[House Hearing, 111 Congress]
[From the U.S. Government Publishing Office]
VOCATIONAL REHABILITATION AND
EMPLOYMENT PROGRAM
=======================================================================
HEARING
before the
SUBCOMMITTEE ON ECONOMIC OPPORTUNITY
of the
COMMITTEE ON VETERANS' AFFAIRS
U.S. HOUSE OF REPRESENTATIVES
ONE HUNDRED ELEVENTH CONGRESS
SECOND SESSION
__________
MAY 6, 2010
__________
Serial No. 111-76
__________
Printed for the use of the Committee on Veterans' Affairs
______
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COMMITTEE ON VETERANS' AFFAIRS
BOB FILNER, California, Chairman
CORRINE BROWN, Florida STEVE BUYER, Indiana, Ranking
VIC SNYDER, Arkansas CLIFF STEARNS, Florida
MICHAEL H. MICHAUD, Maine JERRY MORAN, Kansas
STEPHANIE HERSETH SANDLIN, South HENRY E. BROWN, Jr., South
Dakota Carolina
HARRY E. MITCHELL, Arizona JEFF MILLER, Florida
JOHN J. HALL, New York JOHN BOOZMAN, Arkansas
DEBORAH L. HALVORSON, Illinois BRIAN P. BILBRAY, California
THOMAS S.P. PERRIELLO, Virginia DOUG LAMBORN, Colorado
HARRY TEAGUE, New Mexico GUS M. BILIRAKIS, Florida
CIRO D. RODRIGUEZ, Texas VERN BUCHANAN, Florida
JOE DONNELLY, Indiana DAVID P. ROE, Tennessee
JERRY McNERNEY, California
ZACHARY T. SPACE, Ohio
TIMOTHY J. WALZ, Minnesota
JOHN H. ADLER, New Jersey
ANN KIRKPATRICK, Arizona
GLENN C. NYE, Virginia
Malcom A. Shorter, Staff Director
______
SUBCOMMITTEE ON ECONOMIC OPPORTUNITY
STEPHANIE HERSETH SANDLIN, South Dakota, Chairwoman
THOMAS S.P. PERRIELLO, Virginia JOHN BOOZMAN, Arkansas, Ranking
JOHN H. ADLER, New Jersey JERRY MORAN, Kansas
ANN KIRKPATRICK, Arizona GUS M. BILIRAKIS, Florida
HARRY TEAGUE, New Mexico
Pursuant to clause 2(e)(4) of Rule XI of the Rules of the House, public
hearing records of the Committee on Veterans' Affairs are also
published in electronic form. The printed hearing record remains the
official version. Because electronic submissions are used to prepare
both printed and electronic versions of the hearing record, the process
of converting between various electronic formats may introduce
unintentional errors or omissions. Such occurrences are inherent in the
current publication process and should diminish as the process is
further refined.
C O N T E N T S
__________
May 6, 2010
Page
Vocational Rehabilitation and Employment Program................. 1
OPENING STATEMENTS
Chairwoman Stephanie Herseth Sandlin............................. 1
Prepared statement of Chairwoman Herseth Sandlin............. 21
The Honorable John Boozman, Ranking Republican Member............ 2
Prepared statement of Congressman Boozman.................... 21
WITNESSES
U.S. Department of Veterans Affairs, Ruth A. Fanning, Director,
Vocational Rehabilitation and Employment Service, Veterans
Benefits Administration........................................ 2
Prepared statement of Ms. Fanning............................ 22
SUBMISSIONS FOR THE RECORD
U.S. Department of Labor, Hon. Raymond M. Jefferson, Assistant
Secretary, Veterans' Employment and Training Service, statement 24
American Legion, Catherine A. Trombley, Assistant Director,
National Economic Commission, statement........................ 26
Commission on Rehabilitation Counselor Certification, Ann
Neulicht, Chairwoman, statement................................ 27
Paralyzed Veterans of America, statement......................... 29
Veterans of Foreign Wars of the United States, Eric A. Hilleman,
Director, National Legislative Service, statement.............. 31
MATERIAL SUBMITTED FOR THE RECORD
Post-Hearing Questions and Responses for the Record:
Hon. Stephanie Herseth Sandlin, Chairwoman, Subcommittee on
Economic Opportunity, Committee on Veterans' Affairs, to
Ms. Ruth Fanning, Director, Vocational Rehabilitation and
Employment Service, Veterans Benefits Administration, U.S.
Department of Veterans Affairs, letter dated May 13, 2010,
and VA responses........................................... 34
VOCATIONAL REHABILITATION AND EMPLOYMENT PROGRAM
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THURSDAY, MAY 6, 2010
U.S. House of Representatives,
Committee on Veterans' Affairs,
Subcommittee on Economic Opportunity,
Washington, DC.
The Subcommittee met, pursuant to notice, at 10:04 a.m., in
Room 334, Cannon House Office Building, Hon. Stephanie Herseth
Sandlin [Chairwoman of the Subcommittee] presiding.
Present: Representatives Herseth Sandlin, Perriello,
Teague, Boozman, and Bilirakis.
OPENING STATEMENT OF CHAIRWOMAN HERSETH SANDLIN
Ms. Herseth Sandlin. Good morning, ladies and gentlemen.
The Committee on Veterans' Affairs, Subcommittee on Economic
Opportunity, hearing on the Status of Vocational Rehabilitation
and Employment (VR&E) Programs will come to order.
During the 110th Congress, we held a series of hearings
that focused on employment opportunities for veterans. These
hearings included the VR&E programs that seek to assist our
injured servicemembers and help veterans obtain employment
after their military service. As a result of those productive
hearings, we are able to expand the VR&E program by authorizing
the U.S. Department of Veterans Affairs (VA) Secretary to
provide waivers for severely injured veterans seeking to
participate in the independent living program, increasing the
cap for participation in the independent living program,
requiring the VA to report to Congress on measures to assist
veterans participating in VR&E, and authorizing a multi-year
longitudinal study on VR&E.
Today's hearing will allow us to learn more about what the
Administration is doing to implement these new changes, and to
address the concerns raised over the past year. These include
the need to reduce case management and workload for counselors,
conduct more outreach to qualified veterans, streamline
information provided to the Disabled Veterans' Outreach Program
(DVOP), Local Veterans' Employment Representatives (LVERs), and
VA staff, and implement the new national acquisition strategy.
I look forward to hearing from our panelists today.
I now recognize the Ranking Member for his opening remarks.
[The prepared statement of Chairwoman Herseth Sandlin
appears on p. 21.]
OPENING STATEMENT OF HON. JOHN BOOZMAN
Mr. Boozman. Thank you, Madam Chair. The last time we met
to discuss VR&E was to hear from VA representatives of
companies that contracted for counseling services. At the
hearing, VA testified that they would solicit new contracts in
the fall of 2009. I believe those contracts are not in place
yet and believe that VA is still negotiating vendors to close
out the costs related to the counseling contracts terminated
last summer. At the same time, VA proposed to put temporary
contracts in place until the new national acquisition contracts
were awarded, and we look forward to hearing today about VA's
progress in both the short- and long-term counseling contracts.
The VR&E program is possibly the most flexible of all
Veterans Benefits Administration (VBA) benefit programs.
Counseling staffs have great latitude on how they design a
rehab program; and therein lies both the positives and
negatives of the program. On the positive side, veterans are
eligible for nearly a limitless approach to returning to the
workforce or enrollment in independent living. On the downside,
there are sometimes unrealistic expectations by veterans on
what they believe their course of rehabilitation should be. In
short, I am very concerned about the time it takes to enter
into rehab.
According to VA data, it takes on average about 54 days to
determine eligibility, 118 days to develop a rehab plan, and
200 days to find a job following completion of the customized
rehab program. That is 372 days. That does not include the
average of 615 days spent completing the rehab program, which
brings the total average time in rehab to employment to 987
days.
Since about 90 percent of VR&E participants are enrolled in
degree programs, I understand the effect of long-term education
or training on the average of 615 days in rehab. But since the
vast majority of veterans are in college, I hope that we can
better understand why it takes 118 days to send someone to
school. Unfortunately, the VBA Annual Benefits Report does not
show rehab data by track, and I would encourage VA to make that
change in the fiscal year 2010 report.
I understand the staff has requested a post-hearing
briefing on some of the details that Mrs. Fanning has indicated
in her written testimony are not available. I hope the
Department will put that briefing together expeditiously.
And, with that, I yield back. Thank you.
Ms. Herseth Sandlin. Thank you, Mr. Boozman.
I would now like to welcome our guest testifying before the
Subcommittee today. Joining us is Ms. Ruth Fanning, Director of
the Vocational Rehabilitation and Employment Service, Veterans
Benefits Administration, U.S. Department of Veterans Affairs. I
welcome you back to the Subcommittee. You are now recognized.
STATEMENT OF RUTH A. FANNING, DIRECTOR, VOCATIONAL
REHABILITATION AND EMPLOYMENT SERVICE, VETERANS BENEFITS
ADMINISTRATION, U.S. DEPARTMENT OF VETERANS AFFAIRS
Ms. Fanning. Thank you, Madam Chair, Ranking Member,
Members of the Subcommittee. I really appreciate you inviting
me to appear today to discuss VA's Vocational Rehabilitation
and Employment Program.
Today I would like to discuss the employment services that
VA provides to veterans, update you about the contracts, and
discuss staffing initiatives that are supported by Congress's
appropriation. Many of the issues that you raised in your
invitation letter deserve further elaboration and quantitative
analysis, and unfortunately I will need some time, as you
noted, to completely and fully respond. I want to make sure
that I provide you complete data and very accurate data, and I
will be happy to come back in an expeditious manner to do that.
VR&E's primary mission is to assist veterans with
disabilities to prepare for, obtain, and sustain suitable
employment. Robust services are individually tailored to each
veteran's needs. Services begin with a comprehensive evaluation
to help veterans with understanding their own interests,
aptitudes, and transferrable skills.
Next, vocational exploration focuses veterans' potential
career goals with labor market demands, available training, and
their individual needs and preferences. This process is
designed to help each veteran make informed choices and, with
the help of his or her counselor, develop a roadmap for their
future or rehabilitation plan so that they can achieve their
goals.
A broad range of employment services may be provided from
direct job placement, short-term training, to college training
or self-employment. The goal of each and every plan is to
maximize the veteran's transferrable skills and help them enter
the job market at a level that is on par with his or her peer
group and in a career position which he or she can thrive, even
if their disability conditions progress or worsen.
Disabled veterans and servicemembers receive VR&E services
from two programs, the Coming Home to Work Program and the
VetSuccess Program.
The Coming Home to Work Program focuses on early
intervention to help wounded warriors planning and working
toward their civilian career goals, reducing the risk of
homelessness, underemployment, and unsuitable employment after
discharge from the military.
Because many times, the first jobs that veterans get after
discharge are transitional employment, VR&E Service also works
very closely with the U.S. Department of Labor (DOL). As you
know, the Department of Labor has an important program called
REALifelines. They are there at the Transition Assistance
Program (TAP) and Disabled Transition Assistance Program (DTAP)
to help veterans get immediate employment. Many times, those
first jobs are only transitional employment, and DOL works with
us to link veterans back so that veterans can understand
benefits available both through VR&E as well as the Post-9/11
GI Bill and other programs so that they can prepare for their
long-term career, ensuring long-term stability, upward
mobility, and jobs skills and futures, commensurate with their
skill sets and interests.
We provide a multitude of employment assistance, including
direct job placement assistance, which is wide-ranging, from
developing resumes, interview skills, and specific skills
targeted to each veteran's needs, training that ranges from
internships to on-the-job training (OJT), certificate training,
college training, and everything in between; self-employment
assistance for veterans who are entrepreneurs and able to set
up their own businesses; and outreach to government, private
sector, and nonprofit organizations to market veterans as
employees, to help them understand the value veterans bring as
employees in their workplace, but also to help them understand
the many other benefits, including tax credits, special
employer incentives, and, for government, special hiring
authorities.
For those veterans whose disabilities are too severe to
make employment feasible, voc rehab provides a wide range of
independent living services. Those include volunteer work
placement, public transportation--the use of that--life skills
coaching, counseling, and a myriad of other services, again,
that are tailored to each person's needs.
To the extent possible, these services are integrated into
employment plans. But, when necessary, these are stand-alone
programs, with the ultimate goal of helping each individual be
as independent as possible in their home and community, and
then be able to consider employment, whatever that employment
may mean for that person, whether it is a volunteer job, a
part-time job, or a full-time competitive placement.
Next, I would like to talk a little bit about the
contracts. As mentioned, over the past year, VR&E has been
working very closely with VA's Office of Acquisition,
Logistics, and Construction to develop and solicit new
performance-based contracts. This solicitation was issued and
has closed, and proposals currently are being evaluated. We
have over 30 staff from around the country essentially locked
down, in the Center for Acquisition Innovation-Frederick
working very closely with General Counsel and with the
acquisition staff to conduct past performance and technical
evaluations. This process is near ending. We expect that it
will be done within the next week, and then the actual pricing
evaluation will commence and awards of the contracts are
expected in the fall, in either August or September.
VR&E service is also working with the Office of Resource
Management to develop automated invoicing, referral, and
additional tracking tools, and this has been in progress for
several months, and we expect will be in place when the
contract is awarded and when performance commences.
Finally, to talk a little bit about staffing and
initiatives. As you know, we have over 1,100 employees around
the country, and they provide extensive services that are
tailored to each veteran's needs. These services include
comprehensive employment and independent living services,
outreach assistance to the Coming Home to Work Program, and
important support from VA to veterans who are in other VA
education programs.
