[Congressional Bills 115th Congress]
[From the U.S. Government Publishing Office]
[S. 1024 Reported in Senate (RS)]

<DOC>





                                                       Calendar No. 166
115th CONGRESS
  1st Session
                                S. 1024

                          [Report No. 115-126]

    To amend title 38, United States Code, to reform the rights and 
    processes relating to appeals of decisions regarding claims for 
   benefits under the laws administered by the Secretary of Veterans 
                    Affairs, and for other purposes.


_______________________________________________________________________


                   IN THE SENATE OF THE UNITED STATES

                              May 3, 2017

 Mr. Isakson (for himself, Mr. Blumenthal, Mr. Tester, Mr. Daines, Ms. 
 Hassan, Mr. Udall, Mr. King, Ms. Baldwin, Mr. Kaine, Mr. Hatch, Mrs. 
Capito, Ms. Collins, Mr. Durbin, Mr. Thune, Mr. Heller, Mr. Crapo, Mr. 
Cochran, Mr. Warner, Mr. Manchin, Ms. Hirono, Mr. Brown, Mr. Enzi, Mr. 
 Rounds, Mr. Nelson, Mrs. McCaskill, and Mr. Heinrich) introduced the 
 following bill; which was read twice and referred to the Committee on 
                           Veterans' Affairs

                             July 10, 2017

               Reported by Mr. Isakson, with an amendment
 [Strike out all after the enacting clause and insert the part printed 
                               in italic]

_______________________________________________________________________

                                 A BILL


 
    To amend title 38, United States Code, to reform the rights and 
    processes relating to appeals of decisions regarding claims for 
   benefits under the laws administered by the Secretary of Veterans 
                    Affairs, and for other purposes.

    Be it enacted by the Senate and House of Representatives of the 
United States of America in Congress assembled,

<DELETED>SECTION 1. SHORT TITLE.</DELETED>

<DELETED>    This Act may be cited as the ``Veterans Appeals 
Improvement and Modernization Act of 2017''.</DELETED>

<DELETED>SEC. 2. REFORM OF RIGHTS AND PROCESSES RELATING TO APPEALS OF 
              DECISIONS REGARDING CLAIMS FOR BENEFITS UNDER LAWS 
              ADMINISTERED BY SECRETARY OF VETERANS AFFAIRS.</DELETED>

<DELETED>    (a) Definitions.--Section 101 of title 38, United States 
Code, is amended by adding at the end the following new 
paragraphs:</DELETED>
        <DELETED>    ``(34) The term `agency of original jurisdiction' 
        means the activity which entered the original determination 
        with regard to a claim for benefits under laws administered by 
        the Secretary.</DELETED>
        <DELETED>    ``(35) The term `relevant evidence' means evidence 
        that tends to prove or disprove a matter in issue.</DELETED>
        <DELETED>    ``(36) The term `supplemental claim' means a claim 
        for benefits under laws administered by the Secretary filed by 
        a claimant who had previously filed a claim for the same or 
        similar benefits on the same or similar basis.''.</DELETED>
<DELETED>    (b) Notice Regarding Claims.--Section 5103(a) of such 
title is amended--</DELETED>
        <DELETED>    (1) in paragraph (1), in the first sentence, by 
        striking ``The'' and inserting ``Except as provided in 
        paragraph (3), the'';</DELETED>
        <DELETED>    (2) in paragraph (2)(B)(i) by striking ``, a claim 
        for reopening a prior decision on a claim, or a claim for an 
        increase in benefits;'' and inserting ``or a supplemental 
        claim;''; and</DELETED>
        <DELETED>    (3) by adding at the end the following new 
        paragraph:</DELETED>
<DELETED>    ``(3) The requirement to provide notice under paragraph 
(1) shall not apply with respect to a supplemental claim that is filed 
within the timeframe set forth in subparagraphs (B) and (D) of section 
5110(a)(2) of this title.''.</DELETED>
<DELETED>    (c) Modification of Rule Regarding Disallowed Claims.--
Section 5103A(f) of such title is amended--</DELETED>
        <DELETED>    (1) by striking ``reopen'' and inserting 
        ``readjudicate''; and</DELETED>
        <DELETED>    (2) by striking ``material'' and inserting 
        ``relevant''.</DELETED>
<DELETED>    (d) Modification of Duty To Assist Claimants.--Section 
5103A of such title is amended--</DELETED>
        <DELETED>    (1) by redesignating subsections (e) through (g) 
        as subsections (g) through (i), respectively; and</DELETED>
        <DELETED>    (2) by inserting after subsection (d) the 
        following new subsections:</DELETED>
<DELETED>    ``(e) Applicability of Duty To Assist.--(1) The 
Secretary's duty to assist under this section shall apply only to a 
claim, or supplemental claim, for a benefit under a law administered by 
the Secretary until the time that a claimant is provided notice of the 
agency of original jurisdiction's decision with respect to such claim, 
or supplemental claim, under section 5104 of this title.</DELETED>
<DELETED>    ``(2) The Secretary's duty to assist under this section 
shall not apply to higher-level review by the agency of original 
jurisdiction, pursuant to section 5104B of this title, or to review on 
appeal by the Board of Veterans' Appeals.</DELETED>
<DELETED>    ``(f) Correction of Duty To Assist Errors.--(1) If, during 
review of the agency of original jurisdiction decision under section 
5104B of this title, the higher-level adjudicator identifies or learns 
of an error on the part of the agency of original jurisdiction to 
satisfy its duties under this section, and that error occurred prior to 
the agency of original jurisdiction decision being reviewed, unless the 
claim can be granted in full, the higher-level adjudicator shall return 
the claim for correction of such error and readjudication.</DELETED>
<DELETED>    ``(2)(A) If the Board of Veterans' Appeals, during review 
on appeal of an agency of original jurisdiction decision, identifies or 
learns of an error on the part of the agency of original jurisdiction 
to satisfy its duties under this section, and that error occurred prior 
to the agency of original jurisdiction decision on appeal, unless the 
claim can be granted in full, the Board shall remand the claim to the 
agency of original jurisdiction for correction of such error and 
readjudication.</DELETED>
<DELETED>    ``(B) Remand for correction of such error may include 
directing the agency of original jurisdiction to obtain an advisory 
medical opinion under section 5109 of this title.</DELETED>
<DELETED>    ``(3) Nothing in this subsection shall be construed to 
imply that the Secretary, during the consideration of a claim, does not 
have a duty to correct an error described in paragraph (1) or (2) that 
was erroneously not identified during higher-level review or during 
review on appeal with respect to the claim.''.</DELETED>
<DELETED>    (e) Decisions and Notices of Decisions.--Subsection (b) of 
section 5104 of such title is amended to read as follows:</DELETED>
<DELETED>    ``(b) Each notice provided under subsection (a) shall also 
include all of the following:</DELETED>
        <DELETED>    ``(1) Identification of the issues 
        adjudicated.</DELETED>
        <DELETED>    ``(2) A summary of the evidence considered by the 
        Secretary.</DELETED>
        <DELETED>    ``(3) A summary of the applicable laws and 
        regulations.</DELETED>
        <DELETED>    ``(4) Identification of findings favorable to the 
        claimant.</DELETED>
        <DELETED>    ``(5) In the case of a denial, identification of 
        elements not satisfied leading to the denial.</DELETED>
        <DELETED>    ``(6) An explanation of how to obtain or access 
        evidence used in making the decision.</DELETED>
        <DELETED>    ``(7) If applicable, identification of the 
        criteria that must be satisfied to grant service connection or 
        the next higher level of compensation.''.</DELETED>
<DELETED>    (f) Binding Nature of Favorable Findings.--</DELETED>
        <DELETED>    (1) In general.--Chapter 51 of such title is 
        amended by inserting after section 5104 the following new 
        section:</DELETED>
<DELETED>``Sec. 5104A. Binding nature of favorable findings</DELETED>
<DELETED>    ``Any finding favorable to the claimant as described in 
section 5104(b)(4) of this title shall be binding on all subsequent 
adjudicators within the Department, unless clear and convincing 
evidence is shown to the contrary to rebut such favorable 
finding.''.</DELETED>
        <DELETED>    (2) Clerical amendment.--The table of sections at 
        the beginning of chapter 51 of such title is amended by 
        inserting after the item relating to section 5104 the following 
        new item:</DELETED>

<DELETED>``5104A. Binding nature of favorable findings.''.
<DELETED>    (g) Higher-Level Review by Agency of Original 
Jurisdiction.--</DELETED>
        <DELETED>    (1) In general.--Chapter 51 of such title, as 
        amended by subsection (f), is further amended by inserting 
        after section 5104A, as added by such subsection, the following 
        new section:</DELETED>
<DELETED>``Sec. 5104B. Higher-level review by the agency of original 
              jurisdiction</DELETED>
<DELETED>    ``(a) In General.--(1) A claimant may request a review of 
the decision of the agency of original jurisdiction by a higher-level 
adjudicator within the agency of original jurisdiction.</DELETED>
<DELETED>    ``(2) The Secretary shall approve each request for review 
under paragraph (1).</DELETED>
<DELETED>    ``(b) Time and Manner of Request.--(1) A request for 
higher-level review by the agency of original jurisdiction shall be--
</DELETED>
        <DELETED>    ``(A) in writing in such form as the Secretary may 
        prescribe; and</DELETED>
        <DELETED>    ``(B) made within one year of the notice of the 
        agency of original jurisdiction's decision.</DELETED>
<DELETED>    ``(2) Such request may specifically indicate whether such 
review is requested by a higher-level adjudicator at the same office 
within the agency of original jurisdiction or by an adjudicator at a 
different office of the agency of original jurisdiction. The Secretary 
shall not deny such request for review by an adjudicator at a different 
office of the agency of original jurisdiction without good 
cause.</DELETED>
<DELETED>    ``(c) Decision.--Notice of a higher-level review decision 
under this section shall be provided in writing and shall include a 
general statement--</DELETED>
        <DELETED>    ``(1) reflecting whether evidence was not 
        considered pursuant to subsection (d); and</DELETED>
        <DELETED>    ``(2) noting the options available to the claimant 
        to have the evidence described in paragraph (1), if any, 
        considered by the Department.</DELETED>
<DELETED>    ``(d) Evidentiary Record for Review.--The evidentiary 
record before the higher-level adjudicator shall be limited to the 
evidence of record in the agency of original jurisdiction decision 
being reviewed.</DELETED>
<DELETED>    ``(e) De Novo Review.--A review of the decision of the 
agency of original jurisdiction by a higher-level adjudicator within 
the agency of original jurisdiction shall be de novo.''.</DELETED>
        <DELETED>    (2) Clerical amendment.--The table of sections at 
        the beginning of chapter 51 of such title, as amended by 
        subsection (f), is further amended by inserting after the item 
        relating to section 5104A, as added by such subsection, the 
        following new item:</DELETED>

<DELETED>``5104B. Higher-level review by the agency of original 
                            jurisdiction.''.
<DELETED>    (h) Options Following Decision by Agency of Original 
Jurisdiction.--</DELETED>
        <DELETED>    (1) In general.--Chapter 51 of such title, as 
        amended by subsection (g), is further amended by inserting 
        after section 5104B, as added by such subsection, the following 
        new section:</DELETED>
<DELETED>``Sec. 5104C. Options following decision by agency of original 
              jurisdiction</DELETED>
<DELETED>    ``(a) Within One Year of Decision.--(1) Subject to 
paragraph (2), in any case in which the Secretary renders a decision on 
a claim, the claimant may take any of the following actions on or 
before the date that is one year after the date on which the agency of 
original jurisdiction issues a decision with respect to that 
claim:</DELETED>
        <DELETED>    ``(A) File a request for higher-level review under 
        section 5104B of this title.</DELETED>
        <DELETED>    ``(B) File a supplemental claim under section 5108 
        of this title.</DELETED>
        <DELETED>    ``(C) File a notice of disagreement under section 
        7105 of this title.</DELETED>
<DELETED>    ``(2)(A) Once a claimant takes an action set forth in 
paragraph (1), the claimant may not take another action set forth in 
that paragraph with respect to such claim until--</DELETED>
        <DELETED>    ``(i) the higher-level review, supplemental claim, 
        or notice of disagreement is adjudicated; or</DELETED>
        <DELETED>    ``(ii) the request for higher-level review, 
        supplemental claim, or notice of disagreement is 
        withdrawn.</DELETED>
<DELETED>    ``(B) Nothing in this subsection shall prohibit a claimant 
from taking any of the actions set forth in paragraph (1) in succession 
with respect to a claim.</DELETED>
<DELETED>    ``(C) Nothing in this subsection shall prohibit a claimant 
from taking different actions set forth in paragraph (1) with respect 
to different claims.</DELETED>
<DELETED>    ``(D) The Secretary may, as the Secretary considers 
appropriate, develop and implement a policy for claimants who--
</DELETED>
        <DELETED>    ``(i) take an action under paragraph 
        (1);</DELETED>
        <DELETED>    ``(ii) wish to withdraw the action before the 
        higher-level review, supplemental claim, or notice of 
        disagreement is adjudicated; and</DELETED>
        <DELETED>    ``(iii) in lieu of such action take a different 
        action under paragraph (1).</DELETED>
<DELETED>    ``(b) More Than One Year After Decision.--In any case in 
which the Secretary renders a decision on a claim and more than one 
year has passed since the date on which the agency of original 
jurisdiction issues a decision with respect to that claim, the claimant 
may file a supplemental claim under section 5108 of this 
title.''.</DELETED>
        <DELETED>    (2) Clerical amendment.--The table of sections at 
        the beginning of chapter 51 of such title, as amended by 
        subsection (g), is further amended by inserting after the item 
        relating to section 5104B, as added by such subsection, the 
        following new item:</DELETED>

<DELETED>``5104C. Options following decision by agency of original 
                            jurisdiction.''.
<DELETED>    (i) Supplemental Claims.--</DELETED>
        <DELETED>    (1) In general.--Section 5108 of such title is 
        amended to read as follows:</DELETED>
<DELETED>``Sec. 5108. Supplemental claims</DELETED>
<DELETED>    ``If new and relevant evidence is presented or secured 
with respect to a supplemental claim, the Secretary shall readjudicate 
the claim taking into consideration any evidence added to the record 
prior to the former disposition of the claim.''.</DELETED>
        <DELETED>    (2) Clerical amendment.--The table of sections at 
        the beginning of chapter 51 of such title is amended by 
        striking the item relating to section 5108 and inserting the 
        following new item:</DELETED>

<DELETED>``5108. Supplemental claims.''.
<DELETED>    (j) Remand To Obtain Advisory Medical Opinion.--Section 
5109 of such title is amended by adding at the end the following new 
subsection:</DELETED>
<DELETED>    ``(d)(1) The Board of Veterans' Appeals shall remand a 
claim to direct the agency of original jurisdiction to obtain an 
advisory medical opinion from an independent medical expert under this 
section if the Board finds that the Veterans Benefits Administration 
should have exercised its discretion to obtain such an 
opinion.</DELETED>
<DELETED>    ``(2) The Board's remand instructions shall include the 
questions to be posed to the independent medical expert providing the 
advisory medical opinion.''.</DELETED>
<DELETED>    (k) Restatement of Requirement for Expedited Treatment of 
Returned and Remanded Claims.--</DELETED>
        <DELETED>    (1) In general.--Section 5109B of such title is 
        amended to read as follows:</DELETED>
<DELETED>``Sec. 5109B. Expedited treatment of returned and remanded 
              claims</DELETED>
<DELETED>    ``The Secretary shall take such actions as may be 
necessary to provide for the expeditious treatment by the Veterans 
Benefits Administration of any claim that is returned by a higher-level 
adjudicator under section 5104B of this title or remanded by the Board 
of Veterans' Appeals.''.</DELETED>
        <DELETED>    (2) Clerical amendment.--The table of sections at 
        the beginning of chapter 51 of such title is amended by 
        striking the item relating to section 5109B and inserting the 
        following new item:</DELETED>

