€filing€anÏNOA€would€thus€be€tolled....€[œI]f›€no€local€representative€was€listed€in€Block€3,€orÏif€the€organization€only€was€listed€in€Block€3,€without€a€local€address,€then€thereÏwould€be€no€irregular€mailing.€€The€mailing€to€the€national€headquarters,€which€wasÏindisputably€œ"regular,"›€would€œsuffice.Ó    €     ÓÐ    Ð Ð   Ð10›€Vet.App.€at€316.€€Although€Block€3€itself€was€inexplicably€absent€from€the€veteran's€VA€FormÏ23„22€and€this€absence€was€weighed€in€the€veteran's€favor,€the€Court€in€òòLeonardóó€concluded€that€thereÐ   	 ý M(   Ðwas€no€direct€evidence€that€the€local€representative€had€been€designated€in€that€case€where€"[œn]otably›Ïmissing€[was]€the€essential€fact€as€to€whether€[the€veteran]€had€annotated€[his€local€representative'sÏname]€or€indeed€any€name€in€Block€3,€VA€Form€23„22,€together€of€course€with€the€local€address"Ïand€where€the€Secretary€had€shown€that€the€veteran€had€been€represented€by€other€members€of€theÏservice€organization€which€included€representation€by€the€national€office.€Ìà     àIn€òòLeo€v.Brownóó,€8Vet.App.€410€(1995),€in€Block€3€of€Form€23„22,€the€veteran€had€identifiedÐ   	 )c$4   Ðthe€American€Legion€with€its€Greenville,€South€Carolina,€address€as€his€designated€representative.€ÏThe€same€information€was€also€written€in€the€space€which€provided€for€the€œname€and€address€of€theÐ   	 Å+'8   Ðchapter,€post,€or€unit›€and€appeared€in€two€places€on€the€veteran's€VA€Form€21„22„1,€œforÏacknowledgment€of€the€appointment€as€the€claimant's€representative.›€€òòIdóó.€€The€Court€determined€thatÐ   	 	Y   Ðthe€veteran€had€clearly€designated€the€local€office€of€the€American€Legion€as€the€address€of€hisÏrepresentative€before€VA€and€that€address€was€the€"last€known€address"€for€purposes€of€mailing€aÏcopy€of€any€BVA€decision€to€the€veteran's€representative.€€òòIdóó.€at€413.Ð   	 
d   Ðà     àIn€this€case,€unlike€in€òòLeonardóó,€Block€3€of€the€veteran's€April€1974€VA€Form€23„22€is€notÐ   	 m½
   Ðmissing€nor€is€there€any€evidence€or€assertion€from€the€Secretary€that€the€veteran€had€beenÏrepresented€by€anyone€other€than€the€local€office€of€the€MOPH.€€But,€as€in€òòLeoóó,€in€his€April€1974Ð   	 o	   ÐVA€Form€23„22,€the€veteran€had€designated€the€MOPH€as€his€representative€specifically€with€theÏMOPH's€local€address€in€Arizona.€€€òòSee€Leo,€supraóó.€€In€addition,€in€the€space€on€the€Form€23„22Ð   	 Ñ!   Ðwhich€provided€for€the€œname€and€address€of€the€chapter,€post,€or€unit,›€the€veteran€typedÏœ"ADES-PHX."›€€Since€he€had€specified€the€Phoenix,€Arizona,€office€of€the€MOPH€as€hisÏrepresentative,€"VA€and€the€Board€were€required€to€direct€all€correspondence€intended€for€theÏrepresentative€to€the€address€he€provided€on€the€pertinent€VA€forms."€€òòId.óóÐ   	 5…   Ðà     àThe€Secretary€concedes€that€a€copy€of€the€March€26,€1996,€BVA€decision€was€forwarded€byÏ"flat€mail€procedure€described€inòòTrammellóó€in€care€of€MOPH€at€the€Phoenix€VARO"€which€wasÐ   	 ç7   Ðlocated€in€the€same€building€as€the€local€office€of€the€MOPH.€€òòSeeóó€Declaration€of€Robert€AshworthÐ   	 @    Ðat€3€(citations€omitted);€Appellant's€Response€to€Motion€to€Dismiss€at€2.€€That€decision€did€not€arriveÏat€the€VARO€until€April€8,€1996.€€Appellant's€Response€at€2.€€The€Phoenix€MOPH€received€a€copyÏof€the€BVA€decision€on€April€9,€1996.€€òòIdóó.€€According€to€the€law€in€effect€at€the€time€of€theÐ   	 K›&   ÐœMarch26,›€1996,€BVA€decision,€the€Board's€forwarding€of€that€decision€by€"flat€mail"€to€theÏveteran's€representative€at€the€Phoenix€MOPH€did€not€qualify€as€mailing€under€38€U.S.C.€ðð7104(e)Ïand€rebuts€the€presumption€of€regularity.€€òòSeeóó€38€U.S.C.€ðð7104(e)€(1995);€òòLeoóó,€òòDavisóó,€andÐ   	 V"¦,   ÐòòTrammellóó,€all€òòsupraóó.€€Therefore,€due€to€the€mailing€defect,€the€120„day€NOA€filing€period€did€notÐ   	 ¯#ÿ.   Ðbegin€to€run€until€the€veteran's€representative€at€the€Phoenix€MOPH€received€a€copy€of€the€BVAÏdecision€on€April€9,€1996.€€òòSee€Ashley,€supra.óó€€Hence,€the€veteran's€filing€of€his€NOA€with€this€CourtÐ   	 a&±!2   Ðon€July€29,€1996,€was€timely,€and€the€Court€has€jurisdiction€over€this€appeal.Ìâ
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 âà@    ††" ì àIII.€œññ€ññCñ‚ñÔ% €    Ôñ‚ñONCLUSIONóó›ˆÐ   	 °      Ðà     àUpon€consideration€of€the€above,€the€Secretary's€motion€to€dismiss€is€denied.€€The€SecretaryÏâ
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 âÔ'  °t   Ôshall€file€with€the€Clerk€and€serve€on€the€appellant€the€designation€of€the€record€on€appeal€not€laterÏthan€30€days€after€the€date€of€this€opinion.€€The€case€is€returned€to€the€screening€judge€forÏproceedings€in€accordance€with€the€Court's€usual€practices.ÌÌñ }ñÔ&  h Ôñ}ñœñ }ñÔ'  h #`v   Ôñ}ñ›