[House Report 110-640]
[From the U.S. Government Publishing Office]
110th Congress Report
HOUSE OF REPRESENTATIVES
2d Session 110-640
======================================================================
LONGITUDINAL STUDY OF DEPARTMENT OF VETERANS AFFAIRS VOCATIONAL
REHABILITATION PROGRAMS
_______
May 15, 2008.--Committed to the Committee of the Whole House on the
State of the Union and ordered to be printed
_______
Mr. Filner, from the Committee on Veterans' Affairs, submitted the
following
R E P O R T
[To accompany H.R. 3889]
[Including cost estimate of the Congressional Budget Office]
The Committee on Veterans' Affairs, to whom was referred the
bill (H.R. 3889) to amend title 38, United States Code, to
require the Secretary of Veterans Affairs to conduct a
longitudinal study of the vocational rehabilitation programs
administered by the Secretary, having considered the same,
report favorably thereon with an amendment and recommend that
the bill as amended do pass.
CONTENTS
Page
Amendment........................................................ 2
Purpose and Summary.............................................. 2
Background and Discussion........................................ 3
Hearings......................................................... 4
Committee Consideration.......................................... 4
Committee Votes.................................................. 5
Committee Oversight Findings..................................... 5
Statement of General Performance Goals and Objectives............ 5
New Budget Authority, Entitlement Authority, and Tax Expenditures 5
Earmarks and Tax and Tariff Benefits............................. 5
Committee Cost Estimate.......................................... 5
Congressional Budget Office Estimate............................. 5
Federal Mandates Statement....................................... 6
Advisory Committee Statement..................................... 6
Constitutional Authority Statement............................... 6
Applicability to Legislative Branch.............................. 7
Section-by-Section Analysis of the Legislation................... 7
Changes in Existing Law Made by the Bill as Reported............. 8
Amendment
The amendment is as follows:
Strike all after the enacting clause and insert the
following:
SECTION 1. LONGITUDINAL STUDY OF DEPARTMENT OF VETERANS AFFAIRS
VOCATIONAL REHABILITATION PROGRAMS.
(a) Study Required.--Chapter 31 of title 38, United States Code, is
amended by adding at the end the following new section:
``Sec. 3122. Longitudinal study of vocational rehabilitation programs
``(a) Study Required.--(1) Subject to the availabilty of appropriated
funds, the Secretary shall conduct a longitudinal study of a
statistically valid sample of each of the groups of individuals
described in paragraph (2). The Secretary shall study each such group
over a period of at least 20 years.
``(2) The groups of individuals described in this paragraph are the
following:
``(A) Individuals who begin participating in a vocational
rehabilitation program under this chapter during fiscal year
2009.
``(B) Individuals who begin participating in such a program
during fiscal year 2011.
``(C) Individuals who begin participating in such a program
during fiscal year 2014.
``(b) Annual Reports.--By not later than July 1 of each year covered
by the study required under subsection (a), the Secretary shall submit
to the Committees on Veterans' Affairs of the Senate and House of
Representatives a report on the study during the preceding year.
``(c) Contents of Report.--The Secretary shall include in the report
required under subsection (b) any data the Secretary determines is
necessary to determine the long-term outcomes of the individuals
participating in the vocational rehabilitation programs under this
chapter. The Secretary may add data elements from time to time as
necessary. In addition, each such report shall contain the following
information:
``(1) The number of individuals participating in vocational
rehabilitation programs under this chapter who suspended
participation in such a program during the year covered by the
report.
``(2) The average number of months such individuals served on
active duty.
``(3) The distribution of disability rating of such
individuals.
``(4) The types of other benefits administered by the
Secretary received by such individuals.
``(5) The types of social security benefits received by such
individuals.
``(6) Any unemployment benefits received by such individuals.
``(7) The average number of months such individuals were
employed during the year covered by the report.
``(8) The average annual starting and ending salaries such
individuals who were employed during the year covered by the
report.