<DELETED>``5109B. Expedited treatment of returned and remanded 
                            claims.''.
<DELETED>    (l) Effective Dates of Awards.--Section 5110 of title 38, 
United States Code, is amended--</DELETED>
        <DELETED>    (1) by amending subsection (a) to read as 
        follows:</DELETED>
<DELETED>    ``(a)(1) Unless specifically provided otherwise in this 
chapter, the effective date of an award based on an initial claim, or a 
supplemental claim, of compensation, dependency and indemnity 
compensation, or pension, shall be fixed in accordance with the facts 
found, but shall not be earlier than the date of receipt of application 
therefor.</DELETED>
<DELETED>    ``(2) For purposes of determining the effective date of an 
award under this section, the date of application shall be considered 
the date of the filing of the initial application for a benefit if the 
claim is continuously pursued by filing any of the following, either 
alone or in succession:</DELETED>
        <DELETED>    ``(A) A request for higher-level review under 
        section 5104B of this title on or before the date that is one 
        year after the date on which the agency of original 
        jurisdiction issues a decision.</DELETED>
        <DELETED>    ``(B) A supplemental claim under section 5108 of 
        this title on or before the date that is one year after the 
        date on which the agency of original jurisdiction issues a 
        decision.</DELETED>
        <DELETED>    ``(C) A notice of disagreement on or before the 
        date that is one year after the date on which the agency of 
        original jurisdiction issues a decision.</DELETED>
        <DELETED>    ``(D) A supplemental claim under section 5108 of 
        this title on or before the date that is one year after the 
        date on which the Board of Veterans' Appeals issues a 
        decision.</DELETED>
        <DELETED>    ``(E) A supplemental claim under section 5108 of 
        this title on or before the date that is one year after the 
        date on which the Court of Appeals for Veterans Claims issues a 
        decision.</DELETED>
<DELETED>    ``(3) Except as otherwise provided in this section, for 
supplemental claims received more than one year after the date on which 
the agency of original jurisdiction issued a decision or the Board of 
Veterans' Appeals issued a decision, the effective date shall be fixed 
in accordance with the facts found, but shall not be earlier than the 
date of receipt of the supplemental claim.''; and</DELETED>
        <DELETED>    (2) in subsection (i), in the first sentence--
        </DELETED>
                <DELETED>    (A) by striking ``reopened'' and inserting 
                ``readjudicated'';</DELETED>
                <DELETED>    (B) by striking ``material'' and inserting 
                ``relevant''; and</DELETED>
                <DELETED>    (C) by striking ``reopening'' and 
                inserting ``readjudication''.</DELETED>
<DELETED>    (m) Definition of Award or Increased Award for Purposes of 
Provisions Relating to Commencement of Period of Payment.--Section 
5111(d)(1) of such title is amended by striking ``or reopened award'' 
and inserting ``award or award based on a supplemental 
claim''.</DELETED>
<DELETED>    (n) Modification on Limitation on Fees Allowable for 
Representation.--Section 5904(c) of such title is amended, in 
paragraphs (1) and (2), by striking ``notice of disagreement is filed'' 
both places it appears and inserting ``claimant is provided notice of 
the agency of original jurisdiction's initial decision under section 
5104 of this title''.</DELETED>
<DELETED>    (o) Clarification of Board of Veterans' Appeals Referral 
Requirements After Order for Reconsideration of Decisions.--Section 
7103(b)(1) of title 38, United States Code, is amended by striking 
``heard'' both places it appears and inserting ``decided''.</DELETED>
<DELETED>    (p) Conforming Amendment Relating to Readjudication.--
Section 7104(b) of such title is amended by striking ``reopened'' and 
inserting ``readjudicated''.</DELETED>
<DELETED>    (q) Modification of Procedures for Appeals to Board of 
Veterans' Appeals.--</DELETED>
        <DELETED>    (1) In general.--Section 7105 of title 38, United 
        States Code, is amended--</DELETED>
                <DELETED>    (A) in subsection (a), by striking the 
                first sentence and inserting ``Appellate review shall 
                be initiated by the filing of a notice of disagreement 
                in the form prescribed by the Secretary.'';</DELETED>
                <DELETED>    (B) by amending subsection (b) to read as 
                follows:</DELETED>
<DELETED>    ``(b)(1)(A) Except in the case of simultaneously contested 
claims, a notice of disagreement shall be filed within one year from 
the date of the mailing of notice of the decision of the agency of 
original jurisdiction pursuant to section 5104, 5104B, or 5108 of this 
title.</DELETED>
<DELETED>    ``(B) A notice of disagreement postmarked before the 
expiration of the one-year period shall be accepted as timely 
filed.</DELETED>
<DELETED>    ``(C) A question as to timeliness or adequacy of the 
notice of disagreement shall be decided by the Board.</DELETED>
<DELETED>    ``(2)(A) Notices of disagreement shall be in writing, 
shall identify the specific determination with which the claimant 
disagrees, and may be filed by the claimant, the claimant's legal 
guardian, or such accredited representative, attorney, or authorized 
agent as may be selected by the claimant or legal guardian.</DELETED>
<DELETED>    ``(B) Not more than one recognized organization, attorney, 
or agent may be recognized at any one time in the prosecution of a 
claim.</DELETED>
<DELETED>    ``(C) Notices of disagreement shall be filed with the 
Board.</DELETED>
<DELETED>    ``(3) The notice of disagreement shall indicate whether 
the claimant requests--</DELETED>
        <DELETED>    ``(A) a hearing before the Board, which shall 
        include an opportunity to submit evidence in accordance with 
        section 7113(b) of this title;</DELETED>
        <DELETED>    ``(B) an opportunity to submit additional evidence 
        without a hearing before the Board, which shall include an 
        opportunity to submit evidence in accordance with section 
        7113(c) of this title; or</DELETED>
        <DELETED>    ``(C) a review by the Board without a hearing or 
        the submittal of additional evidence.</DELETED>
<DELETED>    ``(4) The Secretary may develop a policy to permit a 
claimant to modify the information identified in the notice of 
disagreement after the notice of disagreement has been filed under this 
section pursuant to such requirements as the Secretary may 
prescribe.'';</DELETED>
                <DELETED>    (C) by amending subsection (c) to read as 
                follows:</DELETED>
<DELETED>    ``(c) If no notice of disagreement is filed in accordance 
with this chapter within the prescribed period, the action or decision 
of the agency of original jurisdiction shall become final and the claim 
shall not thereafter be readjudicated or allowed, except as may 
otherwise be provided by section 5104B or 5108 of this title or such 
regulations as are consistent with this title.'';</DELETED>
                <DELETED>    (D) by striking subsection (d) and 
                inserting the following new subsection (d):</DELETED>
<DELETED>    ``(d) The Board of Veterans' Appeals may dismiss any 
appeal which fails to identify the specific determination with which 
the claimant disagrees.'';</DELETED>
                <DELETED>    (E) by striking subsection (e); 
                and</DELETED>
                <DELETED>    (F) in the section heading, by striking 
                ``notice of disagreement and''.</DELETED>
        <DELETED>    (2) Clerical amendment.--The table of sections at 
        the beginning of chapter 71 of such title is amended by 
        striking the item relating to section 7105 and inserting the 
        following new item:</DELETED>

<DELETED>``7105. Filing of appeal.''.
<DELETED>    (r) Modification of Procedures and Requirements for 
Simultaneously Contested Claims.--Subsection (b) of section 7105A of 
such title is amended to read as follows:</DELETED>
<DELETED>    ``(b)(1) The substance of the notice of disagreement shall 
be communicated to the other party or parties in interest and a period 
of thirty days shall be allowed for filing a brief or argument in 
response thereto.</DELETED>
<DELETED>    ``(2) Such notice shall be forwarded to the last known 
address of record of the parties concerned, and such action shall 
constitute sufficient evidence of notice.''.</DELETED>
<DELETED>    (s) Repeal of Procedures for Administrative Appeals.--
</DELETED>
        <DELETED>    (1) In general.--Chapter 71 of such title is 
        amended by striking section 7106.</DELETED>
        <DELETED>    (2) Clerical amendment.--The table of sections at 
        the beginning of chapter 71 of such title is amended by 
        striking the item relating to section 7106.</DELETED>
<DELETED>    (t) Modifications Relating to Appeals: Dockets; 
Hearings.--</DELETED>
        <DELETED>    (1) In general.--Section 7107 of such title is 
        amended to read as follows:</DELETED>
<DELETED>``Sec. 7107. Appeals: dockets; hearings</DELETED>
<DELETED>    ``(a) Dockets.--(1) Subject to paragraph (2), the Board 
shall maintain at least two separate dockets.</DELETED>
<DELETED>    ``(2) The Board may not maintain more than two separate 
dockets unless the Board notifies the Committee on Veterans' Affairs of 
the Senate and the Committee on Veterans' Affairs of the House of 
Representatives of any additional docket, including a justification for 
maintaining such additional docket.</DELETED>
<DELETED>    ``(3)(A) The Board may assign to each docket maintained 
under paragraph (1) such cases as the Board considers appropriate, 
except that cases described in clause (i) of subparagraph (B) may not 
be assigned to any docket to which cases described in clause (ii) of 
such paragraph are assigned.</DELETED>
<DELETED>    ``(B) Cases described in this paragraph are the 
following:</DELETED>
        <DELETED>    ``(i) Cases in which no Board hearing is requested 
        and no additional evidence will be submitted.</DELETED>
        <DELETED>    ``(ii) Cases in which a Board hearing is requested 
        in the notice of disagreement.</DELETED>
<DELETED>    ``(4) Except as provided in subsection (b), each case 
before the Board will be decided in regular order according to its 
respective place on the docket to which it is assigned by the 
Board.</DELETED>
<DELETED>    ``(b) Advancement on the Docket.--(1) A case on one of the 
dockets of the Board maintained under subsection (a) may, for cause 
shown, be advanced on motion for earlier consideration and 
determination.</DELETED>
<DELETED>    ``(2) Any such motion shall set forth succinctly the 
grounds upon which the motion is based.</DELETED>
<DELETED>    ``(3) Such a motion may be granted only--</DELETED>
        <DELETED>    ``(A) if the case involves interpretation of law 
        of general application affecting other claims;</DELETED>
        <DELETED>    ``(B) if the appellant is seriously ill or is 
        under severe financial hardship; or</DELETED>
        <DELETED>    ``(C) for other sufficient cause shown.</DELETED>
<DELETED>    ``(c) Manner and Scheduling of Hearings for Cases on a 
Docket That May Include a Hearing.--(1) For cases on a docket 
maintained by the Board under subsection (a) that may include a 
hearing, in which a hearing is requested in the notice of disagreement, 
the Board shall notify the appellant whether a Board hearing will be 
held--</DELETED>
        <DELETED>    ``(A) at its principal location; or</DELETED>
        <DELETED>    ``(B) by picture and voice transmission at a 
        facility of the Department where the Secretary has provided 
        suitable facilities and equipment to conduct such 
        hearings.</DELETED>
<DELETED>    ``(2)(A) Upon notification of a Board hearing at the 
Board's principal location as described in subparagraph (A) of 
paragraph (1), the appellant may alternatively request a hearing as 
described in subparagraph (B) of such paragraph. If so requested, the 
Board shall grant such request.</DELETED>
<DELETED>    ``(B) Upon notification of a Board hearing by picture and 
voice transmission as described in subparagraph (B) of paragraph (1), 
the appellant may alternatively request a hearing as described in 
subparagraph (A) of such paragraph. If so requested, the Board shall 
grant such request.</DELETED>
<DELETED>    ``(d) Screening of Cases.--Nothing in this section shall 
be construed to preclude the screening of cases for purposes of--
</DELETED>
        <DELETED>    ``(1) determining the adequacy of the record for 
        decisional purposes; or</DELETED>
        <DELETED>    ``(2) the development, or attempted development, 
        of a record found to be inadequate for decisional 
        purposes.</DELETED>
<DELETED>    ``(e) Policy on Changing Dockets.--The Secretary may 
develop and implement a policy allowing a claimant to move the 
claimant's case from one docket to another docket.''.</DELETED>
        <DELETED>    (2) Report.--Not later than the date that is 90 
        days before the date set forth in subsection (x), the Secretary 
        shall submit to the Committee on Veterans' Affairs of the 
        Senate and the Committee on Veterans' Affairs of the House of 
        Representatives a report setting forth a description of the 
        docket that will be maintained under section 7107 of title 38, 
        United States Code, as amended by paragraph (1), for cases in 
        which no hearing before the Board of Veterans' Appeals is 
        requested in the notice of disagreement but the appellant 
        requests, in the notice of disagreement, an opportunity to 
        submit additional evidence.</DELETED>
<DELETED>    (u) Repeal of Certain Authority for Independent Medical 
Opinions.--</DELETED>
        <DELETED>    (1) In general.--Section 7109 of such title is 
        repealed.</DELETED>
        <DELETED>    (2) Conforming amendment.--Section 5701(b)(1) of 
        such title is amended by striking ``or 7109''.</DELETED>
        <DELETED>    (3) Clerical amendment.--The table of sections at 
        the beginning of chapter 71 of such title is amended by 
        striking the item relating to section 7109.</DELETED>
<DELETED>    (v) Clarification of Procedures for Review of Decisions on 
Grounds of Clear and Unmistakable Error.--Section 7111(e) of such title 
is amended by striking ``, without referral to any adjudicative or 
hearing official acting on behalf of the Secretary''.</DELETED>
<DELETED>    (w) Evidentiary Record Before Board of Veterans' 
Appeals.--</DELETED>
        <DELETED>    (1) In general.--Chapter 71 of such title is 
        amended by adding at the end the following new 
        section:</DELETED>
<DELETED>``Sec. 7113. Evidentiary record before the Board of Veterans' 
              Appeals</DELETED>
<DELETED>    ``(a) Cases With No Request for a Hearing or Additional 
Evidence.--For cases in which a hearing before the Board of Veterans' 
Appeals is not requested in the notice of disagreement and no request 
was made to submit evidence, the evidentiary record before the Board 
shall be limited to the evidence of record at the time of the decision 
of the agency of original jurisdiction on appeal.</DELETED>
<DELETED>    ``(b) Cases With a Request for a Hearing.--(1) Except as 
provided in paragraph (2), for cases in which a hearing is requested in 
the notice of disagreement, the evidentiary record before the Board 
shall be limited to the evidence of record at the time of the decision 
of the agency of original jurisdiction on appeal.</DELETED>
<DELETED>    ``(2) The evidentiary record before the Board for cases 
described in paragraph (1) shall include each of the following, which 
the Board shall consider in the first instance:</DELETED>
        <DELETED>    ``(A) Evidence submitted by the appellant and his 
        or her representative, if any, at the Board hearing.</DELETED>
        <DELETED>    ``(B) Evidence submitted by the appellant and his 
        or her representative, if any, within 90 days following the 
        Board hearing.</DELETED>
<DELETED>    ``(c) Cases With No Request for a Hearing and With a 
Request for Additional Evidence.--(1) Except as provided in paragraph 
(2), for cases in which a hearing is not requested in the notice of 
disagreement but an opportunity to submit evidence is requested, the 
evidentiary record before the Board shall be limited to the evidence 
considered by the agency of original jurisdiction in the decision on 
appeal.</DELETED>
<DELETED>    ``(2) The evidentiary record before the Board for cases 
described in paragraph (1) shall include each of the following, which 
the Board shall consider in the first instance:</DELETED>
        <DELETED>    ``(A) Evidence submitted by the appellant and his 
        or her representative, if any, with the notice of 
        disagreement.</DELETED>
        <DELETED>    ``(B) Evidence submitted by the appellant and his 
        or her representative, if any, within 90 days following receipt 
        of the notice of disagreement.''.</DELETED>
        <DELETED>    (2) Notification when evidence not considered.--
        Section 7104(d) of such title is amended--</DELETED>
                <DELETED>    (A) in paragraph (1), by striking ``; 
                and'' and inserting a semicolon;</DELETED>
                <DELETED>    (B) by redesignating paragraph (2) as 
                paragraph (3); and</DELETED>
                <DELETED>    (C) by inserting after paragraph (1) the 
                following new paragraph (2):</DELETED>
        <DELETED>    ``(2) a general statement--</DELETED>
                <DELETED>    ``(A) reflecting whether evidence was not 
                considered in making the decision because the evidence 
                was received at a time when not permitted under section 
                7113 of this title; and</DELETED>
                <DELETED>    ``(B) noting such options as may be 
                available for having the evidence considered by the 
                Department; and''.</DELETED>
        <DELETED>    (3) Clerical amendment.--The table of sections at 
        the beginning of chapter 71 of such title is amended by 
        inserting after the item relating to section 7112 the following 
        new item:</DELETED>