For example, the VetSuccess on Campus project is a new
project. It began as a pilot at the University of South
Florida; and this project is specifically geared to serve Post-
9/11 GI Bill veterans on college campuses, to help them
overcome any barriers they may encounter in college, stay in
school, finish school, and then be able to enter into suitable
careers. We have expanded this pilot to two additional campuses
at San Diego State and Cleveland State, and we are in the
addition of expanding to four more campuses currently.
In order to adapt to shifts in workload due to deployments
of Reservists and National Guard units, quickly meet the
specialized needs of the most seriously disabled veterans,
provide community-based services to veterans in remote areas,
fill the gap when we have staffing shortages so that timely
services are not affected, VR&E has also supported, as you
know, contract funding. And during fiscal year 2010 budget
formulation, an additional $8 million in General Operating
Expenses (GOE) was allocated to support those, and an
additional $8.3 million in 2011 has been requested.
VR&E Service is also working very hard to develop new
solutions that will further enhance employment and independent
living services. Among these, we are equipping staff through
the development of desktop training, testing methods that will
support face-to-face counseling using secure and user-friendly
technology, conducting a top-to-bottom business process
reengineering (BPR) initiative to streamline and simplify
service delivery. This is designed to ease entry into the
program for veterans, and also simplify and streamline our
process so that our core counseling staff are primarily focused
on one-on-one service to veterans.
Now, more than ever, the employment needs of veterans are
an urgent priority for VA. VA is showing leadership through our
involvement in implementing the President's government-wide
hiring initiative, and VR&E is pivotal to the success of this
initiative, actively working with government agencies and
departments to increase employment of veterans with
disabilities. VR&E is leading through the development of a
national job board on VA's VetSuccess.gov Web site with
continual expansion of this site underway. We are actively
collaborating with businesses in all sectors who identify
employment opportunities, particularly with those sectors with
deficits of qualified applicants, and we are working
strategically to understand the future job trends to assist
veterans to match their career plans with those future job
market needs.
Finally, VR&E is working to use effective tools and
innovations to meet the needs of transitioning servicemembers,
reaching out early, developing effective contracts, maximizing
important partnerships with Department of Labor and other
government and nongovernment partners, and leveraging
technology for training, case management, and veteran
employment tools.
Madam Chairwoman and Members of the Subcommittee, this
concludes my statement. I would be pleased to answer any
questions you may have.
Ms. Herseth Sandlin. Thank you, Ms. Fanning.
[The prepared statement of Ms. Fanning appears on p. 22.]
Ms. Herseth Sandlin. I will first recognize Mr. Perriello
for questions.
Mr. Perriello. Thank you very much, Madam Chair.
Thank you, Ms. Fanning. You know, I think we are all seeing
a lot of interest in the VR&E Program, particularly in the job
environment, where we are seeing the rather stark unemployment
of returning veterans and a lot of interest. So I guess part of
what I am trying to understand off the top is if we see that by
increasing the per capita independent living cap, that we have
increased demand in many ways for the program because of both
the number of vets returning and the job environment, but
reducing budget for the fiscal year, what is it that gives us
the confidence to think that this is not going to lead a
reduction in a program that really, right now, needs to be
seeing a boost, in my mind?
Ms. Fanning. I think you are referring to the reduction of
9 full-time equivalents (FTEs) in the budget, which, really,
were not a reduction from the VR&E Program, but of overall
management support. And the reduction for overall management
support for VBA was spread across all programs. I am not an
Office of Resolution Management (ORM) expert, but that is what
I can tell you. And if you need more detail, I would be happy
to provide that.
What we were provided, though, was an additional $8 million
in GOE funding to supplement contracting, which is a big help
and does help us respond to those increases in workload and in
a strategic manner so that if there is a large deployment in,
for example, Ohio because a unit returns, we can respond to
that increase.
Mr. Perriello. So it is your feeling that $8.3 million from
GOE will essentially cover whatever difference you have in the
1 percent decrease?
Ms. Fanning. I am continuing to watch it. And part of my
job is to be aware of the trends, to always make the case for
additional resources when that is needed. So at this point, I
am pleased that we have the additional support, and I will
continue to watch the workload trends and advocate for any
additional needs are identical.
Mr. Perriello. Will that possibly mean a shift from in-
house employees to more contracting, and would that have any
effect potentially on the quality of services?
Ms. Fanning. In the short term, with an increase of GOE
funds it could possibly mean an increase in contracting funds.
But we also have the flexibility during execution to look at
using some of those funds for staffing, and that is something
that I will definitely be working with leadership on.
Mr. Perriello. Well, I will certainly be interested in
looking at that in terms of the immediate budget impacts and
the needs that are there right now, but also looking at medium-
term capacity within the program as well.
One of the things that I think we are trying to track as
well is some of the dynamics between this program and the new
GI Bill, where we are seeing a tremendous amount of interest,
which is a great thing. Are you seeing some people opting for
the Post-9/11 GI Bill because of the housing stipend that is
there or other dynamics? What are you seeing in terms of the
relationship between those two programs?
Ms. Fanning. We have developed a way to track any decrease
in our program because of a transition, specifically to the new
GI Bill.
Initially, we saw very little change. We had estimated that
up to 13,000 veterans could switch immediately from voc rehab
over to the new GI Bill, and that didn't occur. I don't have
the exact number, I would be glad to provide that, but I can
tell you it was less than 1,000 veterans.
Now, just over the last quarter, we are seeing a slight
uptick of veterans moving over to the GI Bill and just a slight
decrease in our applicants. One-quarter's worth of data is not
a lot to base trend analysis on, particularly since we have
been seeing an upward trend due to outreach and the current
conflict and, of course, compensation's production, and their
hiring of staff. So we will continue to monitor that.
I am obviously concerned. I think veterans need to make
informed choices about what benefit is most beneficial for each
of them, but I am concerned that a veteran may select a program
based only on the stipend when their living expense is of a
great concern to them, rather than the more comprehensive
services of VR&E, if those are really what they need.
[The VA subsequently provided the following information:]
Mr. Perriello. And my last question, very quickly. You were
talking about that the first jobs are often the transitional
jobs going through this program. Can you give us an example
that those that tend to be available the most often as those
transitional jobs or types of jobs we are seeing people move
into?
Ms. Fanning. Well, the types of jobs I think are about as
big as the labor market, because at TAP sessions, many
employers actually are there meeting with veterans. Job fairs
occur. DOL is very active in helping veterans who want to get a
job immediately, get into a job that hopefully is closely
aligned with what their military occupational specialty was or
what their previous work experience was.
Oftentimes, the first job, as we all know, isn't the right
job or the best job. And we do know that veterans want to--they
tell us, they want to get a job immediately after discharge
just to normalize themselves back into civilian life. What our
concern is, is that a veteran, while they need that job to
transition back into the civilian market, doesn't get into a
job that is not compatible with their disability conditions,
doesn't get into a job that really has a future, that they are
looped back to our program so that we can assist them if
training is needed to augment their transferrable skills, if
their transferrable skills are really no longer relevant
because of their disability conditions to help them get new
skills, and to help them catch up with their peer group.
Because of their service, they may be a few years behind their
peer group's career development. And I think they deserve that
assistance to get into appropriate careers that they can grow
into.
So that is the concern. And I hope that answers your
question.
Mr. Perriello. Thank you. We certainly want to keep an eye
on this program at this point. Thank you so much.
Ms. Herseth Sandlin. Thank you, Mr. Perriello.
Mr. Boozman.
Mr. Boozman. Let's go ahead, if it is okay with you, Madam
Chair, and go ahead with Mr. Teague.
Mr. Teague. Well, thank you. And thank you, Madam
Chairwoman, for having this meeting, and Ranking Member.
Ms. Fanning, I want to thank you for coming also. I think
it is very important what your organization does to help our
men and women as they come back, to work them from the disabled
veterans or disabled soldiers from the military to civilian
life and what they have to do. But, you know, one of the
things, earlier in your testimony you were saying there are
five different programs that you work the troops to. When they
do, are they limited to one of those five when they get started
in that? Or can they pick and choose different things from
each, and maybe participate in three or all five or something,
using part of each program?
Ms. Fanning. Thank you, Mr. Teague, for that question.
Our program is very fluid, and it is really tailored to
each person's needs. So, as an example, one thing that I
mentioned in my testimony is that, in many cases, independent
living services are integrated into a training program. So a
veteran may be pursuing college, but also may need some
assistance, because of a severe disability, in having full
access to the community, learning to use public transportation,
having his or her home modified so they can get in and out
easily, and those kinds of things. So, as much as possible, we
integrate whatever services are needed together.
And, yes, a veteran can come in, and may come in
initially--let me use an example of a Guard or Reservist who
comes in initially wanting just help getting back to their
previous employer and perhaps needs ergonomic adaptation to
their work site, maybe just a chair because of a lower-back
injury, and we assist with that. The veteran returns to the
employer and finds that, during the time that they were
deployed, maybe a year, 2 years, the job has moved on, and they
need some additional training in order to stay competitive and
be eligible for promotions. We can provide additional training
that they may need.
Perhaps a veteran comes back and we are providing direct
job placement. But even though he or she received excellent
training in the military--and often we see this with
information technology (IT) skills--they may not have the
certifications that the civilian market recognizes that will
allow them to get the best jobs and move up in their
occupation. So even though we may be helping them get back into
the IT market, we also may be providing short-term training for
those certifications so that they maximize their marketability.
Mr. Teague. And, also, you know the 12-year, the delimiting
date for the VR&E. Is that long enough, due to these
considerations that they do come in behind their peer group? Do
you think that time needs to be expanded and additional years
added to that?
Ms. Fanning. Well, one of the good things about the way the
program is designed by Congress is that a veteran can apply at
any time regardless of whether the 12-year delimiting date has
passed or not. Eligibility isn't based on the delimiting date,
but entitlement may be. So if a veteran comes in and applies
for a voc rehab, even if the delimiting date has passed, we may
find him or her eligible, and they will be able to sit down
with a counselor to evaluate their needs.
If they have a serious employment handicap, meaning that
they have serious issues and need significant services to
overcome them, we can waive the 12-year eligibility period and
provide services. We can extend the 48 months of entitlement as
well.
So the program is designed in a very generous manner that
allows us to serve seriously disabled veterans beyond that
delimiting period.
Mr. Teague. Another question just about efficiency and
cost. You know there is going to be a 1 percent cut, but there
is also an extra $8 million out there. So I was just curious,
what is the average caseload for the caseworker? And, you know,
if we are reasonably staffed, then why are we hiring
contractors to do those jobs?
Ms. Fanning. We have used contractors for a number of
years, as long as I remember, since my first exposure to the
voc rehab program was as a subcontractor before I worked for
the VA. And so that has always been a tool that has been used.
It allows VR&E to be agile and to respond to changes and
staffing needs. Because VR&E is a small program and we are
community-based, there may be an office that has only one
counselor in a remote area, the use of contractors, if there is
turnover of that counselor, allows those veterans to continue
to be served while the person is still behind.
So I think, contracting will always be there as a need and
VR&E will continue to need it, and use it.
I would, if you wouldn't mind, ask you to repeat the first
part of your question, because I don't think I fully answered.
Mr. Teague. I was concerned about the average caseload, for
the caseworker.
Ms. Fanning. Thank you. I apologize. I started remembering
my old days and I got distracted.
The average caseload right now is around 1 to 145 for each
counselor. And that is in all statuses, from applicant through
veterans who are ready to be rehabilitated.
Mr. Teague. Thank you. Thank you for your service, and
thanks for answering those questions.
Ms. Fanning. Thank you.
Ms. Herseth Sandlin. Thank you, Mr. Teague.
Mr. Boozman.
Mr. Boozman. Thank you, Madam Chair. You mentioned efforts
to streamline and simplify service delivery. Can you give us
some examples of perhaps what you are thinking in that area?
Ms. Fanning. Yes, I can. I would be delighted to.
We are doing a number of things right now to really take a
hard look at the program and see how we can continually improve
it. One thing that we are doing, that goes to Mr. Teague's
question, is we are currently doing a work measurement study;
and that is basically a time and motion study. We have a
contractor assisting us to look at what each other professional
staff is doing, how much time does it take, so that we have
analytical data that we can use to determine what the
appropriate counselor-to-veteran caseload should be. You know,
we all have our guesses or our estimates based on experience.
And I do have experience in the field. But I would like to know
from more of a scientific method.
We have just engaged in an end-to-end look at the program
with contract support, first identifying our as-is process;
what are we doing. And, in looking at where the opportunities
for us to go in using advanced technology or simple business
reprocessing, and streamline the program. That same contractor
then developed a to-be state, and presented us with several
recommendations from very simple improvements that we could
make, all the way through to the paperless environment, which
is where we ultimately want to be and we think will be a huge
help.
As an example, something simple like using an automated
reminder system for appointments. I can admit to you that if I
don't get a reminder appointment the night before my dentist
appointment, I am probably not going to be there the next day.
With a busy schedule, and I think veterans have extremely busy
schedules. Many of them are job searching or already looking.
We want to also, with our appointment scheduling, develop a
system so that veterans could go online and select their own
appointment time that is convenient for them, similar to going
on and choosing your own airline seat. These are available in
choosing what is best for them.
So from that very simple kind of process all the way, like
I said, to paperless and everything in between. We are looking
at all the forms, the processes we use, and looking at how we
can simplify the paperwork that counselors are required to do
so that we can get the same quality of work and ensure that the
same level of service is provided to veterans, but perhaps not
require so much paperwork, make sure we have enough, but that
we are not over-requiring of the counselors.
Another initiative that we are currently engaged in is a
pilot into regional offices, testing technology for remote
counseling. And this is really something that we expect to be
successful because of the success the Veterans Health
Administration (VHA) has had with their telehealth program. So
we know that technology can be used effectively and safely; but
what we are really interested in is, since this is a counseling
relationship, how does it affect the counseling relationship?