``(9) The number of such individuals enrolled in an
institution of higher learning, as that term is defined in
section 3452(f) of this title.
``(10) The average number of academic credit hours, degrees,
and certificates obtained by such individuals during the year
covered by the report.
``(11) The average number of visits such individuals made to
Department medical facilities during the year covered by the
report.
``(12) The average number of visits such individuals made to
non-Department medical facilities during the year covered by
the report.
``(13) The average annual income of such individuals.
``(14) The average total household income of such individuals
for the year covered by the report.
``(15) The percentage of such individuals who own their
principal residences.
``(16) The average number of dependents of each such
veteran.''.
(b) Clerical Amendment.--The table of sections at the beginning of
such chapter is amended by adding at the end the following new item:
``3122 Longitudinal study of vocational rehabilitation programs.''.
Purpose and Summary
H.R. 3889 was introduced on October 18, 2007, by
Representative John Boozman of Arkansas, the Ranking Member of
the Subcommittee on Economic Opportunity of the Committee on
Veterans' Affairs. The legislation would authorize the
Secretary of the Department Veterans Affairs (VA) to develop a
database of outcomes experienced by those who participate in
the VA's Vocational Rehabilitation and Employment (VR&E)
program.
Background and Discussion
Currently, there is relatively little data on how the VR&E
program improves the lives of our more seriously injured
veterans. Conducting a 20-year longitudinal study that requires
annual reports to Congress will assist the VA in making
management decisions and help guide Congressional legislative
deliberations.
VR&E PROGRAM
The VR&E program has two primary objectives. First, VR&E
seeks to put eligible disabled veterans back to work through
one of five tracks. The VR&E program uses a five track model
that consists of (1) reemployment with a former employer; (2)
rapid employment services for new employment; (3) self-
employment; (4) employment through long-term services; and, (5)
independent living services. Historically, 85 to 90 percent of
participants enter long-term services to pursue an academic
degree to achieve certification in a skill and the remaining
elect on-the-job training, apprenticeship programs, or other
non-degree training.
The second objective is to provide independent living
skills to veterans whose disabilities will likely prevent them
from re-entering the workforce. Those veterans may later be
able to participate in employment tracks if their disability
permits.
To qualify for the VR&E program, a veteran must have a
service-connected disability rated at 20 percent or more and
have a barrier to employment. A veteran with a 10 percent
service-connected disability may qualify if the veteran has a
serious barrier to employment. The existence and severity of
employment barriers are determined by VR&E staff through
interviews and testing.
In addition to paying for all expenses such as tuition, the
program also provides funds for various types of ancillary
items such as computers and other equipment needed to complete
the rehabilitation program, as well as providing a living
stipend based on the type of program and the number of
dependents. Currently, the maximum stipend is $761.18 for a
veteran with two dependents plus $55.49 for each additional
dependent.
THE NEED FOR QUANTITATIVE INFORMATION
To understand the value added by the VR&E program, VA must
be able to compare the economic achievements of those who
participate in the program with veterans and disabled veterans
who do not.
VA currently collects data that does not accurately
demonstrate the long-term results of participation in, or
completion of, the VR&E program. Typically, VA knows how long a
veteran spends in the various phases in long-term training
(usually a degree program) and the costs related to that
participation. However, VA does not collect data on earnings,
promotions, and other long-term employment-related data
following completion. VA also does not collect data on those
who may qualify for the program but do not complete the track
appropriate to their situation. The Committee believes that
collecting these types of data is vital to understanding the
program's strengths and weaknesses and that a longitudinal
study of several cohorts of participants is the appropriate way
to understand the program's effectiveness.
Hearings
On April 16, 2008, the Subcommittee on Economic Opportunity
held a legislative hearing on a number of bills, including H.R.