<DELETED>``7113. Evidentiary record before the Board of Veterans' 
                            Appeals.''.
<DELETED>    (x) Applicability.--</DELETED>
        <DELETED>    (1) In general.--Except as otherwise provided in 
        this subsection, the amendments made by this section shall 
        apply to all claims for which notice of a decision under 
        section 5104 of title 38, United States Code, is provided by 
        the Secretary of Veterans Affairs on or after the later of--
        </DELETED>
                <DELETED>    (A) the date that is 540 days after the 
                date of the enactment of this Act; and</DELETED>
                <DELETED>    (B) the date that is 30 days after the 
                date on which the Secretary of Veterans Affairs submits 
                to the appropriate committees of Congress a 
                certification that the Secretary confirms, without 
                delegation, that the Department of Veterans Affairs has 
                the resources, personnel, office space, procedures, and 
                information technology required--</DELETED>
                        <DELETED>    (i) to carry out the new appeals 
                        system; and</DELETED>
                        <DELETED>    (ii) to timely address both 
                        appeals of decisions on legacy claims and 
                        appeals under the new appeals system.</DELETED>
        <DELETED>    (2) Collaboration.--In determining whether and 
        when to make a certification under paragraph (1)(B), the 
        Secretary shall collaborate with, partner with, and give weight 
        to the advice of veterans service organizations and such other 
        stakeholders as the Secretary considers appropriate.</DELETED>
        <DELETED>    (3) Early applicability.--The Secretary may apply 
        the new appeals system to a claim with respect to which the 
        claimant--</DELETED>
                <DELETED>    (A) receives a notice of a decision under 
                section 5104 of such title after the date of the 
                enactment of this Act and before the applicability date 
                set forth in paragraph (1); and</DELETED>
                <DELETED>    (B) elects to subject the claim to the new 
                appeals system.</DELETED>
        <DELETED>    (4) Phased rollout.--The Secretary may begin 
        implementation of the new appeals system in phases, with the 
        first phase of such phased implementation beginning on the 
        applicability date set forth in paragraph (1).</DELETED>
        <DELETED>    (5) Treatment of legacy claims.--With respect to 
        legacy claims, upon the issuance to a claimant of a statement 
        of the case or supplemental statement of the case occurring on 
        or after the applicability date specified in paragraph (1), a 
        claimant may elect to participate in the new appeals 
        system.</DELETED>
        <DELETED>    (6) Publication of applicability date.--Not later 
        than the date on which the new appeals system goes into effect 
        (or the first phase of the new appeals system goes into effect 
        under paragraph (4), as the case may be), the Secretary shall 
        publish in the Federal Register such date.</DELETED>
        <DELETED>    (7) Definitions.--In this subsection:</DELETED>
                <DELETED>    (A) Appropriate committees of congress.--
                The term ``appropriate committees of Congress'' means--
                </DELETED>
                        <DELETED>    (i) the Committee on Veterans' 
                        Affairs and the Committee on Appropriations of 
                        the Senate; and</DELETED>
                        <DELETED>    (ii) the Committee on Veterans' 
                        Affairs and the Committee on Appropriations of 
                        the House of Representatives.</DELETED>
                <DELETED>    (B) Veterans service organization.--The 
                term ``veterans service organization'' means any 
                organization recognized by the Secretary for the 
                representation of veterans under section 5902 of title 
                38, United States Code.</DELETED>
<DELETED>    (y) Rule of Construction.--Nothing in this section or any 
of the amendments made by this section shall be construed to limit the 
ability of a claimant to request a revision of a decision under section 
5109A or 7111 of title 38, United States Code.</DELETED>

<DELETED>SEC. 3. COMPREHENSIVE PLAN FOR PROCESSING OF LEGACY APPEALS 
              AND IMPLEMENTING NEW APPEALS SYSTEM.</DELETED>

<DELETED>    (a) Plan Required.--Not later than 90 days after the date 
of the enactment of this Act, the Secretary of Veterans Affairs shall 
submit to the appropriate committees of Congress and the Comptroller 
General of the United States a comprehensive plan for--</DELETED>
        <DELETED>    (1) the processing of appeals of decisions on 
        legacy claims that the Secretary considers pending;</DELETED>
        <DELETED>    (2) implementing the new appeals system;</DELETED>
        <DELETED>    (3) timely processing, under the new appeals 
        system, of--</DELETED>
                <DELETED>    (A) supplemental claims under section 5108 
                of title 38, United States Code, as amended by section 
                2(i);</DELETED>
                <DELETED>    (B) requests for higher-level review under 
                section 5104B of such title, as added by section 2(g); 
                and</DELETED>
                <DELETED>    (C) appeals on any docket maintained under 
                section 7107 of such title, as amended by section 2(t); 
                and</DELETED>
        <DELETED>    (4) monitoring the implementation of the new 
        appeals system, including metrics and goals--</DELETED>
                <DELETED>    (A) to track the progress of the 
                implementation;</DELETED>
                <DELETED>    (B) to evaluate the efficiency and 
                effectiveness of the implementation; and</DELETED>
                <DELETED>    (C) to identify potential issues relating 
                to the implementation.</DELETED>
<DELETED>    (b) Elements.--The plan required by subsection (a) shall 
include, at a minimum, the following:</DELETED>
        <DELETED>    (1) Delineation of the total resource requirements 
        of the Veterans Benefits Administration and the Board of 
        Veterans' Appeals, disaggregated by resources required to 
        implement and administer the new appeals system and resources 
        required to address the appeals of decisions on legacy 
        claims.</DELETED>
        <DELETED>    (2) Delineation of the personnel requirements of 
        the Administration and the Board, including staffing levels 
        during the--</DELETED>
                <DELETED>    (A) period in which the Administration and 
                the Board are concurrently processing--</DELETED>
                        <DELETED>    (i) appeals of decisions on legacy 
                        claims; and</DELETED>
                        <DELETED>    (ii) appeals of decisions on non-
                        legacy claims under the new appeals system; 
                        and</DELETED>
                <DELETED>    (B) the period during which the 
                Administration and the Board are no longer processing 
                any appeals of decisions on legacy claims.</DELETED>
        <DELETED>    (3) Identification of the legal authorities under 
        which the Administration or the Board may--</DELETED>
                <DELETED>    (A) hire additional employees to conduct 
                the concurrent processing described in paragraph 
                (2)(A); and</DELETED>
                <DELETED>    (B) remove employees who are no longer 
                required by the Administration or the Board once the 
                Administration and the Board are no longer processing 
                any appeals of decisions on legacy claims.</DELETED>
        <DELETED>    (4) An estimate of the amount of time the 
        Administration and the Board will require to hire additional 
        employees as described in paragraph (3)(A) once funding has 
        been made available for such purpose, including a comparison of 
        such estimate and the historical average time required by the 
        Administration and the Board to hire additional 
        employees.</DELETED>
        <DELETED>    (5) A description of the modifications to the 
        information technology systems of the Administration and the 
        Board that the Administration and the Board require to carry 
        out the new appeals system, including cost estimates and a 
        timeline for making the modifications.</DELETED>
        <DELETED>    (6) An estimate of the office space the 
        Administration and the Board will require during each of the 
        periods described in paragraph (2), including--</DELETED>
                <DELETED>    (A) an estimate of the amount of time the 
                Administration and the Board will require to acquire 
                any additional office space to carry out processing of 
                appeals of decisions on legacy claims and processing of 
                appeals under the new appeals system;</DELETED>
                <DELETED>    (B) a comparison of the estimate under 
                subparagraph (A) and the historical average time 
                required by the Administration and the Board to acquire 
                new office space; and</DELETED>
                <DELETED>    (C) a plan for using telework to 
                accommodate staff exceeding available office space, 
                including how the Administration and the Board will 
                provide training and oversight with respect to such 
                teleworking.</DELETED>
        <DELETED>    (7) Projections for the productivity of individual 
        employees at the Administration and the Board in carrying out 
        tasks relating to the processing of appeals of decisions on 
        legacy claims and appeals under the new appeals system, taking 
        into account the experience level of new employees and the 
        enhanced notice requirements under section 5104(b) of title 38, 
        United States Code, as amended by section 2(e).</DELETED>
        <DELETED>    (8) An outline of the outreach the Secretary 
        expects to conduct to inform veterans, families of veterans, 
        survivors of veterans, veterans service organizations, military 
        service organizations, congressional caseworkers, advocates for 
        veterans, and such other stakeholders as the Secretary 
        considers appropriate about the new appeals system, including--
        </DELETED>
                <DELETED>    (A) a description of the resources 
                required to conduct such outreach; and</DELETED>
                <DELETED>    (B) timelines for completing such 
                outreach.</DELETED>
        <DELETED>    (9) Identification of and a timeline for--
        </DELETED>
                <DELETED>    (A) any training that may be required as a 
                result of hiring new employees to carry out the new 
                appeals system or to process appeals of decisions on 
                legacy claims; and</DELETED>
                <DELETED>    (B) any retraining of existing employees 
                that may be required to carry out such system or to 
                process such claims.</DELETED>
        <DELETED>    (10) Identification of the costs to the Department 
        of the training identified under paragraph (9) and any 
        additional training staff and any additional training 
        facilities that will be required to provide such 
        training.</DELETED>
        <DELETED>    (11) Timelines for updating any policy guidance, 
        Internet websites, and official forms that may be necessary to 
        carry out the new appeals system, including--</DELETED>
                <DELETED>    (A) identification of which offices and 
                entities will be involved in efforts relating to such 
                updating; and</DELETED>
                <DELETED>    (B) historical information about how long 
                similar update efforts have taken.</DELETED>
        <DELETED>    (12) A timeline, including interim milestones, for 
        promulgating such regulations as may be necessary to carry out 
        the new appeals system and a comparison with historical 
        averages for time required to promulgate regulations of similar 
        complexity and scope.</DELETED>
        <DELETED>    (13) An outline of the circumstances under which 
        claimants with pending appeals of decisions on legacy claims 
        would be authorized to have their appeals reviewed under the 
        new appeals system.</DELETED>
        <DELETED>    (14) A delineation of the key goals and milestones 
        for reducing the number of pending appeals that are not 
        processed under the new appeals system, including the expected 
        number of appeals, remands, and hearing requests at the 
        Administration and the Board each year, beginning with the one 
        year period beginning on the date of the enactment of this Act, 
        until there are no longer any appeals pending before the 
        Administration or the Board for a decision on a legacy 
        claim.</DELETED>
        <DELETED>    (15) A description of each risk factor associated 
        with each element of the plan and a contingency plan to 
        minimize each such risk.</DELETED>
<DELETED>    (c) Review by Comptroller General of the United States.--
</DELETED>
        <DELETED>    (1) In general.--Not later than 90 days after the 
        Comptroller General of the United States receives the plan 
        required by subsection (a), the Comptroller General shall--
        </DELETED>
                <DELETED>    (A) assess such plan; and</DELETED>
                <DELETED>    (B) notify the appropriate committees of 
                Congress of the findings of the Comptroller General 
                with respect to the assessment conducted under 
                subparagraph (A).</DELETED>
        <DELETED>    (2) Elements.--The assessment conducted under 
        paragraph (1)(A) shall include the following:</DELETED>
                <DELETED>    (A) An assessment of whether the plan 
                comports with sound planning practices.</DELETED>
                <DELETED>    (B) Identification of any gaps in the 
                plan.</DELETED>
                <DELETED>    (C) Formulation of such recommendations as 
                the Comptroller General considers 
                appropriate.</DELETED>
<DELETED>    (d) Periodic Progress Reports.--Not later than 90 days 
after the date on which the Secretary submits the plan under subsection 
(a), not less frequently than once every 90 days thereafter until the 
applicability date set forth in section 2(x)(1), and not less 
frequently than once every 180 days thereafter for the 10-year period 
following such applicability date, the Secretary shall submit to the 
appropriate committees of Congress and the Comptroller General a report 
on the progress of the Secretary in carrying out the plan.</DELETED>
<DELETED>    (e) Appropriate Committees of Congress Defined.--In this 
section, the term ``appropriate committees of Congress'' means--
</DELETED>
        <DELETED>    (1) the Committee on Veterans' Affairs and the 
        Committee on Appropriations of the Senate; and</DELETED>
        <DELETED>    (2) the Committee on Veterans' Affairs and the 
        Committee on Appropriations of the House of 
        Representatives.</DELETED>

<DELETED>SEC. 4. PROGRAMS TO TEST ASSUMPTIONS RELIED ON IN DEVELOPMENT 
              OF COMPREHENSIVE PLAN FOR PROCESSING OF LEGACY APPEALS 
              AND SUPPORTING NEW APPEALS SYSTEM.</DELETED>