Are there portions of the relationship that really are best
face-to-face, one-on-one? Perhaps the initial appointments. And
then, are there portions that really the technology would work
just as effectively? And when veterans are a couple hundred
miles away, it would keep them from driving to our office, and
it would use the staff's time more effectively by not sending
them 200 miles just to meet with one veteran. They could see
many more veterans.
We are doing a lot of other things, but those are some
examples.
Mr. Boozman. Very good. And I think what we would like to
do is perhaps have staff follow up on that and see how we can
be helpful in that regard.
Do you have any idea about the kind of a ballpark figure,
about the PAYGO cost to allow VR&E participants to use chapter
33 just as current law allows them to use chapter 30 while
receiving VR&E services?
Ms. Fanning. I don't have that cost with me. It is----
Mr. Boozman. Is that a bunch of people? Is that a huge
population or a small population?
Ms. Fanning. When the bill was first passed and we looked
at it, it was around 13,000 potentially. I haven't looked at
what the population is in the recent months. You know, I looked
at that data at that time just so that I could be prepared of
what the potential impact may be. I am not a budget expert, but
it is something that I have looked at. And from my thoughts,
there wouldn't be a significant cost other than FTE, because
the veteran will be using services from one program or the
other. And chapter 33 obviously now has a larger price tag
associated.
So with what we call the crossover program with chapter 30,
which allows the veteran to receive the full scope of chapter
31 case management and assistance and support while electing
the monetary benefits of chapter 30, the only additional cost
is the staff who are doing the case management.
Mr. Boozman. Again, I think that is something else that
perhaps we will follow up on and see if we can get some numbers
and things. So thank you, Madam Chair.
Ms. Herseth Sandlin. Thank you, Mr. Boozman. That is a very
helpful response in light of the fact of your experience and
looking at the additional costs associated with chapter 30, and
obviously some proposals on the table, as it relates to the new
benefit.
Let me just follow up from some of what Mr. Boozman
mentioned in his opening statement as well as questions that
Mr. Perriello and Mr. Teague asked. The Independent Budget for
fiscal year 2011 makes the assertion that VA has a limited
number of VR&E counselors and case managers to handle a growing
caseload. Now, you had mentioned that it is about 1 to 145. And
does that include contractors?
Ms. Fanning. No. That is VA staff only.
Ms. Herseth Sandlin. VA staff only. Do you know what it is
with the contractors?
Ms. Fanning. With contractors, it is hard to define.
Because contractors may have numerous employees working for
them. And in some cases, when they are working with
subcontractors--as I can say in my own experience, when I was
self-employed as a rehab counselor, VA work was only one thing
that I was doing. I was also working in a number of other
sectors. So it is harder to quantify, because they may be only
working one case a month, they may be full-time. We can try to
equate dollars to people, and I would be glad to do that math
to give you an estimate.
Ms. Herseth Sandlin. I think it would be good to have a
measure. I think there are some legitimate questions being
raised about the use of the dollars and the results that we are
getting. Any time we can look at something and try to craft
some measure, I think it would be helpful. If you could do
that, and we can talk more, just so we have a better sense of
the veterans being served by the contractors and how that
compares with some of the concerns we have had about the
workload for the VA staff.
Is that 1 to 145, has that been consistent over the last
number of years? Did you see a significant jump early in the
last decade? Do you have the trends that show us what the
workload has been, average workload, on an annual basis?
Ms. Fanning. I would have to go back in time to tell you
over the last decade; during the time that I have been here in
Washington, which has been about 2\1/2\ years now.
Ms. Herseth Sandlin. But do we have that?
Ms. Fanning. It has been a slight increase. It was as low
as 1 to 119 a couple years ago. So we have seen an increase of
about 20 or so cases per counselor.
[The VA subsequently provided the following information:]
L During the course of the NAS-II contracts, 29,976
referrals were made to prime contractors. The number of
referrals varies by regional office depending on services
needed. The prime contractor was responsible for assigning work
and tracking the cases referred to each subcontractor. Prime
contractors assigned work to subcontractors based on their own
criteria and type of service needed. Contracted services
included the following service groups: Initial Evaluation, Case
Management, Employment Services, and Ed/Voc Counseling.
L VA counselors continued to perform case-management
functions while the subcontractor performed the assigned work.
The VA counselor is ultimately responsible for all decisions
pertaining to individual cases. The contract restricted any one
contractor to a VA caseload of no more than 125 cases.
Ms. Herseth Sandlin. Does that, in any way, mirror some of
what the Ranking Member mentioned in terms of the time to
actually receive services in terms of the amount of time for
the application? We are going into--how many days did you say--
900 days from the time of application to completion of the
program?
Ms. Fanning. The actual time of the program really depends
more on what track the veteran is in. And we know that the
majority of veterans who come to VR&E are looking for services
to prepare them for a career. And since they are going through
TAP, and DOL is so active in the process, many veterans who
already are employable or who think they are may never come and
apply for voc rehab. They may come back to us later when they
realize that their disability isn't compatible with that job.
And that is one of the reasons we are working so closely with
the Department of Labor.
Ms. Herseth Sandlin. I guess the question is, there does
seem to be some concern among veterans about the average time
it takes once they submit an application to start receiving
services. I am wondering if that tracks with the uptick that
you have seen.
Ms. Fanning. We have seen a slight uptick in terms of our
goal for making an entitlement decision. We are within 10
percent of the goal. We are not currently at the goal. We are
about 10 percent over. The same is the case with the day to
develop a rehabilitation plan. And there is overlap with those
two cycles. They are not linear, that the entitlement ends and
then the evaluation portion starts. There is some overlap in
those two cycles.
But there is a slight uptick. We are still--within 10
percent, which is not bad. It is something that we can get
down; and we are actively working with the Office of Field
Operations and with our staff to try to reduce that timeliness.
And I can tell you, that is a part of my reasoning behind
launching into the BPR and looking for ways to streamline. I
think that some of the paperwork could be reduced, and that
could make the timeliness a little more effective.
I would like, though, to also mention that the time to
develop a rehabilitation plan--which currently we are allowing
105 days, so just 3\1/2\ months, approximately. That there is
always going to be a need for some time on average for that
process. We are working with veterans to look at the labor
market, to understand their skills and aptitudes, to understand
their interests, to understand the transferrable skills that
they bring to the table and how they can build on those, to
understand all the options that they have for their futures,
and then to make some decisions.
That is a process. And so we don't want to be prescriptive
and tell a veteran when he comes in the door what job he or she
should seek. We want them to go through that process and make
informed decisions that are best for them. So there always will
be some time in that process because it is a counseling
process.
Now, saying that, do I think it could be shortened? I do.
And that is something that I am very committed to finding every
way possible that we can to make it shorter. Because if a
veteran comes to us who is not employed and needs work, I don't
want him to wait 3 months, I don't want him to wait 3 weeks if
we can avoid that. We want to get services started as quickly
as we can.
Ms. Herseth Sandlin. I appreciate that. And you had
responded to a question from Mr. Perriello about the
transitional jobs, and your response was very impressive in
terms of recognizing that that oftentimes is not a good fit,
that transitional job, and the importance of keeping the
veteran sort of looped back into your program.
Do you track that somehow? I mean, is the transitional job
separate from the rehabilitation plan and the career
development stage? Is this just what--they go through TAP,
maybe your office, your program helps identify that
transitional job. Are they in the transitional job then during
the time that they are working to develop a rehabilitation
plan?
Ms. Fanning. A good majority of veterans in voc rehab are
in transitional jobs. Most of them, even if they are only
supporting themselves--and a good majority of them have
families, they need to work even if they are pursuing voc
rehab. As generous as the VR&E program is, the stipend that we
have is not sufficient to pay rent and buy food and pay all the
expenses for daily life. So most veterans are working at least
part-time, some in work-study programs, some in transitional
full-time jobs.
Obviously, from a rehab counselor perspective, some kind of
work that is continuing to build their resume is a good thing.
But we don't want--ideally, we don't want to see someone having
to work full-time while they are in college. It extends the
period of time before they can really get into that right
career.
So a happy medium would be good. But we recognize and
understand that veterans need transitional jobs. If we are
helping them find them or we are working with DOL in that
process, what we are focused on is, let's make sure that it is
a job that is aligned with the ultimate career goal so that it
is a job that will make them more marketable when they are
ready to enter that career.
Ms. Herseth Sandlin. Let me ask one more question before
recognizing Mr. Bilirakis. When and how does the VR&E program
determine or declare as such that a veteran has been
rehabilitated?
Ms. Fanning. We track suitable employment, first of all. So
many veterans actually enter suitable employment while they are
still in training, and that is the ideal scenario. They are
hired as a co-op and they are completing college, and also in a
job leading toward the job that they really want.
A lot of veterans get jobs in their last semester of
college when they are ready to graduate. So as soon as they
enter suitable employment, we start tracking it in our data
system. We don't declare a veteran rehabilitated until they
have completed the goals of their program and we can determine
that they are suitably employed and that the employment is
stable, and for at least a 60-day period.
So a veteran may graduate on May 1, get a job on June 1.
Maybe they have some initial bumps in the road and we learn
that they need some adaptation or some kind of accommodation on
the job. We assist with that. Once that stability has been
gained, then 60 days beyond that point we can close the case as
rehabilitated.
Ms. Herseth Sandlin. Thank you. Mr. Bilirakis, do you have
any questions?
Mr. Bilirakis. Thank you, Madam Chair. I have a couple
questions.
Currently, the date for completing the VR&E is set to 12
years following the date of rating for a service-connected
disability. For some veterans, their disability progresses over
time. And I have a two-part question.
First, is it accurate to say that a disabled veteran who
received his rating years ago who wanted to participate in the
VRE simply does not have that option? And, second, would it
also be accurate to say that a 20-year-old Afghan or Iraq war
veteran discharged with a disability today would not be able to
participate in the VR&E when he is 32 even though the
disability has progressed?
And then, as a follow-up, what is the VA's position on
eliminating the VR&E's 12-year delimiting date to allow
veterans access to the VR&E on a needs basis when necessary?
Ms. Fanning. Thank you, sir, for those questions. First of
all, as you mentioned, the 12-year delimiting date, that clock
starts on the date of first notification of any disability
rating by Compensation and Pension (C&P). That opens the door
for vocational rehabilitation services. Veterans, however, can
apply at any time during their life regardless if that 12-year
delimiting period has expired.
Eligibility is based solely on having at least a 10-percent
disability rating; or, if a rating hasn't been established, a
20-percent memorandum rating.
So veterans are able to come in, sit down with a counselor,
discuss their needs. And if the counselor finds that the
veteran has a serious employment handicap, meaning that because
their disability is so significant, that they need services to
be rehabilitated to meet their goals, whether that is
employment, or we find that they are not feasible for
employment and independent living service needs are identified,
we can waive the 12-year delimiting period. So, in both
scenarios that you described----
Mr. Bilirakis. How often do you do that, though? How often
do you waive it?
Ms. Fanning. I am going to talk off the top of my head now,
and I can give you a specific ratio in my follow-up. But about
half of the veterans we are serving have serious employment
handicaps.
Now, that doesn't mean that all of those individuals needed
that period, that 12-year period extended. It just means that
we find a high number of veterans who come in to us for
services to have significant needs. If a veteran only has an
employment handicap, which means they do have a disability that
is related to their service-connected disability, they do have
impairments related to their service-connected disability that,
in some way, impact their work, their ability to obtain a job
or maintain a job, but it doesn't rise to the level of a
serious disability, meaning that they need significant services
and that 12-year period has passed, those are the cases when we
can't provide services, and, unfortunately, would have to find
the veteran not to be entitled.
Mr. Bilirakis. So the VA's position is that they would not,
at this time, eliminate the 12-year delimiting date?
Ms. Fanning. We haven't evaluated that issue. And I would
be happy to do so. Basic rehab law, I mean, aside from the law
that mandates the voc rehab and employment program, is to
ensure that the most seriously disabled individuals are served
first. And the way that chapter 31 has been developed by
Congress, that intent is certainly met. Because regardless of
the time that a veteran comes back in the continuum of his
disability--and, as you know, and you mentioned, disability can
be a continuum. A veteran with diabetes, as an example, may be
quite stable early in his or her life, and as they age and
complications arise, they can be quite significant. And so
later in life they really may need assistance. And so the way
title 38 and chapter 31 has been designed under title 38, it
allows us to serve those most seriously disabled individuals.
What it doesn't allow is for those veterans who have an
employment handicap, for us to serve them if the delimiting
date has passed.
Mr. Bilirakis. Thank you very much. Thank you, Madam Chair.
Ms. Herseth Sandlin. Thank you, Mr. Bilirakis.
Ms. Fanning, perhaps you could get us, in addition to some
of the other information that we have requested, that you could
get us in terms of the caseload for contractors vis-a-vis those
for your VA staff, and kind of the trend of that average
caseload over the past decade, could you also get us
information about how many veterans have been allowed into the
VR&E program who passed the 12-year delimiting period?
Ms. Fanning. Yes, ma'am.
[The VA subsequently provided the following information:]
L Currently, 18,867 Veterans are past the eligibility
termination period of 12 years. These Veterans are in various
stages of the program, including some who are still in
applicant status. Veterans in applicant and evaluation statuses
may not have yet been rendered an entitlement determination.
Other veterans in this population may have been found entitled
during their 12-year eligibility period with an employment
handicap and later found to have a serious employment handicap
based on additional evidence submitted or a worsening of their
disabilities.
Ms. Herseth Sandlin. I just have a couple of questions on
the independent living program. My office has received reports
from veterans who have experienced wait times exceeding 1,000
days for approval of their independent living program. Are you
aware of those concerns?
Ms. Fanning. I have seen concerns from one--raised from one
particular individual. I can tell you that the time frames for
developing any kind of plan. As I mentioned, the average is
within 10 percent of our goal of 105 days. So those certainly
would be significant outliers. I mean, I can go back and run
our database to see if we have any case that is an outlier in
that manner and report back to you.
Ms. Herseth Sandlin. Specifically, in the independent
living program?
Ms. Fanning. Yes.
Ms. Herseth Sandlin. I would appreciate that. I will submit
to your office a list of specific veterans and their concerns
regarding the independent living program. Not all of them face
the 1,000 day or more concern about approval of the program.
Ms. Fanning. That would be helpful.
Ms. Herseth Sandlin. I would then appreciate if you and
your staff could sort of get us some up-to-date information
responding to the concerns of that list of veterans.
I guess, if you are aware of the one particular case, I
guess I am wondering what sort of management or oversight the
Central Office provides to the regional office as it relates to
management of the independent living program. Because I think
the application procedure has proven to be exceedingly onerous
with repeated requests for further documentation, according to
some of the reports I am getting for veterans.
Ms. Fanning. I am aware that one particular veteran is
raising these concerns. As I said, I would have to research to
see if any particular case actually is at that time limit, or
if it is a perception based on a rehabilitation plan being
developed and then ongoing services taking additional time.
And, from a veteran's perspective, I can see that, until
everything that is expected has been completed, that they may
consider that clock ticking and may be looking at it from a
time perspective differently than we are. So it would be
helpful for me to look at the cases, and I appreciate you
providing me the opportunity.
[The VA followed up with Chairwoman Herseth Sandlin's
office regarding this issue.]
Ms. Herseth Sandlin. I guess my question is, what oversight
are you providing to the regional offices as it relates to
streamlining the process, so perhaps there don't have to be
these further requests of additional documentation? We could
maybe make the assumption that the veteran has fallen short in
providing some of the documentation, but sometimes that is
directly related to the guidance and the efficiency and
effectiveness of the guidance they are getting from someone
working out of a regional office.
Ms. Fanning. The independent living program receives a lot
of attention. And independent living, as you know, is--it is a
separate track, as we described the five tracks, but it is
actually a subset of our program. VR&E is an employment
program. And until we actually determine that a veteran is not
feasible for employment, at that point, we then proceed to look
at solely independent living needs.
Now, as I mentioned earlier, we can also look at
independent living needs as a part of any program. But I think
you are talking about solely independent living needs at this
point. So that it is going to take a little longer because it
is adding an additional step to the process. We determine a
veteran is not feasible. The next step is, this veteran can't
work, but are they independent? Do they need any services to
maximize their independence?
We have a process in place that, first of all, the
counselor evaluates their independent living needs. And it is a
pretty structured process that has been put in place in
response to some of the concerns that you are raising over the
last few years, prior to my arrival, but not very much prior.
In addition, if the needs that are identified are
significant, an in-home visit is done. And that in-home visit
may even include bringing in experts such as an occupational
therapist or a rehabilitation engineer. Not in every case,
because obviously if the veteran's disability is a mental
health issue, we may not be looking at adapting their home. We
may be looking at more functional issues that would help them
be more successful at home.
Ms. Fanning. The process is overseen in Central Office. We
actually have an independent living coordinator who works
really closely as a consultant to the field, and I have doubled
that staff so she now has another person working with her. We
are doing--since I have arrived, we are doing yearly ``train
the trainer'' sessions with the field offices specifically
about independent living, and we are currently reviewing all of
the office's use of independent living and preparing to do some
site visits to offices either that are overusing or underusing
independent living. And I say that with the caveat that until
we go and talk to them, we don't know if they are overusing or
underusing. We are simply looking at data, which, as you know,
only tells you which questions to ask. It doesn't tell you the
answers. You always have to dig deeper. So we are preparing to
do that.
And at the field level, if a veteran who is found
infeasible and the counselor determines they don't need
independent living, the voc rehab manager is required to review
and concur on that decision. That policy is in place to make
sure that counselors truly consider these needs.
In addition, any veteran for whom an independent living
plan is developed, the VRE manager is required to review and
approve that plan. And it is because it is a smaller number of
cases that there is additional oversight in place. It is to
avoid just the kind of issues that you are raising.
So we are concerned. We are doing a lot of training and a
lot of oversight, and we are certainly open to any feedback
that we receive to strengthen the program further. And I am
very interested in doing that.
Ms. Herseth Sandlin. I appreciate that, Ms. Fanning, and I
do think it will be important to get some of the information
back from you as well as the updates from some of the
information we will provide that my office has received.
Your explanation as to why it may take longer is
understandable, but at the same time, if there are ways through
the oversight that you have put in place, maybe the double of
the staffing to assist the person in the Central Office, to
find a way to streamline this process, to identify some of the
needs earlier, it is just hard for me to imagine the situation
with a severely injured veteran having to wait 3 years.
Again, I know you are aware of a particular case there, but
let us just see if you can do the assessment of the outstanding
applications so we can address some of the concerns working
together that we are aware of. I would appreciate that.
Ms. Fanning. And if you would, I will give you an example
of a couple of things that we are doing currently.
We take this very seriously and we are working very hard.
One thing that we are doing currently is we have
established a work group jointly with the Loan Guaranty Program
under Mark Bologna's direction. And this work group is designed
to develop procedures and policies so that we can leverage the
expertise of the special adaptive housing experts. Our voc
rehab counselors are counselors. They are not construction
experts. And when construction is required as a part of an
independent living program, that presents unique challenges in
terms of them understanding if the bids they receive are really
good, do they really fully meet the needs of the veteran, when
the work was ready to be paid for, was it delivered
appropriately.
So Mr. Bologna and his staff are working with us so that we
can leverage that expertise and ensure that we are getting the
appropriate value for taxpayers' funds, but more importantly,
that the veteran is receiving everything that they need. That
is an example of one of the initiatives.
A second is we have done a full analysis of our waiver
requests for small construction needs, and any kind of
construction at this point has to be approved at the Central
Office level. We have looked at all of the trends, and we have
seen those under the $25,000 range are usually very
straightforward--perhaps adding grab bars to showers, ramps in
the front of a home--and they are usually well documented. It
is very rare when we have to intervene. So we have policy
currently going through concurrence that will push that
approval down to the regional office director's level and
simplify some of that process.
Ms. Herseth Sandlin. Thank you.
Mr. Boozman, did you have any final questions?
Mr. Boozman. Just a couple.
The VRE doesn't have a role in determining eligibility of
100-percent individual employment rating. It seems like,
though, they would be in a position to kind of weigh in on
that.
Ms. Fanning. The Rating Veterans Service Representative is
required, if there is a voc rehab file, to pull the file and
look at the evaluation that voc rehab has done as a part of
their rating decision. So in that way, we really do have a
role.
Mr. Boozman. How many independent living applicants have
entered the program in 2009? And did VA delay any portion of
the processing, including approval, in order to remain within
the annual statutory cap?
Ms. Fanning. In 2009--and bear with me for a moment. I have
the data; I just need to find it.
In 2009, we had just over 1,800 first time independent
living plans developed. This year thus far as of March, we are
trending similarly to last year, and even with that trend, I
think we will still be within the 2,600 cap if we stay on track
with where we are now.
Mr. Boozman. So the answer then is you didn't have to delay
any?
Ms. Fanning. No.
Mr. Boozman. Thank you, Madam Chair, and thank you for
being here, Ms. Fanning.
Ms. Herseth Sandlin. Thank you, Mr. Boozman.
Just one final question, Ms. Fanning: The electronic case
management information system, do you feel that that needs to
be revamped to meet VR&E's specific needs to respond to some of
the veterans' concerns about how that is working for them?
Ms. Fanning. Are you referring to our Corporate WINRS
system?
Ms. Herseth Sandlin. Yes.
Ms. Fanning. We are actively working on that. That is a
part of our BPR. We are working also with all of the other
initiatives, including Veteran's Relationship Management and
Veterans Benefits Management System, to ensure all programs are
integrated.
Ultimately, where we want to be is with an E-benefits
portal so that veterans can come in and have some self-service
capabilities similar to what we would do with our banking or
other kinds of checking on status of a deposit or a check. That
is where we want to end up.
We are working on our Corporate WINRS Program with the goal
of ultimately being paperless, but we think that in the short
term, we can do some modifications to start down that road.
Ms. Herseth Sandlin. ``Short term'' meaning?
Ms. Fanning. Within the next year or so.
As you know, the budget cycle is a little far out.
Ms. Herseth Sandlin. Do you feel you currently have the
resources to get the modern IT support you think you need to
start down this path?
Ms. Fanning. We are currently engaged in a process that we
are funded for this year where we are moving off of Benefits
Delivery Network. We are moving our payment process, our master
record, and our eligibility determination into the corporate
environment. That really sets the stage for us to then continue
moving aggressively forward. And we have initiatives in place,
and we are currently working on the VetSuccess.gov Web site, as
I said, continuing to work toward more of an E-portal and case
management portal.
We want our counselors to be able to go out into the field
instead of carrying a box of locked files with them, carrying a
laptop that has a wireless connection. So if a veteran has a
question, they have access to the record in a secure way, they
can document as they go. They are using their time efficiently,
and ultimately serving veterans as effectively as possible.
Ms. Herseth Sandlin. Well, I want to thank you for the
timely update on the VR&E Program, for your dedication, your
hard work in assisting our Nation's veterans and those that
seek the services that you oversee. And I do hope that you will
extend our gratitude to your entire staff, and I know that they
work hard. As you say, we would like to provide them the modern
IT support that would make their jobs easier as you are also
testing some of the technologies that may be beneficial for
your staff and the veterans as well.
We look forward to continuing to work with you and work
with our colleagues on the Committee to address the unique
needs of our most severely injured veterans and all veterans
seeking reintegration back into our communities.
Thank you again, Ms. Fanning.
The hearing stands adjourned.
[Whereupon, at 11:15 a.m., the Subcommittee was adjourned.]
A P P E N D I X
----------
Prepared Statement of Hon. Stephanie Herseth Sandlin, Chairwoman,
Subcommittee on Economic Opportunity
I would like to state that the Veterans of Foreign Wars of the
United States and the Commission on Rehabilitation Counselor
Certification have asked to submit written statements for the hearing
record. If there is no objection, I ask for unanimous consent that
their statements be entered for the record. Hearing no objection, so
entered.
During the 110th Congress, we held a series of hearings that
focused on employment opportunities for veterans. These hearings
included the VR&E programs that seek to assist our injured
servicemembers and help veterans obtain employment after their military
service. As a result of those productive hearings, we were able to
expand the VR&E programs by:
Authorizing the VA Secretary to provide waivers for
severely injured veterans seeking to participate in the Independent
Living Program;
Increasing the cap for participation in the Independent
Living Program;
Requiring the VA to report to Congress on the measures to
assist veterans participating in VR&E; and
Authorizing a multi-year longitudinal study on VR&E.
Today's hearing will allow us to learn more about what the
Administration is doing to implement these new changes and to address
the concerns raised over the past year. These include the need to:
Reduce case management and workload for counselors;
Conduct more outreach to qualified veterans;
Streamline information provided to DVOP, LVER and VA
staff; and
Implement the new National Acquisition Strategy.
Prepared Statement of Hon. John Boozman, Ranking Republican Member,
Subcommittee on Economic Opportunities
Good afternoon.
The last time we met to discuss VR&E was to hear from VA and
representatives of companies that contracted for counseling services.
At that hearing, Ms. Fanning testified that VA would, ``. . . solicit
new contracts in the Fall of 2009.'' I believe those contracts are not
yet in place and I believe VA is still negotiating with vendors to
close out costs related to the counseling contracts terminated last
summer. At the same time, VA proposed to put temporary contracts in
place until the new national acquisition contracts were awarded. I look
forward to hearing from Ms. Fanning on the Department's progress in
both the short and long term counseling contracts.
The VR&E program is possibly the most flexible of all VBA benefit
programs. Counseling staffs have great latitude on how they design a
rehabilitation program and therein lies both the positives and
negatives of the program. On the positive side, veterans are eligible
for a nearly limitless approach to returning to the workforce or
enrollment in Independent Living. On the down side, there are sometimes
unrealistic expectations by veterans on what they believe should be
their course of rehabilitation. In short, I am very concerned about the
time it takes to enter into rehabilitation.
According to VA data, it takes on average, about 54 days to
determine eligibility, 118 days to develop a rehabilitation plan, and
200 days to find a job following completion of the customized
rehabilitation program. That's 372 days. That does not include the
average of 615 days spent completing the rehabilitation program which
brings the total average time in rehabilitation to employment to 987
days. Since about 90 percent of VR&E participants are enrolled in
degree programs, I understand the effect of long term education or
training on the average of 615 days in rehabilitation. But since the
vast majority of veterans are in college, I hope she will explain why
it take 118 days to send someone to school. Unfortunately, the VBA
annual benefits report does not show rehabilitation data by track and I
encourage Ms. Fanning and her bosses to make that change in the FY 2010
report.
I understand the staff has requested a post hearing briefing on
some details that Ms. Fanning has indicated in her written testimony
are not available. I hope the Department will put that briefing
together expeditiously. I yield back.
Prepared Statement of Ruth A. Fanning, Director,
Vocational Rehabilitation and Employment Service, Veterans Benefits
Administration, U.S. Department of Veterans Affairs
Madam Chairwoman, Ranking Member, and Members of the Subcommittee,
thank you for inviting me to appear before you today to discuss VA's
Vocational Rehabilitation and Employment (VR&E) program. In your
invitation, you noted that a growing number of returning Veterans are
entering the job market seeking employment, and that some face
obstacles securing employment, particularly those who desire to work
directly after service. Today, I will discuss the employment services
VA provides to Veterans, update you on the status of new VetSuccess
contracts, and discuss the VR&E staffing and initiatives supported by
Congress' appropriations. Many of the issues raised in your invitation
letter deserve further elaboration and quantitative analysis;
unfortunately, the process of retrieving, analyzing, and validating
these data could not be accomplished with appropriate due care while
still also providing you with a timely testimony. I will provide
complete responses for the record following the hearing.