<DELETED>    (a) Authorization.--</DELETED>
        <DELETED>    (1) In general.--The Secretary of Veterans Affairs 
        may carry out such programs as the Secretary considers 
        appropriate to test any assumptions relied upon in developing 
        the comprehensive plan required by section 3(a) and to test the 
        feasibility and advisability of any facet of the new appeals 
        system.</DELETED>
        <DELETED>    (2) Reporting required.--Whenever the Secretary 
        determines, based on the conduct of a program under paragraph 
        (1), that legislative changes to the new appeals system are 
        necessary, the Secretary shall submit to the Committee on 
        Veterans' Affairs of the Senate and the Committee on Veterans' 
        Affairs of the House of Representatives notice of such 
        determination.</DELETED>
<DELETED>    (b) Department of Veterans Affairs Program on Fully 
Developed Appeals.--</DELETED>
        <DELETED>    (1) In general.--The Secretary of Veterans Affairs 
        may, under subsection (a)(1), carry out a program to provide 
        the option of an alternative appeals process that shall more 
        quickly determine such appeals in accordance with this 
        subsection.</DELETED>
        <DELETED>    (2) Election.--</DELETED>
                <DELETED>    (A) Filing.--In accordance with 
                subparagraph (B), a claimant may elect to file a fully 
                developed appeal under the program by filing with the 
                Secretary all of the following:</DELETED>
                        <DELETED>    (i) The notice of disagreement 
                        under chapter 71 of title 38, United States 
                        Code, along with the written election of the 
                        claimant to have the appeal determined under 
                        the program.</DELETED>
                        <DELETED>    (ii) All evidence that the 
                        claimant believes is needed for the appeal as 
                        of the date of the filing.</DELETED>
                        <DELETED>    (iii) A statement of the argument 
                        in support of the claim, if any.</DELETED>
                <DELETED>    (B) Timing.--A claimant shall make an 
                election under subparagraph (A) as part of the notice 
                of disagreement filed by the claimant in accordance 
                with subparagraph (A)(i).</DELETED>
                <DELETED>    (C) Triage.--The Secretary shall, upon 
                expiration of the period specified in paragraph 
                (3)(C)(iii), ensure that an assessment is undertaken of 
                whether an appeal filed under subparagraph (A) of this 
                paragraph satisfies the requirements for appeal under 
                the program and provide appropriate notification to the 
                claimant of the results of that assessment.</DELETED>
                <DELETED>    (D) Reversion.--</DELETED>
                        <DELETED>    (i) Elected reversion.--At any 
                        time, a claimant who makes an election under 
                        subparagraph (A) may elect to revert to the 
                        standard appeals process. Such a reversion 
                        shall be final.</DELETED>
                        <DELETED>    (ii) Automatic reversion.--A 
                        claimant described in clause (i), or a claimant 
                        who makes an election under subparagraph (A) 
                        but is later determined to be ineligible for 
                        the program under paragraph (1), shall revert 
                        to the standard appeals process without any 
                        penalty to the claimant other than the loss of 
                        the docket number associated with the fully 
                        developed appeal.</DELETED>
                <DELETED>    (E) Outreach.--In providing claimants with 
                notices of the determination of a claim during the 
                period in which the program under paragraph (1) is 
                carried out, the Secretary shall conduct outreach as 
                follows:</DELETED>
                        <DELETED>    (i) The Secretary shall provide to 
                        the claimant (and to the representative of 
                        record of the claimant, if any) information 
                        regarding--</DELETED>
                                <DELETED>    (I) the program, including 
                                the advantages and disadvantages of the 
                                program;</DELETED>
                                <DELETED>    (II) how to make an 
                                election under subparagraph 
                                (A);</DELETED>
                                <DELETED>    (III) the limitation on 
                                the use of new evidence described in 
                                subparagraph (C) of paragraph (3) and 
                                the development of information under 
                                subparagraph (D) of such 
                                paragraph;</DELETED>
                                <DELETED>    (IV) the ability of the 
                                claimant to seek advice and education 
                                regarding such process from veterans 
                                service organizations, attorneys, and 
                                claims agents recognized under chapter 
                                59 of title 38, United States Code; 
                                and</DELETED>
                                <DELETED>    (V) the circumstances 
                                under which the appeal will 
                                automatically revert to the standard 
                                appeals process, including by making a 
                                request for a hearing.</DELETED>
                        <DELETED>    (ii) The Secretary shall 
                        collaborate, partner with, and give weight to 
                        the advice of the three veterans service 
                        organizations with the most members and such 
                        other stakeholders as the Secretary considers 
                        appropriate to publish on the Internet website 
                        of the Department of Veterans Affairs an online 
                        tutorial explaining the advantages and 
                        disadvantages of the program.</DELETED>
        <DELETED>    (3) Treatment by department and board.--</DELETED>
                <DELETED>    (A) Process.--Upon the election of a 
                claimant to file a fully developed appeal pursuant to 
                paragraph (2)(A), the Secretary shall--</DELETED>
                        <DELETED>    (i) not provide the claimant with 
                        a statement of the case nor require the 
                        claimant to file a substantive appeal; 
                        and</DELETED>
                        <DELETED>    (ii) transfer jurisdiction over 
                        the fully developed appeal directly to the 
                        Board of Veterans' Appeals.</DELETED>
                <DELETED>    (B) Docket.--</DELETED>
                        <DELETED>    (i) In general.--The Board of 
                        Veterans' Appeals shall--</DELETED>
                                <DELETED>    (I) maintain fully 
                                developed appeals on a separate docket 
                                than standard appeals;</DELETED>
                                <DELETED>    (II) decide fully 
                                developed appeals in the order that the 
                                fully developed appeals are received on 
                                the fully developed appeal 
                                docket;</DELETED>
                                <DELETED>    (III) except as provided 
                                by clause (ii), decide not more than 
                                one fully developed appeal for each 
                                four standard appeals decided; 
                                and</DELETED>
                                <DELETED>    (IV) to the extent 
                                practicable, decide each fully 
                                developed appeal by the date that is 
                                one year following the date on which 
                                the claimant files the notice of 
                                disagreement.</DELETED>
                        <DELETED>    (ii) Adjustment.--Beginning one 
                        year after the date on which the program 
                        commences, the Board may adjust the number of 
                        standard appeals decided for each fully 
                        developed appeal under clause (i)(III) if the 
                        Board determines that such adjustment is fair 
                        for both standard appeals and fully developed 
                        appeals.</DELETED>
                <DELETED>    (C) Limitation on use of new evidence.--
                </DELETED>
                        <DELETED>    (i) In general.--Except as 
                        provided by clauses (ii) and (iii)--</DELETED>
                                <DELETED>    (I) a claimant may not 
                                submit or identify to the Board of 
                                Veterans' Appeals any new evidence 
                                relating to a fully developed appeal 
                                after filing such appeal unless the 
                                claimant reverts to the standard 
                                appeals process pursuant to paragraph 
                                (2)(D); and</DELETED>
                                <DELETED>    (II) if a claimant submits 
                                or identifies any such new evidence, 
                                such submission or identification shall 
                                be deemed to be an election to make 
                                such a reversion pursuant to paragraph 
                                (2)(D).</DELETED>
                        <DELETED>    (ii) Evidence gathered by board.--
                        Clause (i) shall not apply to evidence 
                        developed pursuant to subparagraphs (D) and 
                        (E). The Board shall consider such evidence in 
                        the first instance without consideration by the 
                        Veterans Benefits Administration.</DELETED>
                        <DELETED>    (iii) Representative of record.--
                        The representative of record of a claimant for 
                        appeals purposes, if any, shall be provided an 
                        opportunity to review the fully developed 
                        appeal of the claimant and submit any 
                        additional arguments or evidence that the 
                        representative determines necessary during a 
                        period specified by the Board for purposes of 
                        this subparagraph.</DELETED>
                <DELETED>    (D) Prohibition on remand for additional 
                development.--If the Board of Veterans' Appeals 
                determines that a fully developed appeal requires 
                Federal records, independent medical opinions, or new 
                medical examinations, the Board shall--</DELETED>
                        <DELETED>    (i) in accordance with 
                        subparagraph (E), take such actions as may be 
                        necessary to develop such records, opinions, or 
                        examinations in accordance with section 5103A 
                        of title 38, United States Code;</DELETED>
                        <DELETED>    (ii) retain jurisdiction of the 
                        fully developed appeal without requiring a 
                        determination by the Veterans Benefits 
                        Administration based on such records, opinions, 
                        or examinations;</DELETED>
                        <DELETED>    (iii) ensure the claimant, and the 
                        representative of record of a claimant, if any, 
                        receives a copy of such records, opinions, or 
                        examinations; and</DELETED>
                        <DELETED>    (iv) provide the claimant a period 
                        of 90 days after the date of mailing such 
                        records, opinions, or examinations during which 
                        the claimant may provide the Board any 
                        additional evidence without requiring the 
                        claimant to make a reversion pursuant to 
                        paragraph (2)(D).</DELETED>
                <DELETED>    (E) Development unit.--</DELETED>
                        <DELETED>    (i) Establishment.--The Board of 
                        Veterans' Appeals shall establish an office to 
                        develop Federal records, independent medical 
                        opinions, and new medical examinations pursuant 
                        to subparagraph (D)(i) that the Board 
                        determines necessary to decide a fully 
                        developed appeal.</DELETED>
                        <DELETED>    (ii) Requirements.--The Secretary 
                        shall--</DELETED>
                                <DELETED>    (I) ensure that the 
                                Veterans Benefits Administration 
                                cooperates with the Board of Veterans' 
                                Appeals in carrying out clause (i); 
                                and</DELETED>
                                <DELETED>    (II) transfer employees of 
                                the Veterans Benefits Administration 
                                who, prior to the enactment of this 
                                Act, were responsible for processing 
                                claims remanded by the Board of 
                                Veterans' Appeals to positions within 
                                the office of the Board established 
                                under clause (i) in a number the 
                                Secretary determines sufficient to 
                                carry out such subparagraph.</DELETED>
                <DELETED>    (F) Hearings.--Notwithstanding section 
                7107 of title 38, United States Code, the Secretary may 
                not provide hearings with respect to fully developed 
                appeals under the program. If a claimant requests to 
                hold a hearing pursuant to such section 7107, such 
                request shall be deemed to be an election to revert to 
                the standard appeals process pursuant to paragraph 
                (2)(D).</DELETED>
        <DELETED>    (4) Duration; applicability.--</DELETED>
                <DELETED>    (A) Duration.--Subject to subsection (c), 
                the Secretary may carry out the program during such 
                period as the Secretary considers 
                appropriate.</DELETED>
                <DELETED>    (B) Applicability.--This section shall 
                apply only to fully developed appeals that are filed 
                during the period in which the program is carried out 
                pursuant to subparagraph (A).</DELETED>
        <DELETED>    (5) Definitions.--In this subsection:</DELETED>
                <DELETED>    (A) Compensation.--The term 
                ``compensation'' has the meaning given that term in 
                section 101 of title 38, United States Code.</DELETED>
                <DELETED>    (B) Fully developed appeal.--The term 
                ``fully developed appeal'' means an appeal of a claim 
                for disability compensation that is--</DELETED>
                        <DELETED>    (i) filed by a claimant in 
                        accordance with paragraph (2)(A); and</DELETED>
                        <DELETED>    (ii) considered in accordance with 
                        this subsection.</DELETED>
                <DELETED>    (C) Standard appeal.--The term ``standard 
                appeal'' means an appeal of a claim for disability 
                compensation that is not a fully developed 
                appeal.</DELETED>
<DELETED>    (c) Termination of Authority.--The Secretary of Veterans 
Affairs may not carry out a program under this section after the 
applicability date set forth in section 2(x)(1).</DELETED>

<DELETED>SEC. 5. PERIODIC PUBLICATION OF METRICS RELATING TO PROCESSING 
              OF APPEALS BY DEPARTMENT OF VETERANS AFFAIRS.</DELETED>

<DELETED>    The Secretary of Veterans Affairs shall periodically 
publish on an Internet website of the Department of Veterans Affairs 
the following:</DELETED>
        <DELETED>    (1) With respect to the processing by the 
        Secretary of appeals under the new appeals system of decisions 
        regarding claims for benefits under laws administered by the 
        Secretary, the following:</DELETED>
                <DELETED>    (A) For the Veterans Benefits 
                Administration and, to the extent practicable, each 
                regional office of the Department of Veterans Affairs, 
                the number of--</DELETED>
                        <DELETED>    (i) supplemental claims under 
                        section 5108 of title 38, United States Code, 
                        as amended by section 2(i), that are pending; 
                        and</DELETED>
                        <DELETED>    (ii) requests for higher-level 
                        review under section 5104B of such title, as 
                        added by section 2(g), that are 
                        pending.</DELETED>
                <DELETED>    (B) The number of appeals on any docket 
                maintained under section 7107 of such title, as amended 
                by section 2(t), that are pending.</DELETED>
                <DELETED>    (C) The average duration for processing 
                claims and supplemental claims, disaggregated by 
                regional office.</DELETED>
                <DELETED>    (D) The average duration for processing 
                requests for higher-level review under section 5104B of 
                such title, as added by section 2(g), disaggregated by 
                regional office.</DELETED>
                <DELETED>    (E) The average number of days that 
                appeals are pending on a non-hearing option docket of 
                the Board of Veterans' Appeals maintained pursuant to 
                section 7107 of such title, as amended by section 2(t), 
                and any other docket maintained by the Board under such 
                section that prohibits the submittal of additional 
                evidence.</DELETED>
                <DELETED>    (F) The average number of days that 
                appeals are pending on dockets maintained under such 
                section in which hearings are requested or submittal of 
                additional evidence is allowed.</DELETED>
                <DELETED>    (G) The average number of days that an 
                appeal is pending on any other docket maintained by the 
                Board under such section.</DELETED>
                <DELETED>    (H) In the case that the Secretary 
                develops and implements a policy under section 7107(e) 
                of such title, as amended by section 2(t)--</DELETED>
                        <DELETED>    (i) the number of cases moved from 
                        one docket to another pursuant to such 
                        policy;</DELETED>
                        <DELETED>    (ii) the average time cases were 
                        pending prior to moving from one docket to 
                        another; and</DELETED>
                        <DELETED>    (iii) the average time to 
                        adjudicate the cases after so moving.</DELETED>
                <DELETED>    (I) The total number of remands to obtain 
                advisory medical opinions under section 5109(d) of 
                title 38, United States Code, as added by section 
                2(j).</DELETED>
                <DELETED>    (J) The average number of days between the 
                date on which the Board remands a claim to obtain an 
                advisory medical opinion under section 5109(d) of such 
                title, as so added, and the date on which the advisory 
                medical opinion is obtained.</DELETED>
                <DELETED>    (K) The average number of days between the 
                date on which the Board remands a claim to obtain an 
                advisory medical opinion under section 5109(d) of such 
                title, as so added, and the date on which the agency of 
                original jurisdiction issues a decision taking that 
                advisory opinion into account.</DELETED>
                <DELETED>    (L) The number of appeals that are 
                granted, the number of appeals that are remanded, and 
                the number of appeals that are denied by the Board 
                disaggregated by docket.</DELETED>
                <DELETED>    (M) The number of claimants each year that 
                take action within the period set forth in section 
                5110(a)(2) of such title, as added by section 2(l), to 
                protect their effective date under such section 
                5110(a)(2), disaggregated by the status of the 
                claimants taking the actions, such as whether the 
                claimant is represented by a veterans service 
                organization, the claimant is represented by an 
                attorney, or the claimant is taking such action pro 
                se.</DELETED>
                <DELETED>    (N) The total number of times on average 
                each claimant files under section 5110(a)(2) of such 
                title, as so added, to protect their effective date 
                under such section, disaggregated by the subparagraph 
                of such section under which they file.</DELETED>
                <DELETED>    (O) The average duration, from the filing 
                of an initial claim until the claim is resolved and 
                claimants no longer take any action to protect their 
                effective date under section 5110(a)(2) of such title, 
                as so added--</DELETED>
                        <DELETED>    (i) of claims under the new 
                        appeals system, excluding legacy claims that 
                        opt in to the new appeals system; and</DELETED>
                        <DELETED>    (ii) of legacy claims that opt in 
                        to the new appeals system.</DELETED>
                <DELETED>    (P) How frequently an action taken within 
                one year to protect an effective date under section 
                5110(a)(2) of such title, as so added, leads to 
                additional grant of benefits, disaggregated by action 
                taken.</DELETED>
                <DELETED>    (Q) The average of how long it takes to 
                complete each segment of the claims process while 
                claimants are protecting the effective date under such 
                section, disaggregated by the time waiting for the 
                claimant to take an action and the time waiting for the 
                Secretary to take an action.</DELETED>
                <DELETED>    (R) The number and the average amount of 
                retroactive awards of benefits from the Secretary as a 
                result of protected effective dates under such section, 
                disaggregated by action taken.</DELETED>
                <DELETED>    (S) The average number of times claimants 
                submit to the Secretary different claims with respect 
                to same condition, such as an initial claim and a 
                supplemental claim.</DELETED>
                <DELETED>    (T) The number of cases each year in which 
                a claimant inappropriately tried to take simultaneous 
                actions, such as filing a supplemental claim while a 
                higher-level review is pending, what actions the 
                Secretary took in response, and how long it took on 
                average to take those actions.</DELETED>
                <DELETED>    (U) In the case that the Secretary 
                develops and implements a policy under section 
                5104C(a)(2)(D) of such title, as amended by section 
                2(h)(1), the number of actions withdrawn and new 
                actions taken pursuant to such policy.</DELETED>
                <DELETED>    (V) The number of times the Secretary 
                received evidence relating to an appeal or higher-level 
                review at a time not authorized under the new appeals 
                system, disaggregated by actions taken by the Secretary 
                to deal with the evidence and how long on average it 
                took to take those actions.</DELETED>
                <DELETED>    (W) The number of errors committed by the 
                Secretary in carrying out the Secretary's duty to 
                assist under section 5103A of title 38, United States 
                Code, that were identified by higher-level review and 
                by the Board, disaggregated by type of error, such as 
                errors relating to private records and inadequate 
                examinations, and a comparison with errors committed by 
                the Secretary in carrying out such duty with respect to 
                appeals of decisions on legacy claims.</DELETED>
                <DELETED>    (X) An assessment of the productivity of 
                employees at the regional offices and at the Board, 
                disaggregated by level of experience of the 
                employees.</DELETED>
        <DELETED>    (2) With respect to the processing by the 
        Secretary of appeals of decisions on legacy claims, the 
        following:</DELETED>
                <DELETED>    (A) The average duration of each segment 
                of the appeals process, disaggregated by periods in 
                which the Secretary is waiting for a claimant to take 
                an action and periods in which the claimant is waiting 
                for the Secretary to take an action.</DELETED>
                <DELETED>    (B) The frequency by which appeals lead to 
                additional grant of benefits by the Secretary, 
                disaggregated by whether the additional benefits are a 
                result of additional evidence added after the initial 
                decision.</DELETED>
                <DELETED>    (C) The number and average amount of 
                retroactive awards of benefits resulting from an 
                appeal.</DELETED>
                <DELETED>    (D) The average duration from filing a 
                legacy claim with the Secretary until all appeals and 
                remands relating to such legacy claim are 
                completed.</DELETED>
                <DELETED>    (E) The average number of times claimants 
                submit to the Secretary different claims with respect 
                to same condition, such as an initial claim, new and 
                material evidence, or a claim for an increase in 
                benefits.</DELETED>
                <DELETED>    (F) An assessment of the productivity of 
                employees at the regional offices and at the Board, 
                disaggregated by level of experience of the 
                employees.</DELETED>
                <DELETED>    (G) The average number of days the 
                duration of an appeal is extended because the Secretary 
                secured or attempted to secure an advisory medical 
                opinion under section 5109 of title 38, United States 
                Code, or section 7109 of such title (as in effect on 
                the day before the date of the enactment of this 
                Act).</DELETED>
        <DELETED>    (3) With respect to the processing by the 
        Secretary of appeals of decisions on legacy claims that opt in 
        to the new appeals system, the following:</DELETED>
                <DELETED>    (A) The cumulative number of such legacy 
                claims.</DELETED>
                <DELETED>    (B) The portion of work in the new appeals 
                system attributable to appeals of decisions on such 
                legacy claims.</DELETED>
                <DELETED>    (C) The average period such legacy claims 
                were pending before opting in to the new appeals system 
                and the average period required to adjudicate such 
                legacy claims on average after opting in--</DELETED>
                        <DELETED>    (i) with respect to claims at a 
                        regional office of the Department of Veterans 
                        Affairs, disaggregated by--</DELETED>
                                <DELETED>    (I) supplemental claims 
                                under section 5108 of title 38, United 
                                States Code, as amended by section 
                                2(i); and</DELETED>
                                <DELETED>    (II) requests for higher-
                                level review under section 5104B of 
                                such title, as added by section 2(g); 
                                and</DELETED>
                        <DELETED>    (ii) with respect to appeals, 
                        disaggregated by docket of the Board maintained 
                        under section 7107 of such title, as amended by 
                        section 2(t).</DELETED>