Overview of Veteran Employment Services
VR&E's primary mission is to assist Veterans with disabilities that
are service related to prepare for and obtain sustainable employment.
Robust services are individually tailored to each Veteran's needs.
Services begin with a comprehensive evaluation to help Veterans with
understanding their interests, aptitudes, and transferable skills.
Next, vocational exploration focuses Veterans' potential career goals
with labor market demands, available training, and individual needs and
preferences. This process helps each Veteran make informed choices and,
with the help of his or her counselor, develop a roadmap--a
rehabilitation plan--to achieve those goals. A broad range of
employment services may be provided, from direct placement services and
short-term training to college training or self-employment. The goal of
every plan is to maximize the Veteran's transferable skills, match
interests and skill sets with labor market demands, ensure
compatibility of the job with disability issues--using adaptive
technology whenever possible--and help the Veteran enter the job market
at a level on par with his or her peer group and in a career position
in which he or she can thrive, even if disability conditions progress
or worsen.
Disabled Veterans and Servicemembers receive VR&E services from two
programs: Coming Home to Work (CHTW) and VetSuccess. The VR&E Coming
Home to Work program provides career and adjustment counseling during
and immediately following transition from active duty. This program
focuses on early intervention to help wounded warriors begin planning
and working toward their civilian career goals, reducing the risk of
homelessness, underemployment, or unsuitable employment after discharge
from the military. During transition, many Servicemembers and Veterans
want immediate employment to ease their transition back into civilian
life. VR&E partners with the Department of Defense (DoD) to help
Servicemembers obtain internships through the Nonpaid Work Experience
Program (NPWE), helping to build the Veterans' resumes and often
leading to competitive employment. In addition, VR&E partners with the
Department of Labor (DOL), whose Veterans' Employment and Training
Service's (VETS) REALifelines program assists with immediate
employment. Because many times these first jobs are ``transitional
employment,'' VR&E Service is also working closely with DOL to ensure
that their programs link Veterans with VR&E or the Post-9/11 GI Bill
services if needed to prepare for career employment. VR&E further
collaborates with DOL/VETS by ``hosting'' a DOL/VETS funded state
employee (Disabled Veterans Outreach Program specialist) at our
Regional offices and other points of entry. VA's focus is to provide
services that will allow Veterans to accept the first ``transitional
job'' while also planning for their long-term career, ensuring long-
term stability and upward mobility commensurate with each individual's
skill sets and interests.
Specific employment assistance includes:
Direct job placement services, from development of a
resume and interviewing skills to connections to employers offering
employment that is a match for the Veteran's skill sets;
Training ranging from internships, on-the-job apprentice
programs, certificate training to supplement existing skills,
vocational training, and college training;
Self-employment assistance, to include evaluating and
refining business plans, training in managing independent businesses,
consultation services with small business experts, and support of some
start-up costs for the most seriously disabled Veterans;
Outreach to government, private sector, non-profit, and
faith-based organizations to market Veteran employment at the
individual and corporate level, including education about special
hiring authorities, special employer incentives, tax credit programs,
and the positive benefits of hiring Veterans;
A specialized Web site, VetSuccess.gov, that includes job
postings specifically targeted for Veteran applicants and access to a
larger job board of over 500,000 job listings. The Web site also
includes links to job resources, resume development tools, and search
capabilities for Veterans and employers using the site.
Of equal importance, VR&E's VetSuccess program helps very seriously
injured Veterans to live as independently as possible at home and in
their communities. For those Veterans whose disabilities are too severe
to make employment feasible, VR&E provides a wide range of independent
living services, including volunteer work placement, public
transportation, life-skills coaching, counseling, and other services.
To the extent possible, these services are integrated into employment
plans. When necessary, VR&E provides independent living services with
the ultimate goal of assisting each Veteran, to the extent possible, to
enter into an employment plan that is a match for him or her--whether
volunteer, part-time, supported employment, or competitive full-time
employment.
Status of New VA VetSuccess Contracts
Over the past year, VR&E Service has worked in close collaboration
with VA's Office of Acquisition, Logistics, and Construction (OALC) to
develop and solicit a new performance-based contract. The solicitation
was issued, and proposals were received and are currently being
evaluated. Award of new contracts is anticipated in August or September
2010, with performance by new contractors commencing 90 days post-
award. In preparation for award and contract administration, VR&E and
OALC will provide formal training for the Contracting Officer Technical
Representatives, Contract Specialists, and Ordering Officers, and
conduct a formal kick-off and training session for successful vendors.
VR&E Service is also working with the Office of Resource Management to
develop automated invoice, referral, and tracking tools, anticipated
for completion prior to contract award.
VR&E Staffing and Initiatives
VR&E's current staff of over 1,100 employees around the country
provides extensive outreach services through the Disabled Transition
Assistance Program (DTAP) and Coming Home to Work programs. These
services include comprehensive employment and independent living
services, and important support to participants in VA education
programs. Program participants may receive career counseling and help
to overcome barriers and support completion of their education
programs. Through the VetSuccess on Campus pilot program, the full
scope of benefits assistance and referrals is available for Post-9/11
GI Bill and other Veteran-students. The VetSuccess on Campus program
began as a pilot at the University of South Florida and was recently
expanded to San Diego State and Cleveland State Universities. VA plans
near-term expansion to additional sites and has identified potential
sites for consideration. Next steps include confirming available space
on campus and negotiating MOUs with the schools.
In order to adapt to shifts in workloads due to deployments of
Reserve and National Guard units, quickly meet the specialized needs of
the most seriously disabled Veterans, provide community-based services
to Veterans in remote areas, and fill the gap when staffing shortages
occur so that timely services are not affected, VR&E is also supported
with contract funding. During the FY 2010 budget formulation, an
additional $8 million in General Operating Expenses (GOE) funding was
allocated to support the VR&E program. In FY 2011, an additional $8.3
million in GOE funding has been requested to support services for
Veterans in the VR&E program.
VR&E Service is also working very hard to develop new solutions
that will further enhance employment and independent living services.
Among these, we are equipping staff through the development of desk-top
training; developing testing methods that support face-to-face
counseling using secure and user-friendly technology; and conducting a
top-to-bottom business process reengineering initiative to streamline
and simplify service delivery--easing entry into, and use of, benefits
for Veterans and focusing VR&E staff on core service delivery tasks.
Conclusion
Now, more than ever, the employment needs of Veterans are an urgent
priority to VA. VA is showing leadership through our involvement in
implementing the President's government-wide hiring initiative, serving
not only as one of the leaders with the Office of Personnel Management
and DoD in developing this initiative, but also as a leader in the
hiring of Veteran employees. VR&E is pivotal to the success of this
initiative, actively working with government agencies and departments
to increase employment of Veterans with disabilities. VR&E is leading
through the development of a national job board on VA's VetSuccess.gov
Web site, with continual expansion of this site underway. VR&E is
actively collaborating with businesses in all sectors to identify
employment opportunities, particularly with those sectors with deficits
of qualified applicants. VR&E is working to strategically understand
future job trends to assist Veterans to match their career plans with
future job-market demands. Finally, VR&E is working to use effective
tools and innovations to meet the needs of transitioning
Servicemembers--reaching out early, developing effective contracts,
maximizing important partnerships with DOL and other government and
non-government partners, and leveraging technology for training, case
management, and Veteran employment tools.
Madam Chairwoman and Members of the Subcommittee, this concludes my
statement. I would be pleased to answer any questions you may have.
Statement of Hon. Raymond M. Jefferson, Assistant Secretary,
Veterans' Employment and Training Service, U.S. Department of Labor
Madam Chair, Ranking Member Boozman, and Members of the
Subcommittee:
Thank you for your invitation to provide testimony about the
collaborative efforts and partnership between the Department of Labor's
(DOL) Veterans' Employment and Training Service (VETS) and the
Department of Veterans Affairs' (VA) Office of Vocational
Rehabilitation and Employment Service (VR&E).
As your invitation noted, a growing number of returning Veterans
are entering the job market seeking employment, and some face obstacles
securing employment, particularly those who desire to work directly
after service. DOL is firmly committed to helping Veterans and their
families find opportunities for upward mobility.
VETS and VA are working closely to meet Veterans' employment needs
and fulfill President Obama's promise of restoring our Nation's sacred
trust with Veterans. DOL has a strong relationship with Secretary
Shinseki, Deputy Secretary Scott Gould and VR&E Director Ruth Fanning.
VETS
VETS proudly serves Veterans and transitioning Servicemembers by
providing resources and expertise to assist and prepare them to obtain
meaningful careers, maximize their employment opportunities and protect
their employment rights. Our programs are an integral part of Secretary
Solis's vision of ``Good Jobs for Everyone.''
We have four main programs at VETS that serve Secretary Solis' goal
of providing ``Good Jobs for Everyone'' and that we are working to
improve:
The Jobs for Veterans State Grants;
The Transition Assistance Program Employment Workshops;
The Homeless Veterans' Reintegration Program; and
The Uniformed Services Employment and Reemployment Rights
Act.
VETS collaboration with VA's VR&E
Currently, VETS is collaborating with VR&E services by working in
partnership with the States to post Disabled Veterans' Outreach Program
(DVOP) specialists in all 57 VA Regional Offices or alternative VR&E
sites. This will improve access to VETS' services by VR&E participants.
VETS' primary interface with the VR&E program is through the
workforce investment system. Accordingly, VETS continues to work in
partnership with its Jobs for Veterans State Grant recipients on behalf
of VR&E job-ready Veterans. These Veterans are referred to and
registered with the State workforce agencies for intensive employment
services. As a result, the State grantees for VETS and VR&E are
coordinating with the interagency initiatives underway at the national
level. Most of these VETS grantees and their VR&E counterparts have
updated their local written agreements.
VETS also partners with VR&E through our Recovery and Employment
Assistance Lifelines (REALifelines) program. REALifelines provides one-
on-one services to our wounded warriors to ease their transition into
civilian employment. We have special REALifelines coordinators
stationed at military treatment facilities on a full-time basis who
provide services to wounded, ill, or injured personnel. VR&E has also
been an active participant in DOL's America's Heroes at Work
Initiative, which focuses on engaging businesses in the employment of
returning Servicemembers with post-traumatic stress disorders (PTSD)
and traumatic brain injuries (TBI).
Additionally, VETS and VR&E jointly established a new position,
Intensive Service Coordinator (ISC), for the Disabled Veterans'
Outreach Program specialist who is stationed at a VR&E location. Unlike
mainstream clients who receive employment and training services through
One-Stop Career Centers, the ISC position was created to provide a
specialist to work directly with VR&E clients and to coordinate with
the VR&E case management team. The ISC provides Labor Market
Information (LMI) to ensure that the disabled Veteran is placed in a
training program that meets the employment demand in their location of
residence. In addition to the customized service and LMI, VETS
participates in the development of the individual's rehabilitation
plan.
Memorandum of Agreement (MOA) between DOL and VA and the Joint Working
Groups
The partnership between DOL and VA is solidified by a Memorandum of
Agreement between the two agencies, first signed in 1996. This
partnership enables disabled Veterans to receive the full complement of
services available from both agencies without overlap or delays. In
addition, VETS and VA are continually looking for opportunities to
collaborate in offering better services for employment opportunities
and placements for service-connected disabled Veterans who participate
in VR&E.
In 2005, VETS and VR&E updated the Memorandum of Agreement
outlining the process--and responsibility--to work together to maximize
the services both agencies provide to disabled Veterans and their
dependents.
Ensuring successful job placement and adjustment to employment for
disabled Veterans
VETS and VR&E are collaborating to develop a tool that will track
quarterly data and annual fiscal year data to assure quality and
consistency of our programs. The data will include:
Number of job-ready Veterans referred from VR&E to local
employment offices for intensive employment assistance;
Number and registration rates of Veterans referred to the
local employment offices for services;
Number and entered employment rates of Veterans who
registered with local employment offices; and
Average entry hourly wage for those who entered
employment.
As previously mentioned, the VETS Intensive Service Coordinator now
exists to ensure that the disabled Veteran is referred to the Local
Veterans Employment Representative or Disabled Veterans' Outreach
Program specialist in his/her geographic area to work with that Veteran
to find suitable employment.
We are working to ensure that Veterans have access to the programs
of their choice. Later this month, we are meeting to determine how VETS
can support VR&E's VetSuccess program to promote greater employment of
that program's participants.
We will continue to support VR&E in their redesign of the Disabled
Transition Assistance Program, through a contract recently entered with
a Service Disabled Veteran Owned Small Business. We applaud VR&E in
this effort. At VETS, we are also modernizing and transforming the
Transition Assistance Program (TAP). We have reviewed external
assessments and stakeholder feedback regarding TAP's performance and
ways to improve the program. In an effort to increase program
effectiveness and improve participant outcomes, we are working to
redesign the workshops to make them more relevant and engaging for
participants.
Conclusion
Every day, we are reminded of the tremendous sacrifices made by our
servicemen and women, and by their families. One way that we can honor
their sacrifices is by providing them with the best possible services
and programs our Nation has to offer. Secretary Solis and I believe
strongly that Veterans deserve the chance to find good jobs and VETS
works closely with the Department of Defense and the Department of
Veterans Affairs to help them get there.
VETS will focus on serving disabled Veterans who participate in the
VR&E program. Our goal is to provide every VR&E client with the needed
employment services and support for a timely transition into suitable
career employment.
VETS holds VA's VR&E service in high regard. We look forward to
continuing our close and dynamic relationship for the betterment of our
Nation's Veterans. Thank you for the opportunity to provide this
testimony.
Statement of Catherine A. Trombley, Assistant Director,
National Economic Commission, American Legion
Madame Chairwoman, Ranking Member and distinguished Members of the
Subcommittee, thank you for the opportunity to submit the views of The
American Legion regarding the ``Status of Vocational Rehabilitation and
Employment Programs.''
Since the 1940s, VA has provided vocational rehabilitation
assistance to veterans with disabilities incurred during military
service. The Veterans Rehabilitation and Education Amendments of 1980,
Public Law (PL) 96-466, changed the emphasis of services from training,
aimed at improving the employability of disabled veterans, to helping
veterans obtain and maintain suitable employment and achieve maximum
independence in daily living. Vocational Rehabilitation and Employment
(VR&E) program employment goals are accomplished through training and
rehabilitation programs authorized under Chapter 31 of title 38, U.S.
Code. Title 38 provides a 12-year period of eligibility after the
veteran is discharged or first notified of a service-connected
disability rating. To be entitled to VR&E services, veterans must have
at least a 20 percent service connected disability rating and an
employment handicap or less than a 20 percent disability and a serious
employment handicap.
The VR&E program's mission is to help qualified, service-disabled
veterans achieve independence in daily living and, to the maximum
extent feasible, obtain and maintain suitable employment--goals which
The American Legion fully supports. As a nation at war, there continues
to be an increasing need for VR&E services to assist Operations Iraqi
Freedom and Enduring Freedom veterans in reintegrating into independent
living, achieving the highest possible quality of life, and securing
meaningful employment.
The success of the rehabilitation of our disabled veterans is
determined by the coordinated efforts of every federal agency
(Department of Defense, VA, Department of Labor, Office of Personnel
Management, Department of Housing and Urban Development, etc.) involved
in the seamless transition from the battlefield to the civilian
workplace. Timely access to quality health care services, favorable
physical rehabilitation, vocational training, and job placement play a
critical role in the ``seamless transition'' of each veteran, as well
as his or her family.
Administration of VR&E and its programs is a responsibility of the
Veterans Benefits Administration (VBA). Providing effective employment
programs through VR&E must become a priority. Until recently, VR&E's
primary focus has been providing veterans with skills training, rather
than providing assistance in obtaining meaningful employment. Clearly,
any employability plan that doesn't achieve the ultimate objective--a
job where the veteran succeeds despite his or her disabilities--is
falling short of actually helping those veterans seeking assistance in
transitioning into the civilian workforce and of VR&E's mission.
Eligible veterans who are enrolled into the education and training
programs receive a monthly allowance to offset living costs associated
with attending training while not working. Yet, those veterans enrolled
in VR&E for direct employment assistance do not receive a monthly
living stipend. However, they attend workshops to learn how to write
resumes, work on interview skills and attend job fairs, all of which
take time--372 days on average, according to VA data; 54 days to
enroll, 118 days to develop a rehabilitation plan and 200 days to find
a job after the plan has been executed. Anyone who has started a new
career knows looking for a job can be a full-time job in itself. Not
providing a living stipend for veterans seeking direct employment
services through VR&E could lead those veterans to a different track
and they may miss out on meaningful employment. The American Legion
strongly urges Congress and VA leadership to approve a living stipend
to all who are enrolled in VR&E regardless of whether their
rehabilitation plan calls for training or direct employment.
Another problem hindering the effectiveness of the VR&E program, as
cited in reports by the Government Accountability Office (GAO), is
exceptionally high workloads for the limited number of staff. This
hinders the staff's ability to effectively assist individual veterans
with identifying employment opportunities. A recent GAO report noted
that 54 percent of all 57 regional offices stated they have fewer
counselors than they need and 40 percent said they have fewer
employment coordinators than they need. As in the past, achieving ample
staffing in VR&E is a major concern, especially with recent numbers
stating that each VA counselor maintains a case load of 145 veterans.
With 145 cases to manage, counselors simply do not have the time it
takes to teach veterans how to apply to Federal jobs or to build the
community connections to help veterans find jobs.
The jobless rate for OIF/OEF veterans between the ages of 18 to 24
was 21.1 percent in 2009. Furthermore, the Department of Labor reports
one in three veterans under 24 is presently unemployed--and the
unemployment rate for Iraq and Afghanistan veterans has jumped to 14.7
percent, half again as high as the national unemployment rate of 9.7
percent. Without sufficient staffing, the success of VR&E programs
becomes extremely challenging, particularly due to the returning
veterans from Iraq and Afghanistan and their more complex cases. Hiring
more staff to meet the demands of these veterans is simply a must. The
American Legion completely supports fully staffing VR&E with more
vocational rehabilitation counselors and employment coordinators to
lower case loads so these counselors/coordinators can provide more
individualized attention to veterans throughout training and assist
them in finding suitable employment.
Vocational counseling also plays a vital role in identifying
barriers to employment and matching veterans' transferable job skills
with those career opportunities available for fully qualified
candidates. Becoming fully qualified becomes the next logical objective
toward successful transition. Veterans' preference should play a large
role in vocational counseling as well. The Federal Government has
scores of employment opportunities that educated, well-trained, and
motivated veterans can fill, given a fair and equitable chance to
compete. Working together, all Federal agencies should identify those
vocational fields, especially those with high turnover rates, suitable
for VR&E applicants. Career fields like information technology, claims
adjudications, and debt collection offer employment opportunities for
career-oriented applicants that also create career opportunities
outside the Federal Government.
CONCLUSION
No VA mission is more important at this time in our history--given
the Nation's involvement in two wars and the uncertain economic
situation--than enabling America's veterans to have a seamless
transition from military service to the civilian workforce.
The success of the VR&E program will significantly be measured by
these veterans' ability to obtain gainful employment and achieve a high
quality of life. To meet America's obligation to these service-
connected veterans, VA leadership must continue to focus on marked
improvements in case management, vocational counseling, and most
importantly, job placement.
VR&E's services are more critical than ever based upon more than
33,000 servicemembers being injured in Iraq and Afghanistan since 2001.
The American Legion strongly supports VR&E programs and is committed to
working with VA and other Federal agencies to ensure America's wounded
veterans are provided with the highest level of service and employment
assistance.
Again, thank you for the opportunity to submit the opinion of The
American Legion on this issue.
Statement of Ann Neulicht, Chairwoman,
Commission on Rehabilitation Counselor Certification
Madam Chairwoman and Members of the Subcommittee, thank you for
inviting me to present testimony related to the Vocational
Rehabilitation and Employment (VR&E) Programs. We appreciate the
opportunity to provide this written testimony, as the Commission on
Rehabilitation Counselor Certification (CRCC) was unable to make
arrangements to provide verbal testimony. My testimony will highlight
the continued need for qualified services through the VR&E programs,
including the VR&E National Acquisition Strategy (NAS) contracts, and
how Certified Rehabilitation Counselors (CRCs) are uniquely qualified
to provide services to veterans.
CRCC Supports the Benefits of the VR&E Programs
CRCC's mission is to promote quality rehabilitation counseling
services to persons with disabilities through the certification of
rehabilitation counselors and to provide leadership in advocating for
the rehabilitation counseling profession. Veterans who have a service-
connected disability are a growing population of individuals who
receive essential career and independent living services from VR&E
programs. They need services from those who are uniquely qualified to
provide effective vocational rehabilitation services so that veterans
may transition from military service to suitable employment or, for
those who with severe disabilities who are unable to work, to
independent living. We understand the VR&E to be conscientious about
continually assessing its programs and services to ensure that veterans
are receiving quality services from the point of initial evaluation to
the end goal of suitable employment or independent living.
CRCs are uniquely qualified to provide the full range of services
provided by VR&E including:
comprehensive rehabilitation evaluation to determine
abilities, skills, interests, and needs
vocational counseling and rehabilitation planning
employment services such as job-seeking skills, resume
development, and other work readiness assistance
assistance finding and keeping a job, including the use
of special employer incentives
if needed, training such as On the Job Training (OJT),
apprenticeships, and non-paid work experiences
if needed, post-secondary training at a college,
vocational, technical or business school
supportive rehabilitation services including case
management, counseling, and referral
independent living services
Overview of the CRC Certification Program
Incorporated in 1974, CRCC is the world's largest rehabilitation
counseling organization, currently certifying over 16,500 CRCs. Our CRC
certification program has maintained long-standing national
accreditation by the National Commission for Certifying Agencies, which
demonstrates that our certification program meets the rigors of the
best practice standards established by the industry. The majority of
our applicants have a master's degree specifically in rehabilitation
counseling with current eligibility criteria requiring a minimum of a
master's degree in counseling including key course work in both
rehabilitation/disability and counseling content along with
experiential requirements. In addition to meeting eligibility criteria
that include course work and experiential requirements, individuals
must pass our national Certified Rehabilitation Counselor Examination
(CRCE). The exam tests knowledge with regard to both rehabilitation/
disability and counseling. Individuals must achieve a passing score on
both sections of the exam in order to pass the exam as a whole. Those
who achieve CRC certification demonstrate that they have met the
national standard for rehabilitation counseling and have the unique
skills to assist individuals with disabilities as they seek re-
employment with a previous employer, rapid access to employment through
job-readiness preparation, self-employment, employment via long-term
training and education, and services to maximize independence in daily
living for those unable to work. Once certified, individuals must
demonstrate continued skill development through a program of continuing
education or may take the CRCE, which is continually updated based on
empirical research. CRCs must also abide by the Code of Professional
Ethics for Rehabilitation Counselors, which mandates ethical behavior
and supports best practices.
VR&E's National Acquisition Strategy Contracts
Although our direct knowledge of the success of the NAS contracts
is limited, CRCC has anecdotal information that supports a need for
restructuring the program. We believe that an essential component of an
outsourcing arrangement such as the NAS contracts is to identify and
select appropriate individuals who are capable of providing quality
services in a timely manner. We believe that CRCs are those uniquely
qualified individuals who have the requisite skills and knowledge in
order to provide quality career and independent living services. We
understand, however, that requirements for those providing contract
services were not aligned with the specific education and course work
that highly qualified and skilled CRCs possess. Whether as part of the
NAS contracts or for primary staff, we would urge the VA to maintain
high standards by aligning hiring standards to be inclusive of CRCs who
are specifically trained in working with individuals with disabilities,
such as the veteran population.
Funding and Improvements
Whether VR&E directly hires or contracts work, in order for
qualified individuals to be interested in employment opportunities
through the VA, the compensation must be adequate in order to compete
with other employment opportunities. The VA is viewed as an employer of
choice for many of our CRCs due to the fact that the VR&E programs
provide them with the ability to provide the full scope of
rehabilitation counseling services for which they are trained.
Continuing to offer favorable pay and benefits as well as supporting
their continuing education needs will allow VR&E to remain an employer
of choice. Again, anecdotally, we understand that contractors were
being offered less than desirable rates for contract work under the NAS
contracts. VR&E must be funded in a manner that will allow them to
support competitive wages for contractors, whether directly or
indirectly through choice of vendors. Another opportunity for
improvement that has been expressed anecdotally is with respect to the
streamlining of paperwork so as to eliminate duplicative reporting and
tracking. Doing so will allow employees and contractors to focus their
efforts on providing quality and timely services resulting in optimal
outcomes for veterans and for VR&E.
Concluding Remarks
Given the increasing demand for services for the many deserving
veterans, CRCC fully supports the continuing need for the VR&E
programs, their continued development and funding, and the advancement
of hiring standards to recognize CRCs in both paid staff positions and
for contracted work where rehabilitation counseling services are
provided to individuals with disabilities. The population of veterans
is not only increasing but the severity of disabilities is also
increasing. It is important that quality services be provided by those
who are uniquely qualified to provide them--Certified Rehabilitation
Counselors.
Madam Chairwoman, this concludes my written testimony. I would be
pleased to respond to questions from you or any of the other Members of
the Subcommittee.
Statement of Paralyzed Veterans of America
Chairwoman Herseth Sandlin, Ranking Member Boozman, and Members of
the Subcommittee, Paralyzed Veterans of America (PVA) would like to
thank you for the opportunity to submit testimony concerning the issue
of the Department of Veterans' Affairs (VA) Vocational Rehabilitation
and Employment Program (VR&E). The Global War on Terror has produced a
large number of men and women that have served the country and have
returned to civilian life with one or more physical and or
psychological wounds that creates barriers to entry, or reentry into
the civilian workforce. PVA would like to thank Congress and this
Subcommittee for all the support they put forth to help these disabled
veterans and all veterans make this transition successful.
The purpose of the VR&E program as authorized under Chapter 31 of
Title 38 U.S.C. is to provide comprehensive services to address the
employment barriers of service-connected disabled veterans in an effort
to achieve maximum independence in daily living, and to obtain and
maintain gainful employment. VR&E also provides services to severely
disabled veterans with a goal towards helping them achieve the highest
quality of life possible, including future employment when feasible.
Currently, to be eligible for VR&E, the veteran must have been
discharged under circumstances other than dishonorable; have a
disability rating or memo rating of 10 percent or more, which was
incurred in, or aggravated by such service, and be in need of
vocational rehabilitation to overcome employment barriers caused by
such service-connected disability. VR&E provides for 48 months of
entitlement and the program may be utilized within 12 years from the
date of initial VA disability rating notification, with an exception
for those with a serious employment handicap.