<DELETED>SEC. 6. DEFINITIONS.</DELETED>

<DELETED>    In this Act:</DELETED>
        <DELETED>    (1) Claimant.--The term ``claimant'' has the 
        meaning given such term in section 5100 of title 38, United 
        States Code.</DELETED>
        <DELETED>    (2) Legacy claims.--The term ``legacy claim'' 
        means a claim--</DELETED>
                <DELETED>    (A) that was submitted to the Secretary of 
                Veterans Affairs for a benefit under a law administered 
                by the Secretary; and</DELETED>
                <DELETED>    (B) for which notice of a decision under 
                section 5104 of title 38, United States Code, was 
                provided by the Secretary before the date set forth in 
                section 2(x).</DELETED>
        <DELETED>    (3) Opt in.--The term ``opt in'' means, with 
        respect to a legacy claim of a claimant, that the claimant 
        elects to subject the claim to the new appeals system pursuant 
        to--</DELETED>
                <DELETED>    (A) section 2(x)(3); or</DELETED>
                <DELETED>    (B) such other mechanism as the Secretary 
                may prescribe for purposes of carrying out this Act and 
                the amendments made by this Act.</DELETED>
        <DELETED>    (4) New appeals system.--The term ``new appeals 
        system'' means the set of processes and mechanisms by which the 
        Secretary processes, pursuant to the authorities and 
        requirements modified by section 2, claims for benefits under 
        laws administered by the Secretary.</DELETED>

SECTION 1. SHORT TITLE.

    This Act may be cited as the ``Veterans Appeals Improvement and 
Modernization Act of 2017''.

SEC. 2. REFORM OF RIGHTS AND PROCESSES RELATING TO APPEALS OF DECISIONS 
              REGARDING CLAIMS FOR BENEFITS UNDER LAWS ADMINISTERED BY 
              SECRETARY OF VETERANS AFFAIRS.

    (a) Definitions.--Section 101 of title 38, United States Code, is 
amended by adding at the end the following new paragraphs:
            ``(34) The term `agency of original jurisdiction' means the 
        activity which entered the original determination with regard 
        to a claim for benefits under laws administered by the 
        Secretary.
            ``(35) The term `relevant evidence' means evidence that 
        tends to prove or disprove a matter in issue.
            ``(36) The term `supplemental claim' means a claim for 
        benefits under laws administered by the Secretary filed by a 
        claimant who had previously filed a claim for the same or 
        similar benefits on the same or similar basis.''.
    (b) Notice Regarding Claims.--Section 5103(a) of such title is 
amended--
            (1) in paragraph (1), in the first sentence, by striking 
        ``The'' and inserting ``Except as provided in paragraph (3), 
        the'';
            (2) in paragraph (2)(B)(i) by striking ``, a claim for 
        reopening a prior decision on a claim, or a claim for an 
        increase in benefits;'' and inserting ``or a supplemental 
        claim;''; and
            (3) by adding at the end the following new paragraph:
    ``(3) The requirement to provide notice under paragraph (1) shall 
not apply with respect to a supplemental claim that is filed within the 
timeframe set forth in subparagraphs (B) and (D) of section 5110(a)(2) 
of this title.''.
    (c) Modification of Rule Regarding Disallowed Claims.--Section 
5103A(f) of such title is amended--
            (1) by striking ``reopen'' and inserting ``readjudicate''; 
        and
            (2) by striking ``material'' and inserting ``relevant''.
    (d) Modification of Duty to Assist Claimants.--Section 5103A of 
such title is amended--
            (1) by redesignating subsections (e) through (g) as 
        subsections (g) through (i), respectively; and
            (2) by inserting after subsection (d) the following new 
        subsections:
    ``(e) Applicability of Duty to Assist.--(1) The Secretary's duty to 
assist under this section shall apply only to a claim, or supplemental 
claim, for a benefit under a law administered by the Secretary until 
the time that a claimant is provided notice of the agency of original 
jurisdiction's decision with respect to such claim, or supplemental 
claim, under section 5104 of this title.
    ``(2) The Secretary's duty to assist under this section shall not 
apply to higher-level review by the agency of original jurisdiction, 
pursuant to section 5104B of this title, or to review on appeal by the 
Board of Veterans' Appeals.
    ``(f) Correction of Duty to Assist Errors.--(1) If, during review 
of the agency of original jurisdiction decision under section 5104B of 
this title, the higher-level adjudicator identifies or learns of an 
error on the part of the agency of original jurisdiction to satisfy its 
duties under this section, and that error occurred prior to the agency 
of original jurisdiction decision being reviewed, unless the Secretary 
may award the maximum benefit in accordance with this title based on 
the evidence of record, the higher-level adjudicator shall return the 
claim for correction of such error and readjudication.
    ``(2)(A) If the Board of Veterans' Appeals, during review on appeal 
of an agency of original jurisdiction decision, identifies or learns of 
an error on the part of the agency of original jurisdiction to satisfy 
its duties under this section, and that error occurred prior to the 
agency of original jurisdiction decision on appeal, unless the 
Secretary may award the maximum benefit in accordance with this title 
based on the evidence of record, the Board shall remand the claim to 
the agency of original jurisdiction for correction of such error and 
readjudication.
    ``(B) Remand for correction of such error may include directing the 
agency of original jurisdiction to obtain an advisory medical opinion 
under section 5109 of this title.
    ``(3) Nothing in this subsection shall be construed to imply that 
the Secretary, during the consideration of a claim, does not have a 
duty to correct an error described in paragraph (1) or (2) that was 
erroneously not identified during higher-level review or during review 
on appeal with respect to the claim.''.
    (e) Decisions and Notices of Decisions.--Subsection (b) of section 
5104 of such title is amended to read as follows:
    ``(b) Each notice provided under subsection (a) shall also include 
all of the following:
            ``(1) Identification of the issues adjudicated.
            ``(2) A summary of the evidence considered by the 
        Secretary.
            ``(3) A summary of the applicable laws and regulations.
            ``(4) Identification of findings favorable to the claimant.
            ``(5) In the case of a denial, identification of elements 
        not satisfied leading to the denial.
            ``(6) An explanation of how to obtain or access evidence 
        used in making the decision.
            ``(7) If applicable, identification of the criteria that 
        must be satisfied to grant service connection or the next 
        higher level of compensation.''.
    (f) Binding Nature of Favorable Findings.--
            (1) In general.--Chapter 51 of such title is amended by 
        inserting after section 5104 the following new section:
``Sec. 5104A. Binding nature of favorable findings
    ``Any finding favorable to the claimant as described in section 
5104(b)(4) of this title shall be binding on all subsequent 
adjudicators within the Department, unless clear and convincing 
evidence is shown to the contrary to rebut such favorable finding.''.
            (2) Clerical amendment.--The table of sections at the 
        beginning of chapter 51 of such title is amended by inserting 
        after the item relating to section 5104 the following new item:

``5104A. Binding nature of favorable findings.''.
    (g) Higher-level Review by Agency of Original Jurisdiction.--
            (1) In general.--Chapter 51 of such title, as amended by 
        subsection (f), is further amended by inserting after section 
        5104A, as added by such subsection, the following new section:
``Sec. 5104B. Higher-level review by the agency of original 
              jurisdiction
    ``(a) In General.--(1) A claimant may request a review of the 
decision of the agency of original jurisdiction by a higher-level 
adjudicator within the agency of original jurisdiction.
    ``(2) The Secretary shall approve each request for review under 
paragraph (1).
    ``(b) Time and Manner of Request.--(1) A request for higher-level 
review by the agency of original jurisdiction shall be--
            ``(A) in writing in such form as the Secretary may 
        prescribe; and
            ``(B) made within one year of the notice of the agency of 
        original jurisdiction's decision.
    ``(2) Such request may specifically indicate whether such review is 
requested by a higher-level adjudicator at the same office within the 
agency of original jurisdiction or by an adjudicator at a different 
office of the agency of original jurisdiction. The Secretary shall not 
deny such request for review by an adjudicator at a different office of 
the agency of original jurisdiction without good cause.
    ``(c) Decision.--Notice of a higher-level review decision under 
this section shall be provided in writing and shall include a general 
statement--
            ``(1) reflecting whether evidence was not considered 
        pursuant to subsection (d); and
            ``(2) noting the options available to the claimant to have 
        the evidence described in paragraph (1), if any, considered by 
        the Department.
    ``(d) Evidentiary Record for Review.--The evidentiary record before 
the higher-level adjudicator shall be limited to the evidence of record 
in the agency of original jurisdiction decision being reviewed.
    ``(e) De Novo Review.--A review of the decision of the agency of 
original jurisdiction by a higher-level adjudicator within the agency 
of original jurisdiction shall be de novo.''.
            (2) Clerical amendment.--The table of sections at the 
        beginning of chapter 51 of such title, as amended by subsection 
        (f), is further amended by inserting after the item relating to 
        section 5104A, as added by such subsection, the following new 
        item:

``5104B. Higher-level review by the agency of original jurisdiction.''.
    (h) Options Following Decision by Agency of Original 
Jurisdiction.--
            (1) In general.--Chapter 51 of such title, as amended by 
        subsection (g), is further amended by inserting after section 
        5104B, as added by such subsection, the following new section:
``Sec. 5104C. Options following decision by agency of original 
              jurisdiction
    ``(a) Within One Year of Decision.--(1) Subject to paragraph (2), 
in any case in which the Secretary renders a decision on a claim, the 
claimant may take any of the following actions on or before the date 
that is one year after the date on which the agency of original 
jurisdiction issues a decision with respect to that claim:
            ``(A) File a request for higher-level review under section 
        5104B of this title.
            ``(B) File a supplemental claim under section 5108 of this 
        title.
            ``(C) File a notice of disagreement under section 7105 of 
        this title.
    ``(2)(A) Once a claimant takes an action set forth in paragraph 
(1), the claimant may not take another action set forth in that 
paragraph with respect to the same claim or same issue contained within 
the claim until--
            ``(i) the higher-level review, supplemental claim, or 
        notice of disagreement is adjudicated; or
            ``(ii) the request for higher-level review, supplemental 
        claim, or notice of disagreement is withdrawn.
    ``(B) Nothing in this subsection shall prohibit a claimant from 
taking any of the actions set forth in paragraph (1) in succession with 
respect to a claim or an issue contained within the claim.
    ``(C) Nothing in this subsection shall prohibit a claimant from 
taking different actions set forth in paragraph (1) with respect to 
different claims or different issues contained within a claim.
    ``(D) The Secretary may, as the Secretary considers appropriate, 
develop and implement a policy for claimants who--
            ``(i) take an action under paragraph (1);
            ``(ii) wish to withdraw the action before the higher-level 
        review, supplemental claim, or notice of disagreement is 
        adjudicated; and
            ``(iii) in lieu of such action take a different action 
        under paragraph (1).
    ``(b) More Than One Year After Decision.--In any case in which the 
Secretary renders a decision on a claim and more than one year has 
passed since the date on which the agency of original jurisdiction 
issues a decision with respect to that claim, the claimant may file a 
supplemental claim under section 5108 of this title.''.
            (2) Clerical amendment.--The table of sections at the 
        beginning of chapter 51 of such title, as amended by subsection 
        (g), is further amended by inserting after the item relating to 
        section 5104B, as added by such subsection, the following new 
        item:

``5104C. Options following decision by agency of original 
                            jurisdiction.''.
    (i) Supplemental Claims.--
            (1) In general.--Section 5108 of such title is amended to 
        read as follows:
``Sec. 5108. Supplemental claims
    ``(a) In General.--If new and relevant evidence is presented or 
secured with respect to a supplemental claim, the Secretary shall 
readjudicate the claim taking into consideration all of the evidence of 
record.
    ``(b) Duty to Assist.--(1) If a claimant, in connection with a 
supplemental claim, reasonably identifies existing records, whether or 
not in the custody of a Federal department or agency, the Secretary 
shall assist the claimant in obtaining the records in accordance with 
section 5103A of this title.
    ``(2) Assistance under paragraph (1) shall not be predicated upon a 
finding that new and relevant evidence has been presented or 
secured.''.
            (2) Rule of construction.--Section 5108 of such title, as 
        amended by paragraph (1), shall not be construed to impose a 
        higher evidentiary threshold than the new and material evidence 
        standard that was in effect pursuant to such section on the day 
        before the date of the enactment of this Act.
            (3) Clerical amendment.--The table of sections at the 
        beginning of chapter 51 of such title is amended by striking 
        the item relating to section 5108 and inserting the following 
        new item:

``5108. Supplemental claims.''.
    (j) Remand to Obtain Advisory Medical Opinion.--Section 5109 of 
such title is amended by adding at the end the following new 
subsection:
    ``(d)(1) The Board of Veterans' Appeals shall remand a claim to 
direct the agency of original jurisdiction to obtain an advisory 
medical opinion from an independent medical expert under this section 
if the Board finds that the Veterans Benefits Administration should 
have exercised its discretion to obtain such an opinion.
    ``(2) The Board's remand instructions shall include the questions 
to be posed to the independent medical expert providing the advisory 
medical opinion.''.
    (k) Restatement of Requirement for Expedited Treatment of Returned 
and Remanded Claims.--
            (1) In general.--Section 5109B of such title is amended to 
        read as follows:
``Sec. 5109B. Expedited treatment of returned and remanded claims
    ``The Secretary shall take such actions as may be necessary to 
provide for the expeditious treatment by the Veterans Benefits 
Administration of any claim that is returned by a higher-level 
adjudicator under section 5104B of this title or remanded by the Board 
of Veterans' Appeals.''.
            (2) Clerical amendment.--The table of sections at the 
        beginning of chapter 51 of such title is amended by striking 
        the item relating to section 5109B and inserting the following 
        new item:

``5109B. Expedited treatment of returned and remanded claims.''.
    (l) Effective Dates of Awards.--Section 5110 of title 38, United 
States Code, is amended--
            (1) by amending subsection (a) to read as follows:
    ``(a)(1) Unless specifically provided otherwise in this chapter, 
the effective date of an award based on an initial claim, or a 
supplemental claim, of compensation, dependency and indemnity 
compensation, or pension, shall be fixed in accordance with the facts 
found, but shall not be earlier than the date of receipt of application 
therefor.
    ``(2) For purposes of determining the effective date of an award 
under this section, the date of application shall be considered the 
date of the filing of the initial application for a benefit if the 
claim is continuously pursued by filing any of the following, either 
alone or in succession:
            ``(A) A request for higher-level review under section 5104B 
        of this title on or before the date that is one year after the 
        date on which the agency of original jurisdiction issues a 
        decision.
            ``(B) A supplemental claim under section 5108 of this title 
        on or before the date that is one year after the date on which 
        the agency of original jurisdiction issues a decision.
            ``(C) A notice of disagreement on or before the date that 
        is one year after the date on which the agency of original 
        jurisdiction issues a decision.
            ``(D) A supplemental claim under section 5108 of this title 
        on or before the date that is one year after the date on which 
        the Board of Veterans' Appeals issues a decision.
            ``(E) A supplemental claim under section 5108 of this title 
        on or before the date that is one year after the date on which 
        the Court of Appeals for Veterans Claims issues a decision.
    ``(3) Except as otherwise provided in this section, for 
supplemental claims received more than one year after the date on which 
the agency of original jurisdiction issued a decision or the Board of 
Veterans' Appeals issued a decision, the effective date shall be fixed 
in accordance with the facts found, but shall not be earlier than the 
date of receipt of the supplemental claim.''; and
            (2) in subsection (i), in the first sentence--
                    (A) by striking ``reopened'' and inserting 
                ``readjudicated'';
                    (B) by striking ``material'' and inserting 
                ``relevant''; and
                    (C) by striking ``reopening'' and inserting 
                ``readjudication''.
    (m) Definition of Award or Increased Award for Purposes of 
Provisions Relating to Commencement of Period of Payment.--Section 
5111(d)(1) of such title is amended by striking ``or reopened award'' 
and inserting ``award or award based on a supplemental claim''.
    (n) Modification of Limitation on Fees Allowable for 
Representation.--Section 5904(c) of such title is amended, in 
paragraphs (1) and (2), by striking ``notice of disagreement is filed'' 
both places it appears and inserting ``claimant is provided notice of 
the agency of original jurisdiction's initial decision under section 
5104 of this title''.
    (o) Clarification of Board of Veterans' Appeals Referral 
Requirements After Order for Reconsideration of Decisions.--Section 
7103(b)(1) of title 38, United States Code, is amended by striking 
``heard'' both places it appears and inserting ``decided''.
    (p) Conforming Amendment Relating to Readjudication.--Section 
7104(b) of such title is amended by striking ``reopened'' and inserting 
``readjudicated''.
    (q) Modification of Procedures for Appeals to Board of Veterans' 
Appeals.--
            (1) In general.--Section 7105 of title 38, United States 
        Code, is amended--
                    (A) in subsection (a), by striking the first 
                sentence and inserting ``Appellate review shall be 
                initiated by the filing of a notice of disagreement in 
                the form prescribed by the Secretary.'';
                    (B) by amending subsection (b) to read as follows:
    ``(b)(1)(A) Except in the case of simultaneously contested claims, 
a notice of disagreement shall be filed within one year from the date 
of the mailing of notice of the decision of the agency of original 
jurisdiction pursuant to section 5104, 5104B, or 5108 of this title.
    ``(B) A notice of disagreement postmarked before the expiration of 
the one-year period shall be accepted as timely filed.
    ``(C) A question as to timeliness or adequacy of the notice of 
disagreement shall be decided by the Board.
    ``(2)(A) Notices of disagreement shall be in writing, shall 
identify the specific determination with which the claimant disagrees, 
and may be filed by the claimant, the claimant's legal guardian, or 
such accredited representative, attorney, or authorized agent as may be 
selected by the claimant or legal guardian.
    ``(B) Not more than one recognized organization, attorney, or agent 
may be recognized at any one time in the prosecution of a claim.
    ``(C) Notices of disagreement shall be filed with the Board.
    ``(3) The notice of disagreement shall indicate whether the 
claimant requests--
            ``(A) a hearing before the Board, which shall include an 
        opportunity to submit evidence in accordance with section 
        7113(b) of this title;
            ``(B) an opportunity to submit additional evidence without 
        a hearing before the Board, which shall include an opportunity 
        to submit evidence in accordance with section 7113(c) of this 
        title; or
            ``(C) a review by the Board without a hearing or the 
        submittal of additional evidence.
    ``(4) The Secretary shall develop a policy to permit a claimant to 
modify the information identified in the notice of disagreement after 
the notice of disagreement has been filed under this section pursuant 
to such requirements as the Secretary may prescribe.'';
                    (C) by amending subsection (c) to read as follows:
    ``(c) If no notice of disagreement is filed in accordance with this 
chapter within the prescribed period, the action or decision of the 
agency of original jurisdiction shall become final and the claim shall 
not thereafter be readjudicated or allowed, except--
            ``(1) in the case of a readjudication or allowance pursuant 
        to a higher-level review that was requested in accordance with 
        section 5104B of this title;
            ``(2) as may otherwise be provided by section 5108 of this 
        title; or
            ``(3) as may otherwise be provided in such regulations as 
        are consistent with this title.'';
                    (D) by striking subsection (d) and inserting the 
                following new subsection (d):
    ``(d) The Board may dismiss any appeal which fails to identify the 
specific determination with which the claimant disagrees.'';
                    (E) by striking subsection (e); and
                    (F) in the section heading, by striking ``notice of 
                disagreement and''.
            (2) Clerical amendment.--The table of sections at the 
        beginning of chapter 71 of such title is amended by striking 
        the item relating to section 7105 and inserting the following 
        new item:

``7105. Filing of appeal.''.
    (r) Modification of Procedures and Requirements for Simultaneously 
Contested Claims.--Subsection (b) of section 7105A of such title is 
amended to read as follows:
    ``(b)(1) The substance of the notice of disagreement shall be 
communicated to the other party or parties in interest and a period of 
thirty days shall be allowed for filing a brief or argument in response 
thereto.
    ``(2) Such notice shall be forwarded to the last known address of 
record of the parties concerned, and such action shall constitute 
sufficient evidence of notice.''.
    (s) Repeal of Procedures for Administrative Appeals.--
            (1) In general.--Chapter 71 of such title is amended by 
        striking section 7106.
            (2) Clerical amendment.--The table of sections at the 
        beginning of chapter 71 of such title is amended by striking 
        the item relating to section 7106.
    (t) Modifications Relating to Appeals: Dockets; Hearings.--Section 
7107 of such title is amended to read as follows:
``Sec. 7107. Appeals: dockets; hearings
    ``(a) Dockets.--(1) Subject to paragraph (2), the Board shall 
maintain at least two separate dockets.
    ``(2) The Board may not maintain more than two separate dockets 
unless the Board notifies the Committee on Veterans' Affairs of the 
Senate and the Committee on Veterans' Affairs of the House of 
Representatives of any additional docket, including a justification for 
maintaining such additional docket.
    ``(3)(A) The Board may assign to each docket maintained under 
paragraph (1) such cases as the Board considers appropriate, except 
that cases described in clause (i) of subparagraph (B) may not be 
assigned to any docket to which cases described in clause (ii) of such 
paragraph are assigned.
    ``(B) Cases described in this paragraph are the following:
            ``(i) Cases in which no Board hearing is requested.
            ``(ii) Cases in which a Board hearing is requested in the 
        notice of disagreement.
    ``(4) Except as provided in subsection (b), each case before the 
Board will be decided in regular order according to its respective 
place on the docket to which it is assigned by the Board.
    ``(b) Advancement on the Docket.--(1) A case on one of the dockets 
of the Board maintained under subsection (a) may, for cause shown, be 
advanced on motion for earlier consideration and determination.
    ``(2) Any such motion shall set forth succinctly the grounds upon 
which the motion is based.
    ``(3) Such a motion may be granted only--
            ``(A) if the case involves interpretation of law of general 
        application affecting other claims;
            ``(B) if the appellant is seriously ill or is under severe 
        financial hardship; or
            ``(C) for other sufficient cause shown.
    ``(c) Manner and Scheduling of Hearings for Cases on a Docket That 
May Include a Hearing.--(1) For cases on a docket maintained by the 
Board under subsection (a) that may include a hearing, in which a 
hearing is requested in the notice of disagreement, the Board shall 
notify the appellant whether a Board hearing will be held--
            ``(A) at its principal location; or
            ``(B) by picture and voice transmission at a facility of 
        the Department where the Secretary has provided suitable 
        facilities and equipment to conduct such hearings.
    ``(2)(A) Upon notification of a Board hearing at the Board's 
principal location as described in subparagraph (A) of paragraph (1), 
the appellant may alternatively request a hearing as described in 
subparagraph (B) of such paragraph. If so requested, the Board shall 
grant such request.
    ``(B) Upon notification of a Board hearing by picture and voice 
transmission as described in subparagraph (B) of paragraph (1), the 
appellant may alternatively request a hearing as described in 
subparagraph (A) of such paragraph. If so requested, the Board shall 
grant such request.
    ``(d) Screening of Cases.--Nothing in this section shall be 
construed to preclude the screening of cases for purposes of--
            ``(1) determining the adequacy of the record for decisional 
        purposes; or
            ``(2) the development, or attempted development, of a 
        record found to be inadequate for decisional purposes.
    ``(e) Policy on Changing Dockets.--The Secretary shall develop and 
implement a policy allowing an appellant to move the appellant's case 
from one docket to another docket.''.
    (u) Repeal of Certain Authority for Independent Medical Opinions.--
            (1) In general.--Section 7109 of such title is repealed.
            (2) Conforming amendment.--Section 5701(b)(1) of such title 
        is amended by striking ``or 7109''.
            (3) Clerical amendment.--The table of sections at the 
        beginning of chapter 71 of such title is amended by striking 
        the item relating to section 7109.
    (v) Clarification of Procedures for Review of Decisions on Grounds 
of Clear and Unmistakable Error.--Section 7111(e) of such title is 
amended by striking ``, without referral to any adjudicative or hearing 
official acting on behalf of the Secretary''.
    (w) Evidentiary Record Before Board of Veterans' Appeals.--
            (1) In general.--Chapter 71 of such title is amended by 
        adding at the end the following new section:
``Sec. 7113. Evidentiary record before the Board of Veterans' Appeals
    ``(a) Cases With No Request for a Hearing or Additional Evidence.--
For cases in which a hearing before the Board of Veterans' Appeals is 
not requested in the notice of disagreement and no request was made to 
submit evidence, the evidentiary record before the Board shall be 
limited to the evidence of record at the time of the decision of the 
agency of original jurisdiction on appeal.
    ``(b) Cases With a Request for a Hearing.--(1) Except as provided 
in paragraph (2), for cases in which a hearing is requested in the 
notice of disagreement, the evidentiary record before the Board shall 
be limited to the evidence of record at the time of the decision of the 
agency of original jurisdiction on appeal.
    ``(2) The evidentiary record before the Board for cases described 
in paragraph (1) shall include each of the following, which the Board 
shall consider in the first instance:
            ``(A) Evidence submitted by the appellant and his or her 
        representative, if any, at the Board hearing.
            ``(B) Evidence submitted by the appellant and his or her 
        representative, if any, within 90 days following the Board 
        hearing.
    ``(c) Cases With No Request for a Hearing and With a Request for 
Additional Evidence.--(1) Except as provided in paragraph (2), for 
cases in which a hearing is not requested in the notice of disagreement 
but an opportunity to submit evidence is requested, the evidentiary 
record before the Board shall be limited to the evidence considered by 
the agency of original jurisdiction in the decision on appeal.
    ``(2) The evidentiary record before the Board for cases described 
in paragraph (1) shall include each of the following, which the Board 
shall consider in the first instance:
            ``(A) Evidence submitted by the appellant and his or her 
        representative, if any, with the notice of disagreement.
            ``(B) Evidence submitted by the appellant and his or her 
        representative, if any, within 90 days following receipt of the 
        notice of disagreement.''.
            (2) Notification when evidence not considered.--Section 
        7104(d) of such title is amended--
                    (A) in paragraph (1), by striking ``; and'' and 
                inserting a semicolon;
                    (B) by redesignating paragraph (2) as paragraph 
                (3); and
                    (C) by inserting after paragraph (1) the following 
                new paragraph (2):
            ``(2) a general statement--
                    ``(A) reflecting whether evidence was not 
                considered in making the decision because the evidence 
                was received at a time when not permitted under section 
                7113 of this title; and
                    ``(B) noting such options as may be available for 
                having the evidence considered by the Department; 
                and''.
            (3) Clerical amendment.--The table of sections at the 
        beginning of chapter 71 of such title is amended by inserting 
        after the item relating to section 7112 the following new item:

``7113. Evidentiary record before the Board of Veterans' Appeals.''.
    (x) Applicability.--
            (1) In general.--Except as otherwise provided in this 
        subsection, the amendments made by this section shall apply to 
        all claims for which notice of a decision under section 5104 of 
        title 38, United States Code, is provided by the Secretary of 
        Veterans Affairs on or after the later of--
                    (A) the date that is 540 days after the date of the 
                enactment of this Act; and
                    (B) the date that is 30 days after the date on 
                which the Secretary of Veterans Affairs submits to the 
                appropriate committees of Congress--
                            (i) a certification that the Secretary 
                        confirms, without delegation, that the 
                        Department of Veterans Affairs has the 
                        resources, personnel, office space, procedures, 
                        and information technology required--
                                    (I) to carry out the new appeals 
                                system;
                                    (II) to timely address appeals 
                                under the new appeals system; and
                                    (III) to timely address appeals of 
                                decisions on legacy claims; and
                            (ii) a summary of the expectations for 
                        performance outcomes that the Secretary used in 
                        making the certification under clause (i)(III) 
                        and a comparison of such expected performance 
                        outcomes with actual performance outcomes with 
                        respect to appeals of legacy claims before the 
                        effective date of the new appeals system.
            (2) Collaboration.--In determining whether and when to make 
        a certification under paragraph (1)(B), the Secretary shall 
        collaborate with, partner with, and give weight to the advice 
        of veterans service organizations and such other stakeholders 
        as the Secretary considers appropriate.
            (3) Early applicability.--The Secretary may apply the new 
        appeals system to a claim with respect to which the claimant--
                    (A) receives a notice of a decision under section 
                5104 of such title after the date of the enactment of 
                this Act and before the applicability date set forth in 
                paragraph (1); and
                    (B) elects to subject the claim to the new appeals 
                system.
            (4) Phased rollout.--The Secretary may begin implementation 
        of the new appeals system in phases, with the first phase of 
        such phased implementation beginning on the applicability date 
        set forth in paragraph (1).
            (5) Treatment of legacy claims.--With respect to legacy 
        claims, upon the issuance to a claimant of a statement of the 
        case or supplemental statement of the case occurring on or 
        after the applicability date specified in paragraph (1), a 
        claimant may elect to participate in the new appeals system.
            (6) Publication of applicability date.--Not later than the 
        date on which the new appeals system goes into effect (or the 
        first phase of the new appeals system goes into effect under 
        paragraph (4), as the case may be), the Secretary shall publish 
        in the Federal Register such date.
            (7) Definitions.--In this subsection:
                    (A) Appropriate committees of congress.--The term 
                ``appropriate committees of Congress'' means--
                            (i) the Committee on Veterans' Affairs and 
                        the Committee on Appropriations of the Senate; 
                        and
                            (ii) the Committee on Veterans' Affairs and 
                        the Committee on Appropriations of the House of 
                        Representatives.
                    (B) Veterans service organization.--The term 
                ``veterans service organization'' means any 
                organization recognized by the Secretary for the 
                representation of veterans under section 5902 of title 
                38, United States Code.
    (y) Rule of Construction.--Nothing in this section or any of the 
amendments made by this section shall be construed to limit the ability 
of a claimant to request a revision of a decision under section 5109A 
or 7111 of title 38, United States Code.

SEC. 3. COMPREHENSIVE PLAN FOR PROCESSING OF LEGACY APPEALS AND 
              IMPLEMENTING NEW APPEALS SYSTEM.

    (a) Plan Required.--Not later than 90 days after the date of the 
enactment of this Act, the Secretary of Veterans Affairs shall submit 
to the appropriate committees of Congress and the Comptroller General 
of the United States a comprehensive plan for--
            (1) the processing of appeals of decisions on legacy claims 
        that the Secretary considers pending;
            (2) implementing the new appeals system;
            (3) timely processing, under the new appeals system, of--
                    (A) supplemental claims under section 5108 of title 
                38, United States Code, as amended by section 2(i);
                    (B) requests for higher-level review under section 
                5104B of such title, as added by section 2(g); and
                    (C) appeals on any docket maintained under section 
                7107 of such title, as amended by section 2(t); and
            (4) monitoring the implementation of the new appeals 
        system, including metrics and goals--
                    (A) to track the progress of the implementation;
                    (B) to evaluate the efficiency and effectiveness of 
                the implementation; and
                    (C) to identify potential issues relating to the 
                implementation.
    (b) Elements.--The plan required by subsection (a) shall include, 
at a minimum, the following:
            (1) Delineation of the total resource requirements of the 
        Veterans Benefits Administration and the Board of Veterans' 
        Appeals, disaggregated by resources required to implement and 
        administer the new appeals system and resources required to 
        address the appeals of decisions on legacy claims.
            (2) Delineation of the personnel requirements of the 
        Administration and the Board, including staffing levels during 
        the--
                    (A) period in which the Administration and the 
                Board are concurrently processing--
                            (i) appeals of decisions on legacy claims; 
                        and
                            (ii) appeals of decisions on non-legacy 
                        claims under the new appeals system; and
                    (B) the period during which the Administration and 
                the Board are no longer processing any appeals of 
                decisions on legacy claims.
            (3) Identification of the legal authorities under which the 
        Administration or the Board may--
                    (A) hire additional employees to conduct the 
                concurrent processing described in paragraph (2)(A); 
                and
                    (B) remove employees who are no longer required by 
                the Administration or the Board once the Administration 
                and the Board are no longer processing any appeals of 
                decisions on legacy claims.
            (4) An estimate of the amount of time the Administration 
        and the Board will require to hire additional employees as 
        described in paragraph (3)(A) once funding has been made 
        available for such purpose, including a comparison of such 
        estimate and the historical average time required by the 
        Administration and the Board to hire additional employees.
            (5) A description of the amount of training and experience 
        that will be required of individuals conducting higher-level 
        reviews under section 5104B of title 38, United States Code, as 
        added by section 2(g).
            (6) An estimate of the percentage of higher-level 
        adjudicators who will be employees of the Department of 
        Veterans Affairs who were Decision Review Officers on the day 
        before the new appeals system takes effect or had experience, 
        as of such date, comparable to that of one who was a Decision 
        Review Officer.
            (7) A description of the functions that will be performed 
        after the date on which the new appeals system takes effect by 
        Decision Review Officers who were Decision Review Officers on 
        the day before the date the new appeals system takes effect.
            (8) Identification of and a timeline for--
                    (A) any training that may be required as a result 
                of hiring new employees to carry out the new appeals 
                system or to process appeals of decisions on legacy 
                claims; and
                    (B) any retraining of existing employees that may 
                be required to carry out such system or to process such 
                claims.
            (9) Identification of the costs to the Department of 
        Veterans Affairs of the training identified under paragraph (8) 
        and any additional training staff and any additional training 
        facilities that will be required to provide such training.
            (10) A description of the modifications to the information 
        technology systems of the Administration and the Board that the 
        Administration and the Board require to carry out the new 
        appeals system, including cost estimates and a timeline for 
        making the modifications.
            (11) An estimate of the office space the Administration and 
        the Board will require during each of the periods described in 
        paragraph (2), including--
                    (A) an estimate of the amount of time the 
                Administration and the Board will require to acquire 
                any additional office space to carry out processing of 
                appeals of decisions on legacy claims and processing of 
                appeals under the new appeals system;
                    (B) a comparison of the estimate under subparagraph 
                (A) and the historical average time required by the 
                Administration and the Board to acquire new office 
                space; and
                    (C) a plan for using telework to accommodate staff 
                exceeding available office space, including how the 
                Administration and the Board will provide training and 
                oversight with respect to such teleworking.
            (12) Projections for the productivity of individual 
        employees at the Administration and the Board in carrying out 
        tasks relating to the processing of appeals of decisions on 
        legacy claims and appeals under the new appeals system, taking 
        into account the experience level of new employees and the 
        enhanced notice requirements under section 5104(b) of title 38, 
        United States Code, as amended by section 2(e).
            (13) An outline of the outreach the Secretary expects to 
        conduct to inform veterans, families of veterans, survivors of 
        veterans, veterans service organizations, military service 
        organizations, congressional caseworkers, advocates for 
        veterans, and such other stakeholders as the Secretary 
        considers appropriate about the new appeals system, including--
                    (A) a description of the resources required to 
                conduct such outreach; and
                    (B) timelines for conducting such outreach.
            (14) Timelines for updating any policy guidance, Internet 
        websites, and official forms that may be necessary to carry out 
        the new appeals system, including--
                    (A) identification of which offices and entities 
                will be involved in efforts relating to such updating; 
                and
                    (B) historical information about how long similar 
                update efforts have taken.
            (15) A timeline, including interim milestones, for 
        promulgating such regulations as may be necessary to carry out 
        the new appeals system and a comparison with historical 
        averages for time required to promulgate regulations of similar 
        complexity and scope.
            (16) An outline of the circumstances under which claimants 
        with pending appeals of decisions on legacy claims would be 
        authorized to have their appeals reviewed under the new appeals 
        system.
            (17) A delineation of the key goals and milestones for 
        reducing the number of pending appeals that are not processed 
        under the new appeals system, including the expected number of 
        appeals, remands, and hearing requests at the Administration 
        and the Board each year, beginning with the one year period 
        beginning on the date of the enactment of this Act, until there 
        are no longer any appeals pending before the Administration or 
        the Board for a decision on a legacy claim.
            (18) A description of each risk factor associated with each 
        element of the plan and a contingency plan to minimize each 
        such risk.
    (c) Review by Comptroller General of the United States.--
            (1) In general.--Not later than 90 days after the 
        Comptroller General of the United States receives the plan 
        required by subsection (a), the Comptroller General shall--
                    (A) assess such plan; and
                    (B) notify the appropriate committees of Congress 
                of the findings of the Comptroller General with respect 
                to the assessment conducted under subparagraph (A).
            (2) Elements.--The assessment conducted under paragraph 
        (1)(A) shall include the following:
                    (A) An assessment of whether the plan comports with 
                sound planning practices.
                    (B) Identification of any gaps in the plan.
                    (C) Formulation of such recommendations as the 
                Comptroller General considers appropriate.
    (d) Periodic Progress Reports.--Not later than 90 days after the 
date on which the Secretary submits the plan under subsection (a), not 
less frequently than once every 90 days thereafter until the 
applicability date set forth in section 2(x)(1), and not less 
frequently than once every 180 days thereafter for the seven-year 
period following such applicability date, the Secretary shall submit to 
the appropriate committees of Congress and the Comptroller General a 
report on the progress of the Secretary in carrying out the plan and 
what steps, if any, the Secretary has taken to address any 
recommendations formulated by the Comptroller General pursuant to 
subsection (c)(2)(C).
    (e) Publication.--The Secretary shall make available to the public 
on an Internet website of the Department of Veterans Affairs--
            (1) the plan required by subsection (a); and
            (2) the periodic progress reports required by subsection 
        (d).
    (f) Appropriate Committees of Congress Defined.--In this section, 
the term ``appropriate committees of Congress'' means--
            (1) the Committee on Veterans' Affairs and the Committee on 
        Appropriations of the Senate; and
            (2) the Committee on Veterans' Affairs and the Committee on 
        Appropriations of the House of Representatives.

SEC. 4. PROGRAMS TO TEST ASSUMPTIONS RELIED ON IN DEVELOPMENT OF 
              COMPREHENSIVE PLAN FOR PROCESSING OF LEGACY APPEALS AND 
              SUPPORTING NEW APPEALS SYSTEM.

    (a) Authorization.--
            (1) In general.--The Secretary of Veterans Affairs may 
        carry out such programs as the Secretary considers appropriate 
        to test any assumptions relied upon in developing the 
        comprehensive plan required by section 3(a) and to test the 
        feasibility and advisability of any facet of the new appeals 
        system.
            (2) Reporting required.--Whenever the Secretary determines, 
        based on the conduct of a program under paragraph (1), that 
        legislative changes to the new appeals system are necessary, 
        the Secretary shall submit to the Committee on Veterans' 
        Affairs of the Senate and the Committee on Veterans' Affairs of 
        the House of Representatives notice of such determination.
    (b) Department of Veterans Affairs Program on Fully Developed 
Appeals.--
            (1) In general.--The Secretary of Veterans Affairs may, 
        under subsection (a)(1), carry out a program to provide the 
        option of an alternative appeals process that shall more 
        quickly determine such appeals in accordance with this 
        subsection.
            (2) Election.--
                    (A) Filing.--In accordance with subparagraph (B), a 
                claimant may elect to file a fully developed appeal 
                under the program by filing with the Secretary all of 
                the following:
                            (i) The notice of disagreement under 
                        chapter 71 of title 38, United States Code, 
                        along with the written election of the claimant 
                        to have the appeal determined under the 
                        program.
                            (ii) All evidence that the claimant 
                        believes is needed for the appeal as of the 
                        date of the filing.
                            (iii) A statement of the argument in 
                        support of the claim, if any.
                    (B) Timing.--A claimant shall make an election 
                under subparagraph (A) as part of the notice of 
                disagreement filed by the claimant in accordance with 
                subparagraph (A)(i).
                    (C) Triage.--The Secretary shall, upon expiration 
                of the period specified in paragraph (3)(C)(iii), 
                ensure that an assessment is undertaken of whether an 
                appeal filed under subparagraph (A) of this paragraph 
                satisfies the requirements for appeal under the program 
                and provide appropriate notification to the claimant of 
                the results of that assessment.
                    (D) Reversion.--
                            (i) Elected reversion.--At any time, a 
                        claimant who makes an election under 
                        subparagraph (A) may elect to revert to the 
                        standard appeals process. Such a reversion 
                        shall be final.
                            (ii) Automatic reversion.--A claimant 
                        described in clause (i), or a claimant who 
                        makes an election under subparagraph (A) but is 
                        later determined to be ineligible for the 
                        program under paragraph (1), shall revert to 
                        the standard appeals process without any 
                        penalty to the claimant other than the loss of 
                        the docket number associated with the fully 
                        developed appeal.
                    (E) Outreach.--In providing claimants with notices 
                of the determination of a claim during the period in 
                which the program under paragraph (1) is carried out, 
                the Secretary shall conduct outreach as follows:
                            (i) The Secretary shall provide to the 
                        claimant (and to the representative of record 
                        of the claimant, if any) information 
                        regarding--
                                    (I) the program, including the 
                                advantages and disadvantages of the 
                                program;
                                    (II) how to make an election under 
                                subparagraph (A);
                                    (III) the limitation on the use of 
                                new evidence described in subparagraph 
                                (C) of paragraph (3) and the 
                                development of information under 
                                subparagraph (D) of such paragraph;
                                    (IV) the ability of the claimant to 
                                seek advice and education regarding 
                                such process from veterans service 
                                organizations, attorneys, and claims 
                                agents recognized under chapter 59 of 
                                title 38, United States Code; and
                                    (V) the circumstances under which 
                                the appeal will automatically revert to 
                                the standard appeals process, including 
                                by making a request for a hearing.
                            (ii) The Secretary shall collaborate, 
                        partner with, and give weight to the advice of 
                        the three veterans service organizations with 
                        the most members and such other stakeholders as 
                        the Secretary considers appropriate to publish 
                        on the Internet website of the Department of 
                        Veterans Affairs an online tutorial explaining 
                        the advantages and disadvantages of the 
                        program.
            (3) Treatment by department and board.--
                    (A) Process.--Upon the election of a claimant to 
                file a fully developed appeal pursuant to paragraph 
                (2)(A), the Secretary shall--
                            (i) not provide the claimant with a 
                        statement of the case nor require the claimant 
                        to file a substantive appeal; and
                            (ii) transfer jurisdiction over the fully 
                        developed appeal directly to the Board of 
                        Veterans' Appeals.
                    (B) Docket.--
                            (i) In general.--The Board of Veterans' 
                        Appeals shall--
                                    (I) maintain fully developed 
                                appeals on a separate docket than 
                                standard appeals;
                                    (II) decide fully developed appeals 
                                in the order that the fully developed 
                                appeals are received on the fully 
                                developed appeal docket;
                                    (III) except as provided by clause 
                                (ii), decide not more than one fully 
                                developed appeal for each four standard 
                                appeals decided; and
                                    (IV) to the extent practicable, 
                                decide each fully developed appeal by 
                                the date that is one year following the 
                                date on which the claimant files the 
                                notice of disagreement.
                            (ii) Adjustment.--Beginning one year after 
                        the date on which the program commences, the 
                        Board may adjust the number of standard appeals 
                        decided for each fully developed appeal under 
                        clause (i)(III) if the Board determines that 
                        such adjustment is fair for both standard 
                        appeals and fully developed appeals.
                    (C) Limitation on use of new evidence.--
                            (i) In general.--Except as provided by 
                        clauses (ii) and (iii)--
                                    (I) a claimant may not submit or 
                                identify to the Board of Veterans' 
                                Appeals any new evidence relating to a 
                                fully developed appeal after filing 
                                such appeal unless the claimant reverts 
                                to the standard appeals process 
                                pursuant to paragraph (2)(D); and
                                    (II) if a claimant submits or 
                                identifies any such new evidence, such 
                                submission or identification shall be 
                                deemed to be an election to make such a 
                                reversion pursuant to paragraph (2)(D).
                            (ii) Evidence gathered by board.--Clause 
                        (i) shall not apply to evidence developed 
                        pursuant to subparagraphs (D) and (E). The 
                        Board shall consider such evidence in the first 
                        instance without consideration by the Veterans 
                        Benefits Administration.
                            (iii) Representative of record.--The 
                        representative of record of a claimant for 
                        appeals purposes, if any, shall be provided an 
                        opportunity to review the fully developed 
                        appeal of the claimant and submit any 
                        additional arguments or evidence that the 
                        representative determines necessary during a 
                        period specified by the Board for purposes of 
                        this subparagraph.
                    (D) Prohibition on remand for additional 
                development.--If the Board of Veterans' Appeals 
                determines that a fully developed appeal requires 
                Federal records, independent medical opinions, or new 
                medical examinations, the Board shall--
                            (i) in accordance with subparagraph (E), 
                        take such actions as may be necessary to 
                        develop such records, opinions, or examinations 
                        in accordance with section 5103A of title 38, 
                        United States Code;
                            (ii) retain jurisdiction of the fully 
                        developed appeal without requiring a 
                        determination by the Veterans Benefits 
                        Administration based on such records, opinions, 
                        or examinations;
                            (iii) ensure the claimant, and the 
                        representative of record of a claimant, if any, 
                        receives a copy of such records, opinions, or 
                        examinations; and
                            (iv) provide the claimant a period of 90 
                        days after the date of mailing such records, 
                        opinions, or examinations during which the 
                        claimant may provide the Board any additional 
                        evidence without requiring the claimant to make 
                        a reversion pursuant to paragraph (2)(D).
                    (E) Development unit.--
                            (i) Establishment.--The Board of Veterans' 
                        Appeals shall establish an office to develop 
                        Federal records, independent medical opinions, 
                        and new medical examinations pursuant to 
                        subparagraph (D)(i) that the Board determines 
                        necessary to decide a fully developed appeal.
                            (ii) Requirements.--The Secretary shall--
                                    (I) ensure that the Veterans 
                                Benefits Administration cooperates with 
                                the Board of Veterans' Appeals in 
                                carrying out clause (i); and
                                    (II) transfer employees of the 
                                Veterans Benefits Administration who, 
                                prior to the enactment of this Act, 
                                were responsible for processing claims 
                                remanded by the Board of Veterans' 
                                Appeals to positions within the office 
                                of the Board established under clause 
                                (i) in a number the Secretary 
                                determines sufficient to carry out such 
                                subparagraph.
                    (F) Hearings.--Notwithstanding section 7107 of 
                title 38, United States Code, the Secretary may not 
                provide hearings with respect to fully developed 
                appeals under the program. If a claimant requests to 
                hold a hearing pursuant to such section 7107, such 
                request shall be deemed to be an election to revert to 
                the standard appeals process pursuant to paragraph 
                (2)(D).
            (4) Duration; applicability.--
                    (A) Duration.--Subject to subsection (c), the 
                Secretary may carry out the program during such period 
                as the Secretary considers appropriate.
                    (B) Applicability.--This section shall apply only 
                to fully developed appeals that are filed during the 
                period in which the program is carried out pursuant to 
                subparagraph (A).
            (5) Definitions.--In this subsection:
                    (A) Compensation.--The term ``compensation'' has 
                the meaning given that term in section 101 of title 38, 
                United States Code.
                    (B) Fully developed appeal.--The term ``fully 
                developed appeal'' means an appeal of a claim for 
                disability compensation that is--
                            (i) filed by a claimant in accordance with 
                        paragraph (2)(A); and
                            (ii) considered in accordance with this 
                        subsection.
                    (C) Standard appeal.--The term ``standard appeal'' 
                means an appeal of a claim for disability compensation 
                that is not a fully developed appeal.
    (c) Termination of Authority.--The Secretary of Veterans Affairs 
may not carry out a program under this section after the applicability 
date set forth in section 2(x)(1).