During the process of testing, evaluating, and preparation of the
rehabilitation plan for each qualified veteran, the VR&E program often
uses contracted suppliers of these services to supplement their work
load. The VA claim's that this is the only possible option available to
address the needs of veterans in remote geographic areas and provide
some of the support functions such as administrating testing
procedures. In an effort to address and administrate the contracting
process the VA developed the National Acquisition Strategy (NSA), which
had problems from the beginning. These problems, as discussed in a
previous hearing of this Subcommittee, were the result of a
misunderstanding of expected goals, and inadequate performance on
behalf of parties, VR&E services and the contractors.
PVA still questions the use of contractors to perform the
individual one-on-one work with veterans. We are concerned that this
one-on-one work with the veteran is being contracted out in order for
the trained VA counselor to have time to complete required VA paper
work. This is what we have been told by veterans familiar with the
program. If this in fact is true, then this is certainly not the best
use of the experienced VA counselor. Nonetheless, the VA claims that
contracting out for services is necessary for VR&E to adequately serve
all veterans.
Based on recent discussions with VR&E central office staff, PVA
believes the contracting process for services is improving. All current
and future contracting for services involves a clear understanding of
the responsibilities as defined for both parties. In the future if PVA
hears of problems with VR&E contracting services, or veterans not being
served, we will share this information with the Subcommittee.
One issue that PVA service officers have brought to our attention
is that every VA office interprets the regulations pertaining to the
vocational rehabilitation program differently. This fosters
inconsistent case management and a lack of accountability. Recently a
spinal cord injured veteran participating in the vocational
rehabilitation program had problems with punctual attendance for the
prescribed program at a VA facility. This was due to a physical and
medical condition related to his injury. The veteran was expelled from
the program, against the veteran's wishes, because of his late
arrivals. PVA believes this was a strict interpretation of the
regulation for participation in the program. The veteran has a serious
disability, and still wants to work! The VA should work with the
veteran, not against the veteran.
VR&E should be more flexible with providing programs for veterans.
The goal should be employment whenever possible, not just completing a
prescribed course. This should include educational programs and
nondegree employment training programs. Moreover, the VA should ensure
that the training options offered through VR&E are compatible with the
current 21st Century workplace.
Congressional funding for the VR&E programs must keep pace with
veterans' demand for this service. Our veterans have made a sacrifice
for our Nation, which is why our leaders must make a concerted effort
to ensure that access to education, employment, and training
opportunities are available for their transition to the civilian job
market. There is a need for increased funding for staffing for VR&E
including the Independent Living (IL) Program. The current counselor to
client ratios is approximately 120 or 130 veterans to one counselor.
This unacceptable ratio puts great pressure on the counselor and
negatively impacts the effort spent with each veteran. The severely
injured veteran requires more time and attention. With many seriously
injured servicemembers returning from Iraq and Afghanistan who will
need this assistance, PVA believes the funding should be increased.
Veterans should never be discouraged from participating in VR&E.
Although this keeps the demand for services at a lower level, it is not
reflective of the current true demand for these services. Increased
funding for the Independent Living program is a necessity. Many
veterans that could qualify for the IL program are never informed of
this option. This keeps the number of new participants to a minimum.
The current cap on the IL program should be removed immediately. The IL
program never exceeds the cap, or comes close to that number. The cap
was placed on IL because it was classified as a pilot program, and the
cap would allow VA to better monitor and evaluate the program. This
peacetime cap which received a slight increase recently, is almost
unimaginable during a period of extended conflict.
One problem with the VR&E program that the co-authors of The
Independent Budget discuss in that publication is the 12 year limit on
eligibility. The disability that a veteran has incurred has no time
limit on the restrictions that it imposes on the veteran.
Unfortunately, as time progresses many conditions may worsen and
increase those limitations caused by the disability. Some new veterans
of the current conflict are suffering injuries early in their military
careers. Many by the age of 19 or 20 years old received an injury that
renders them unable to continue to perform in their service
occupations. This places the veteran out of the military, unfit for
employment in the civilian work environment, and dealing with the
emotional difficulty of their injury and perhaps suffering from Post
Traumatic Stress Disorder (PTSD). During this time the veteran's
eligibility is expiring as they try to reevaluate their life. In some
situations it may take 10 to 15 years before the veteran is ready to
even consider employment.
A problem that PVA service officers from various regions of the
country have reported is that the VA counselors try to persuade the
veteran not to get involved with vocational rehabilitation. The
delimitation occurs when the veteran is rated at 50 to 60 percent
disabled, or greater. If the veteran expresses a desire for
rehabilitation to perhaps some day become employed, the counselor often
persuades them that they are too disabled to work and that they should
resubmit a claim to increase the percentage of disability. With this
advice coming from the experienced VA counselor most veterans in this
situation are reluctant to pursue the VR&E program. PVA believes that
any disabled veteran that has an interest in future employment should
be encouraged and supported to pursue this interest, not discouraged
from this option.
A crucial issue that is discussed in The Independent Budget is the
lack a subsistence allowance for those attending the VR&E program.
Although preliminary numbers do not show a large detraction from VR&E
participants by the new GI Bill, it is obvious that many will not
select the VR&E, or later dropout of the program to enroll in the GI
Bill because of the living allowance that is included in that program.
Congress should enact legislation to authorize a subsistence allowance
that is equivalent to the allowance in the GI Bill.
Chairwoman Herseth Sandlin, Ranking Member Boozman, and Members of
the Subcommittee, this concludes our written testimony. We will be
happy to work with this Subcommittee in the future as it continues to
address the oversight of the VR&E program.
Statement of Eric A. Hilleman, Director, National Legislative Service,
Veterans of Foreign Wars of the United States
MADAM CHAIRWOMAN, RANKING MEMBER BOOZMAN, AND MEMBERS OF THIS
COMMITTEE:
On behalf of the 2.1 million members of the Veterans of Foreign
Wars of the United States and our Auxiliaries, the VFW would like to
thank this committee for the opportunity to present its views on this
very timely issue.
The VA's Vocational Rehabilitation and Education (VR&E) program is
first and foremost an employment program. We must consider how a VR&E
program of the 21st Century will best serve the influx of service-
disabled veterans by preparing them sustainable careers. The current
economic downturn is creating new challenges for injured veterans and
to VR&E. We must have career-focused programs that focus on the ever-
changing needs of service-connected disabled veterans.
Simply put, VR&E needs to be flexible in providing the training
(and in some cases retraining) and education necessary to allow
disabled veterans to achieve their short and long-term career goals.
Conversely, VR&E also needs to be adaptable in assisting disabled
veterans to overcome the obstacles created by changing job markets--
brought on by corporate downsizing, small business closures and
economic uncertainty. To be truly effective, the program must be
focused on a goal of avoiding disability-related unemployment later in
life.
This generation of injured veterans is unique in that they survived
injuries that just a generation ago would have been fatal. Regardless
of the severity of injury, the VR&E program of the future must adapt to
their needs, give them every opportunity to succeed both personally and
professionally, with the highest level of independence possible.
VR&E BRIEF OVERVIEW
The sole purpose of the Veterans Benefits Administration's VR&E
program, as authorized under Chapter 31 of 38 U.S.C., is to provide
comprehensive services to address the employment handicaps of service-
connected disabled veterans in an effort to achieve maximum
independence in daily living, and to obtain and maintain gainful
employment. Furthermore, VR&E provides services to severely disabled
veterans with a focus on helping them achieve the highest quality of
life possible, including future employment when feasible.
In 1918, Congress passed the Vocational Rehabilitation Act to
increase the probability for a seamless transition into suitable
employment that is consistent with a qualifying veteran's competencies
and interests through successful rehabilitation. This program was
administered by the Federal Board for Vocational Education. On August
24, 1921, VR&E was transferred to the soon-to-be created Department of
Veterans Affairs. Legislation would later expand VR&E, specifying that
any eligible veteran may receive up to 4 years of training specifically
directed to rehabilitation and the restoration of employability.
VR&E eligibility is based on a veteran being separated with a
higher than dishonorable discharge rating; have a disability rating of
10 percent or more; and be in need of vocational rehabilitation to
overcome employment handicaps caused by such service-connected
disability. A veteran is eligible for maximum of 48 months of education
entitlement (any of which may be used in VR&E), and the program must be
completed within 12 years from the date of disability rating
notification from VA, with an exception for those with a serious
employment handicap.
The process begins when a case manager is assigned to the veteran.
The case manager works with a Vocational Rehabilitation Counselor (VRC)
to determine the extent of a disabled veteran's employment handicap(s).
A rehabilitation plan is developed by the VRC and the veteran outlining
goals of the VR&E program and the means they will be achieved. The VRC
and the case manager then help the veteran for up to 18 months through
ongoing case management to achieve the goals of the agreed upon written
plan for employment or independent living. Services provided include,
but are not limited to, referrals for medical and dental services,
coordination of training allowances, education counseling for children
and spouses of veterans who have a permanent and total service-
connected disability, testing for aptitude, and tutorial assistance.
Under the current VR&E program, a veteran whose eligibility and
entitlement have been established must not only complete the
rehabilitation plan, but he or she will also be tracked to attainment
of suitable employment based on the plan's goals. This is called the
``Five-Track Service Delivery System.'' The five tracks are:
1. Re-employment: Helps veterans and members of the National Guard
and the Reserves return to jobs held prior to active duty.
2. Rapid Access to Employment: Emphasizes the goal of immediate
employment, and is available to those who already have the skills to
compete in the job market in appropriate occupations.
3. Self-Employment: For veterans who have limited access to
traditional employment, who need flexible work schedules or a more
accommodating work environment because of their disabling conditions or
other special circumstances.
4. Employment through Long-Term Services. Assists veterans who
need specialized training or education to obtain and maintain suitable
employment.
5. Independent Living Services. For veterans who may not be able
to work immediately, and may need additional rehabilitation to enable
them to live more independently.
From its inception, VR&E has adapted to better reflect veterans'
current circumstances. For example, we applaud this Subcommittee for
increasing the cap on the number of veterans eligible for the
Independent Living track.
How ``successful rehabilitation'' is defined has evolved, too.
Before 1980, completion of a training program for suitable employment
and not actual job placement was considered a success. This was
identified as a problem area and has been improved. Furthermore, in
partnership with the Department of Labor, employers, and other relevant
federal agencies have made increased employment opportunities for
program participants. Finally, outreach and early intervention efforts
have been expanded and integrated into the U.S. Army Wounded Warrior
Program, the Marine Wounded Warrior Battalion, the Navy's Safe Harbor
program, and the Air Force Wounded Warrior commands.
VFW's VISION FOR VR&E
With the advent of the Post-9/11 GI Bill, hundreds of thousands of
veterans are currently improving their career trajectory though
education. Their success is a direct result of Congress's decisive
action to completely overhaul the GI Bill. That same congressional
attention is needed for other veterans' training and education
programs.
The VFW envisions a VR&E for Life program, one that adapts to the
changing needs of the employment market and the evolving nature of the
individual veteran's disability. Our Nation's obligation to disabled
veterans is unparalleled. Our veterans have lifelong injuries and
disabilities; so, too, should their access be to valuable training and
education programs that will allow them to achieve higher levels of
independence, self-confidence and life-long career opportunities.
Remove the Delimiting Date for VR&E. Currently, the
delimiting date for VR&E is set to 12 years after military separation
or 12 years following the date of rating for a service-connected
disability. Eliminating VR&E's delimiting date would allow veterans to
access it on a needs basis for the entirety of their employable lives,
thus allowing retraining when necessary and lifelong access to VR&E
employment services.
Increase VR&E's Educational Stipend to Reflect Chapter
33. Chapter 33 provides a far more equitable living stipend that
reflects the real world costs. VR&E falls dramatically short of aiding
veterans with the real costs of living. For this reason, the VFW
strongly urges Congress to create a cost of living stipend that mirrors
the Chapter 33 stipend, which reflects the basic allowance for housing
of an E-5 with dependents rate, based on zip code.
Additional Assistance for Veterans with Dependents under
VR&E. The VR&E educational track provides insufficient support for many
veterans with dependents. Many seriously disabled veterans are unable
to pursue education or training options due to limited resources and
the immediate need to support their families. The VFW calls on Congress
to create a viable VR&E program to provide childcare services to those
veterans pursuing education and training.
Jump Start VR&E Enrollment. It can take months from the
date a veteran files for services under VR&E until he or she enters
into a training or education program. This is because VR&E requires
validation of entitlement, skill and interest assessment of the
veteran, and then authorization of the training or education program.
The VFW believes entrance into training or education should be implicit
once a veteran is deemed eligible. The skill and interest assessment
should serve solely to help a veteran better focus their efforts, not
as a pre-qualifier.
Measure Veterans Long-Term Employment Under VR&E.
Currently, the measure of success is the number of veterans gainfully
employed for a period of 60 days after completing a VR&E program. Such
a short-term measurement limits the VR&E program to short-term goals
instead of properly helping disabled veterans succeed for life. The VFW
urges Congress to redefine the VR&E program's goals to focus on the
long-term. It should be tracked if a disabled veteran becomes
unemployed at any point over their career. If the measure of success
was based on long-term employability, then VR&E placement officials
will give more credence to career options vice 60 days of employment.
Madam Chairwoman, this concludes my testimony. I will be pleased to
respond to any questions you or the members of your committee may have.
Thank you.
MATERIAL SUBMITTED FOR THE RECORD
Committee on Veterans' Affairs
Subcommittee on Economic Opportunity
Washington, DC.
May 13, 2010
Ms. Ruth Fanning
Director, Vocational Rehabilitation and Employment Service
Veteran Benefits Administration
U.S. Department of Veterans Affairs
810 Vermont Ave., NW
Washington, DC 20420
Dear Ms. Fanning:
I would like to request your response to the enclosed questions for
the record I am submitting in reference to our House Committee on
Veterans' Affairs Subcommittee on Economic Opportunity hearing on
Status of Vocational Rehabilitation and Employment Programs on May 6,
2010. Please answer the enclosed hearing questions by no later than
Friday, June 25, 2010.
In an effort to reduce printing costs, the Committee on Veterans'
Affairs, in cooperation with the Joint Committee on Printing, is
implementing some formatting changes for material for all full
committee and Subcommittee hearings. Therefore, it would be appreciated
if you could provide your answers consecutively on letter size paper,
single-spaced. In addition, please restate the question in its entirety
before the answer.
Due to the delay in receiving mail, please provide your response to
Ms. Orfa Torres by fax at (202) 225-2034. If you have any questions,
please call (202) 226-5491.
Sincerely,
Stephanie Herseth Sandlin
Chairwoman
JL/ot
__________
Questions for the Record
Chairwoman Herseth Sandlin
U.S. House of Representatives Subcommittee on Economic Opportunity
Hearing on Status of VR&E Programs
May 6, 2010
Question 1: What are some of the lessons learned from the last
National Acquisition Strategy?
Response: The following bullets outline lessons learned from the
last National Acquisition Strategy (NAS). Many of these lessons have
been incorporated into the new VetSuccess Contracts:
The NAS emphasized using as few contracts as possible.
This resulted in many teaming arrangements and small companies
partnering with subcontractors--in some cases, multiple subcontractors.
This strategy drove prices up and added administrative burden for both
VA and the contractors. In addition, it failed to fully value vendors
in the labor market with knowledge of local resources of the geographic
area to be served. Further, it required VA's Contracting Officer and
Vocational Rehabilitation and Employment (VR&E) Divisions to deal
directly with prime contractors to resolve problems with subcontractor
work, often adding significant complexity when the prime was not
familiar with the particular Veteran(s) cases or the prime was not
responsive to working with VA to resolve issues. This issue has been
corrected, and new awards will be made at the regional office level.
When the contracts were designed, a decision was made to
link minimum values to specific service packages, rather than a total
dollar value. This reduced the flexibility of offices to use contract
services based on need. In addition, minimum quantities were
overestimated, forcing VA in some regions to contract beyond necessary
quantities and creating the need to shift resources to maintain
efficiency. This issue has been corrected by conducting a structured
and thorough analysis of contract needs in each region.
During the initial evaluation and award phase, the
communication between the Office of Acquisition, Logistics, and
Construction (OALC) and the program office was flawed and resulted in
pricing issues not being properly identified. During the recompetition,
the information will be shared to ensure comprehensive evaluations are
conducted and potential issues readily identified.
Because the NAS encouraged teaming and subcontracting,
some vendors overextended their small companies to cover large regions
of the country. They had difficulty recruiting subcontractors and had
widespread timeliness and quality problems. In many cases, they refused
referrals, returning them weeks or months after referral. It appears
that these companies, although well intentioned, overextended
themselves, with the result being poor service to Veterans and an
inordinate amount of VA time spent attempting to resolve performance
problems. VA has resolved this issue by requiring vendors to identify
professional office locations and staff pre-award. In addition, VA
plans to award no more than three contracts to any one vendor; however
VA reserves the right to do so if technical and past performance
ratings indicate the capability of vendors to perform well.
During the NAS contracts, vendors complained of
nonpayment of deliverables when reports and bills were submitted, but
deliverables were not acceptable. This is corrected in the new contract
by implementing procedures that require VA to conduct quality reviews
of deliverables and accept or reject deliverables (with cause).
Invoicing may not occur until deliverables have been accepted.
Although extensive training was provided pre-performance,
some vendors complained of variance in referral formats, report
templates, and quality review processes. All of these processes have
been standardized in the new contracts.
One contracting officer, who was replaced immediately
following an award, oversaw the NAS contracts. This created a huge
burden on one individual to deal with widespread contractor performance
problems and respond to the needs of numerous Contracting Officer
Technical Representatives and field contracting specialists. The new
contracts are administered by a team of contracting officers and field
contracting specialists, who will be delegated administrative
contracting officer duties and can more timely resolve basic contractor
performance issues.
Some vendors complained that VA's invoicing system is not
automated. VA is working with the Austin Administrative and Loan
Accounting Center (ALAC) to develop an automated referral and invoicing
system that will allow vendors to view the status of billing and
provide VA with enhanced reporting and tracking of obligations,
expenditures, and invoices.
Question 2: Of the five Vocational Rehabilitation and Employment
program tracks, can you share with us the average number of days
veterans spend per track and the rehabilitation rate?
Response: The number of Veterans rehabilitated as employed this
fiscal year to date is 5,826. Of that number, 1,162 are independent
living cases. The national rehabilitation rate is 76.6 percent, which
exceeds the target goal of 76 percent. The national employment
rehabilitation rate is 73.3 percent, approaching the target goal of 75
percent. The national independent living rehabilitation rate is 93.4
percent, exceeding the target goal of 92 percent.
Since a Veteran can navigate through multiple tracks during his/her
rehabilitation plan, the rehabilitation rate is calculated based on the
type of rehabilitation plan a Veteran completes, not the track(s)
selected by the Veteran. Timeliness from when the Veteran signs a
rehabilitation plan to successful completion of the plan of service is
tracked; however, only current track selection is tracked due to the
fluidity of the selection process. The 5-Tracks to Employment model was
designed to re-emphasize the employment focus of the VR&E program and
not as a performance tool. The method for tracking timeliness and
rehabilitation rate is measured based on the type of plan of services
the Veteran completes.
The 5-Tracks of Employment model was implemented as a strategy to
enhance the program's clarity for Veterans and re-emphasize the
program's focus on employment. The language of the 5-Tracks of
Employment model is Veteran-friendly and helps to describe the types of
services the VR&E program provides more clearly for all stakeholders.
Each plan of service is individualized to meet the needs of each
Veteran, and the tracks of services are fluid and move within plans of
service.
Track selection occurs within three types of rehabilitation plans:
Individualized Written Rehabilitation Plan, Independent Living Plan,
and Employment Assistance Plan. The table below illustrates the 5-
tracks and how they fit within the 3 types of plans.
------------------------------------------------------------------------
5-Tracks to Employment Model
-------------------------------------------------------------------------
Employment
VR&E Re- Through Self- Independent Rapid
Service employment Long-term Employment Living Access to
Services Employment
------------------------------------------------------------------------
IWRP IWRP IWRP IILP IEAP
--------------------------------------------------------------
IEAP IEAP IEAP
------------------------------------------------------------------------
Plan of
Services
The Employment Track a Veteran begins may change during the life of
his or her program; therefore, tracking timeliness amongst tracks does
not illustrate the amount of time it takes to successfully complete a
plan of services. Successful completion of VR&E services is measured
based on the plan of services entered and timeliness is tracked per
plan of services rather than track selection.
Length of time to complete plan of services:
Individualized Written Rehabilitation Plan (IWRP)
FY 2009 Average Days to Rehabilitation: 1,094 (2.9
years)
FY 2010 to date Average Days to Rehabilitation: 1,085
(2.9 years)*
Individualized Independent Living Plan (IILP)
FY 2009 Average Days to Rehabilitation: 398
FY 2010 to date Average Days to Rehabilitation: 402*
Individualized Employment Assistance Plan (IEAP)
FY 2009 Average Days to Rehabilitation: 315
FY 2010 to date Average Days to Rehabilitation: 267*
* FY 2010 data are through May 24, 2010
The below table provides additional information about the types of
programs completed by Veterans who were successfully rehabilitated in
FY 2009.
------------------------------------------------------------------------
Veterans Successfully Rehabilitated Pre and Post Annual Earnings by
Occupational Category Fiscal Year 2009
-------------------------------------------------------------------------
Average Annual
Wages Prior to Average Annual
Types of Programs Total VR&E Program Wages at
Entrance Rehabilitation------------------------------------------------------------------------
Professional, Technical, 6,232 $7,522.27 $36,598.17
and Managerial
------------------------------------------------------------------------
Clerical 561 $5,238.31 $27,849.01
------------------------------------------------------------------------
Service 409 $5,757.86 $27,850.27
------------------------------------------------------------------------
Miscellaneous 300 $6,100.04 $31,384.80
------------------------------------------------------------------------
Machine Trades 253 $7,309.09 $30,712.41
------------------------------------------------------------------------
Structural (Building 195 $9,631.57 $33,249.72
Trades)
------------------------------------------------------------------------
Sales 164 $5,022.51 $28,657.39
------------------------------------------------------------------------
Benchwork 47 $5,114.04 $27,653.11
------------------------------------------------------------------------
Processing (Butcher, Meat 20 $5,896.80 $35,064.00
Processor, etc.)
------------------------------------------------------------------------
Agricultural, Fishery, and 32 $6,532.50 $21,217.13
Forestry
------------------------------------------------------------------------
Total 8,213 $5,664.44 Avg $32,374.60 Avg
------------------------------------------------------------------------
Question 3: What is the average amount of time spent by a Veteran
in an IL program and what is the maximum amount of time a Veteran can
be in the program?
Response: As of May 24, 2010, the average number of days a Veteran
spends pursuing a plan of independent living (IL) services is 402 days.
The length of time a Veteran spends in IL status varies depending on
severity of disability and type of services needed. An IL plan of
services can be written to cover a period of 24 months; however,
extensions of 6-month intervals can be granted upon approval of the
regional office VR&E Officer and Vocational Rehabilitation Panel. A
Veteran receiving over 36 months of independent living services must
have served on active duty during Post 9/11 Global Operations and have
a severe disability incurred or aggravated in such service.
Question 4: How is veterans' enrollment into the Vocational
Rehabilitation and Employment program being streamlined?
Response: VR&E is undertaking a business process re-engineering
(BPR) initiative that focuses on streamlining initial-evaluation and
case-management processes. The goal is to replace manual processes with
more automated processes that will increase efficiency and improve
service delivery. This includes corporate database enhancements. The
initial BPR will focus on the following areas:
Forms improvement and consolidation
Updated quality standards
Professional and administrative role analysis and
redesign
Caseload and staffing analysis
Knowledge management portal
Technology enhancements
Remote case-management requirements and protocols
Online appointment scheduling and automated
confirmation of appointments
Case-management portal requirements (business rules for
paperless processing)
A BPR exercise will be conducted with our national managers at the
VR&E Workload Management and Leadership Training Conference the week of
July 12, 2010. This exercise will focus on identifying other short and
long-term strategies to simplify the program for Veterans and
streamline administrative processing for VR&E staff. Initial progress
on streamlining the administrative processing will occur during the 4th
quarter of FY 2010.
Question 5: (a) What does the Independent Living Program's
rehabilitative plan process consist of? (b) Veterans are concerned that
they have waited several months to receive a finalized rehabilitative
plan. Why does the rehabilitative plan process take several months to
finalize? (c) How is the rehabilitative plan process being streamlined?
Response (a): Each Independent Living (IL) rehabilitation plan is
individually tailored to meet the Veteran's needs. The complexity of
the plan of services varies depending on the severity of disability,
extent of coordination of services with other VA and non-VA programs,
and participation of the Veteran. Prior to finalizing an IL plan of
services, the Veteran must complete the evaluation and planning process
like any other Veteran applying for VR&E services. During that period,
the feasibility of pursuing a vocational goal must be determined. If
the counselor determines that an employment goal is not feasible, an
analysis of independent living needs is completed.
This analysis of IL needs begins with a preliminary assessment,
completed by the counselor. If it is determined that the achievement of
appropriate IL goals is not feasible, or potential IL needs cannot be
identified, the VR&E Officer must concur with this decision. When
potential IL needs are found, the next steps is the completion of a
comprehensive assessment of specific IL needs. A staff member or
provider with specialized IL experience and/or training performs this
assessment.
The assessment of IL needs and the coordination of services to
address them often require the counselor to work closely with the
Veterans Health Administration (VHA) and other health-care providers.
This coordination and consultation ensures that available VHA resources
are utilized and that the Individualized Independent Living Plan
includes services within and outside the VA system to effectively
address IL needs. The VR&E Officer must concur with all Independent
Living plans.
The steps involved in the Chapter 31 process are as follows:
Step 1: Application
Application received (VONAP or 28-1900)
Veteran's eligibility established
Schedule Veteran for initial counseling appointment if
eligible
Step 2: Entitlement Decision
Vocational Rehabilitation Counselor (VRC) meets with
Veteran
Conduct VR&E orientation to include Orientation Video
Conduct vocational evaluation to assess skills, abilities
and interests
Determine employment handicap (VR&E entitlement criteria)
and serious employment handicap
Determine feasibility for employment
Step 3: Evaluation and Planning
Work with veteran to identify track
Re-Employment
Rapid Access to Employment
Self Employment (monitor 1 year minimum)
Employment Thru Long-Term Services
Independent Living (24 month maximum with 6 month
extension by VR&E Officer)
Establish vocational or independent living goal
Define services needed
Develop written plan of services
Step 4: Service Delivery
On-going case management
Provide necessary services as identified in the
rehabilitation plan
Step 5: Rehabilitated
Held suitable employment or improved ability to live
independently
Response (b): The evaluation and planning process can be complex
depending on the Veteran's needs; however, the VA counselor expedites
this process as much as possible since Veterans with IL needs are among
the most severely disabled. The chart below provides the average number
of days elapsed for Veterans to move from evaluation/planning case
status to independent living case status compared to the time for all
plans.
IL Plans:
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2009 2010
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147 days.................................. 159 days
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All Plans:
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2009 2010
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102 days.................................. 110 days
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Response (c): For independent living plans, the business process
reengineering (BPR) initiative focuses on the initial evaluation
process that includes form consolidation and electronic submission of
the medical referral form for VHA medical appointments and
recommendations of medical equipment.
The full BPR effort described in the responses to question 4 is
expected to benefit Veterans found infeasible for employment and in
need of independent living services. As always, VR&E will also continue
to incorporate IL services into employment plans when needed.