SEC. 5. PERIODIC PUBLICATION OF METRICS RELATING TO PROCESSING OF 
              APPEALS BY DEPARTMENT OF VETERANS AFFAIRS.

    The Secretary of Veterans Affairs shall periodically publish on an 
Internet website of the Department of Veterans Affairs the following:
            (1) With respect to the processing by the Secretary of 
        appeals under the new appeals system of decisions regarding 
        claims for benefits under laws administered by the Secretary, 
        the following:
                    (A) For the Veterans Benefits Administration and, 
                to the extent practicable, each regional office of the 
                Department of Veterans Affairs, the number of--
                            (i) supplemental claims under section 5108 
                        of title 38, United States Code, as amended by 
                        section 2(i), that are pending; and
                            (ii) requests for higher-level review under 
                        section 5104B of such title, as added by 
                        section 2(g), that are pending.
                    (B) The number of appeals on any docket maintained 
                under section 7107 of such title, as amended by section 
                2(t), that are pending.
                    (C) The average duration for processing claims and 
                supplemental claims, disaggregated by regional office.
                    (D) The average duration for processing requests 
                for higher-level review under section 5104B of such 
                title, as added by section 2(g), disaggregated by 
                regional office.
                    (E) The average number of days that appeals are 
                pending on a docket of the Board of Veterans' Appeals 
                maintained pursuant to section 7107 of such title, as 
                amended by section 2(t), disaggregated by--
                            (i) appeals that include a request for a 
                        hearing;
                            (ii) appeals that do not include a request 
                        for a hearing and do include submittal of 
                        evidence; and
                            (iii) appeals that do not include a request 
                        for a hearing and do not include submittal of 
                        evidence.
                    (F) With respect to the policy developed and 
                implemented under section 7107(e) of such title, as 
                amended by section 2(t)--
                            (i) the number of cases moved from one 
                        docket to another pursuant to such policy;
                            (ii) the average time cases were pending 
                        prior to moving from one docket to another; and
                            (iii) the average time to adjudicate the 
                        cases after so moving.
                    (G) The total number of remands to obtain advisory 
                medical opinions under section 5109(d) of title 38, 
                United States Code, as added by section 2(j).
                    (H) The average number of days between the date on 
                which the Board remands a claim to obtain an advisory 
                medical opinion under section 5109(d) of such title, as 
                so added, and the date on which the advisory medical 
                opinion is obtained.
                    (I) The average number of days between the date on 
                which the Board remands a claim to obtain an advisory 
                medical opinion under section 5109(d) of such title, as 
                so added, and the date on which the agency of original 
                jurisdiction issues a decision taking that advisory 
                opinion into account.
                    (J) The number of appeals that are granted, the 
                number of appeals that are remanded, and the number of 
                appeals that are denied by the Board disaggregated by 
                docket.
                    (K) The number of claimants each year that take 
                action within the period set forth in section 
                5110(a)(2) of such title, as added by section 2(l), to 
                protect their effective date under such section 
                5110(a)(2), disaggregated by the status of the 
                claimants taking the actions, such as whether the 
                claimant is represented by a veterans service 
                organization, the claimant is represented by an 
                attorney, or the claimant is taking such action pro se.
                    (L) The total number of times on average each 
                claimant files under section 5110(a)(2) of such title, 
                as so added, to protect their effective date under such 
                section, disaggregated by the subparagraph of such 
                section under which they file.
                    (M) The average duration, from the filing of an 
                initial claim until the claim is resolved and claimants 
                no longer take any action to protect their effective 
                date under section 5110(a)(2) of such title, as so 
                added--
                            (i) of claims under the new appeals system, 
                        excluding legacy claims that opt in to the new 
                        appeals system; and
                            (ii) of legacy claims that opt in to the 
                        new appeals system.
                    (N) How frequently an action taken within one year 
                to protect an effective date under section 5110(a)(2) 
                of such title, as so added, leads to additional grant 
                of benefits, disaggregated by action taken.
                    (O) The average of how long it takes to complete 
                each segment of the claims process while claimants are 
                protecting the effective date under such section, 
                disaggregated by the time waiting for the claimant to 
                take an action and the time waiting for the Secretary 
                to take an action.
                    (P) The number and the average amount of 
                retroactive awards of benefits from the Secretary as a 
                result of protected effective dates under such section, 
                disaggregated by action taken.
                    (Q) The average number of times claimants submit to 
                the Secretary different claims with respect to the same 
                condition, such as an initial claim and a supplemental 
                claim.
                    (R) The number of cases each year in which a 
                claimant inappropriately tried to take simultaneous 
                actions, such as filing a supplemental claim while a 
                higher-level review is pending, what actions the 
                Secretary took in response, and how long it took on 
                average to take those actions.
                    (S) In the case that the Secretary develops and 
                implements a policy under section 5104C(a)(2)(D) of 
                such title, as amended by section 2(h)(1), the number 
                of actions withdrawn and new actions taken pursuant to 
                such policy.
                    (T) The number of times the Secretary received 
                evidence relating to an appeal or higher-level review 
                at a time not authorized under the new appeals system, 
                disaggregated by actions taken by the Secretary to deal 
                with the evidence and how long on average it took to 
                take those actions.
                    (U) The number of errors committed by the Secretary 
                in carrying out the Secretary's duty to assist under 
                section 5103A of title 38, United States Code, that 
                were identified by higher-level review and by the 
                Board, disaggregated by type of error, such as errors 
                relating to private records and inadequate 
                examinations, and a comparison with errors committed by 
                the Secretary in carrying out such duty with respect to 
                appeals of decisions on legacy claims.
                    (V) An assessment of the productivity of employees 
                at the regional offices and at the Board, disaggregated 
                by level of experience of the employees.
                    (W) The percentage of cases that are decided within 
                the goals established by the Secretary for deciding 
                cases, disaggregated by cases that involve a 
                supplemental claim, cases that involve higher-level 
                review, and by docket maintained under section 7107(a) 
                of such title, as amended by section 2(t), or in the 
                case that the Secretary has not established goals for 
                deciding cases, the percentage of cases which are 
                decided within one year, two years, three years, and 
                more than three years, disaggregated by docket.
                    (X) Of the cases that involve higher-level review, 
                the percentage of decisions that are overturned in 
                whole or in part by the higher-level adjudicator, that 
                are upheld by the higher-level adjudicator, and that 
                are returned for correction of an error.
                    (Y) The frequency by which the Secretary 
                readjudicates a claim pursuant to section 5108 of such 
                title, as amended by section 2(i), and the frequency by 
                which readjudication pursuant to section 5108 of such 
                title, as so amended, results in an award of benefits.
                    (Z) In any case in which the Board decides to 
                screen cases for a purpose described in section 7107(d) 
                of such title, as amended by section 2(t)(1)--
                            (i) a description of the way in which the 
                        cases are screened and the purposes for which 
                        they are screened;
                            (ii) a description of the effect such 
                        screening has had on--
                                    (I) the timeliness of the issuance 
                                of decisions of the Board; and
                                    (II) the inventory of cases before 
                                the Board; and
                            (iii) the type and frequency of development 
                        errors detected through such screening.
            (2) With respect to the processing by the Secretary of 
        appeals of decisions on legacy claims, the following:
                    (A) The average duration of each segment of the 
                appeals process, disaggregated by periods in which the 
                Secretary is waiting for a claimant to take an action 
                and periods in which the claimant is waiting for the 
                Secretary to take an action.
                    (B) The frequency by which appeals lead to 
                additional grant of benefits by the Secretary, 
                disaggregated by whether the additional benefits are a 
                result of additional evidence added after the initial 
                decision.
                    (C) The number and average amount of retroactive 
                awards of benefits resulting from an appeal.
                    (D) The average duration from filing a legacy claim 
                with the Secretary until all appeals and remands 
                relating to such legacy claim are completed.
                    (E) The average number of times claimants submit to 
                the Secretary different claims with respect to the same 
                condition, such as an initial claim, new and material 
                evidence, or a claim for an increase in benefits.
                    (F) An assessment of the productivity of employees 
                at the regional offices and at the Board, disaggregated 
                by level of experience of the employees.
                    (G) The average number of days the duration of an 
                appeal is extended because the Secretary secured or 
                attempted to secure an advisory medical opinion under 
                section 5109 of title 38, United States Code, or 
                section 7109 of such title (as in effect on the day 
                before the date of the enactment of this Act).
                    (H) The frequency by which claims are reopened 
                pursuant to section 5108 of such title and the 
                frequency by which such reopening results in an award 
                of benefits.
            (3) With respect to the processing by the Secretary of 
        appeals of decisions on legacy claims that opt in to the new 
        appeals system, the following:
                    (A) The cumulative number of such legacy claims.
                    (B) The portion of work in the new appeals system 
                attributable to appeals of decisions on such legacy 
                claims.
                    (C) The average period such legacy claims were 
                pending before opting in to the new appeals system and 
                the average period required to adjudicate such legacy 
                claims on average after opting in--
                            (i) with respect to claims at a regional 
                        office of the Department of Veterans Affairs, 
                        disaggregated by--
                                    (I) supplemental claims under 
                                section 5108 of title 38, United States 
                                Code, as amended by section 2(i); and
                                    (II) requests for higher-level 
                                review under section 5104B of such 
                                title, as added by section 2(g); and
                            (ii) with respect to appeals, disaggregated 
                        by docket of the Board maintained under section 
                        7107 of such title, as amended by section 2(t).

SEC. 6. DEFINITIONS.

    In this Act:
            (1) Claimant.--The term ``claimant'' has the meaning given 
        such term in section 5100 of title 38, United States Code.
            (2) Legacy claims.--The term ``legacy claim'' means a 
        claim--
                    (A) that was submitted to the Secretary of Veterans 
                Affairs for a benefit under a law administered by the 
                Secretary; and
                    (B) for which notice of a decision under section 
                5104 of title 38, United States Code, was provided by 
                the Secretary before the date set forth in section 
                2(x).
            (3) Opt in.--The term ``opt in'' means, with respect to a 
        legacy claim of a claimant, that the claimant elects to subject 
        the claim to the new appeals system pursuant to--
                    (A) section 2(x)(3); or
                    (B) such other mechanism as the Secretary may 
                prescribe for purposes of carrying out this Act and the 
                amendments made by this Act.
            (4) New appeals system.--The term ``new appeals system'' 
        means the set of processes and mechanisms by which the 
        Secretary processes, pursuant to the authorities and 
        requirements modified by section 2, claims for benefits under 
        laws administered by the Secretary.
                                                       Calendar No. 166

115th CONGRESS

  1st Session

                                S. 1024

                          [Report No. 115-126]

_______________________________________________________________________

                                 A BILL

    To amend title 38, United States Code, to reform the rights and 
    processes relating to appeals of decisions regarding claims for 
   benefits under the laws administered by the Secretary of Veterans 
                    Affairs, and for other purposes.

_______________________________________________________________________

                             July 10, 2017

                       Reported with an amendment