3889. The following witnesses testified: The Honorable Bob
Filner of California; The Honorable Steve Buyer of Indiana; The
Honorable Ciro D. Rodriguez of Texas; The Honorable Cliff
Stearns of Florida; The Honorable John A. Yarmuth of Kentucky;
The Honorable Robin Hayes of North Carolina; The Honorable
Artur Davis of Alabama; The Honorable Patrick J. Murphy of
Pennsylvania; Mr. Ronald F. Chamrin, Assistant Director,
Economic Commission, The American Legion; Mr. Justin Brown,
Legislative Associate, National Legislative Service, Veterans
of Foreign Wars; Mr. Richard Daley, Associate Legislative
Director, Paralyzed Veterans of America; Mr. Patrick M.
Campbell, Legislative Director, Iraq and Afghanistan Veterans
of America; Col. Robert F. Norton, USA (Ret.), Deputy Director,
Government Relations, Military Officers Association of America;
The Honorable Charles S. Ciccolella, Assistant Secretary,
Veterans' Employment and Training Service, U.S. Department of
Labor; Mr. Thomas L. Bush, Acting Deputy Assistant Secretary of
Defense for Reserve Affairs, U.S. Department of Defense; Mr.
Curtis L. Gilroy, Director for Accession Policy, Office of the
Under Secretary of Defense for Personnel and Readiness, U.S.
Department of Defense; and Mr. Keith Pedigo, Associate Deputy
Under Secretary, Policy and Program Management, U.S. Department
of Veterans Affairs, accompanied by Mr. John Brizzi, Staff
Attorney, Office of General Counsel, U.S. Department of
Veterans Affairs. Those submitting statements for the record
included: Mr. Jot D. Carpenter Jr., Vice President, Government
Affairs, CTIA--The Wireless Association; Mr. Kerry Baker,
Associate National Legislative Director, Disabled American
Veterans; and Mr. Kyle McSlarrow, President and Chief Executive
Officer, National Cable and Telecommunications Association.
Committee Consideration
On April 23, 2008, the Subcommittee on Economic Opportunity
met in open markup session and ordered favorably forwarded to
the full Committee H.R. 3889, as amended, by voice vote. During
consideration of the bill the following amendment was
considered:
An amendment in the nature of a substitute by Mr. Boozman
of Arkansas, was agreed to by voice vote.
On April 30, 2008, the full Committee met in open markup
session, a quorum being present, and ordered H.R. 3889, as
amended, favorably reported to the House of Representatives, by
voice vote. During consideration of the bill the following
amendment was considered:
An amendment by Mr. Boozman of Arkansas to clarify that
funding for the longitudinal study is subject to the
availability of appropriated funds, was agreed to by voice
vote.
Committee Votes
Clause 3(b) of rule XIII of the Rules of the House of
Representatives requires the Committee to list the record votes
on the motion to report the legislation and amendments thereto.
There were no record votes taken on amendments or in connection
with ordering H.R. 3889 reported to the House. A motion by Mr.
Buyer of Indiana to order H.R. 3889, as amended, reported
favorably to the House of Representatives was agreed to by
voice vote.
Committee Oversight Findings
In compliance with clause 3(c)(1) of rule XIII and clause
(2)(b)(1) of rule X of the Rules of the House of
Representatives, the Committee's oversight findings and
recommendations are reflected in the descriptive portions of
this report.
Statement of General Performance Goals and Objectives
In accordance with clause 3(c)(4) of rule XIII of the Rules
of the House of Representatives, the Committee's performance
goals and objectives are reflected in the descriptive portions
of this report.
New Budget Authority, Entitlement Authority, and Tax Expenditures
In compliance with clause 3(c)(2) of rule XIII of the Rules
of the House of Representatives, the Committee adopts as its
own the estimate of new budget authority, entitlement
authority, or tax expenditures or revenues contained in the
cost estimate prepared by the Director of the Congressional
Budget Office pursuant to section 402 of the Congressional
Budget Act of 1974.
Earmarks and Tax and Tariff Benefits
H.R. 3889 does not contain any congressional earmarks,
limited tax benefits, or limited tariff benefits as defined in
clause 9(d), 9(e), or 9(f) of rule XXI of the Rules of the
House of Representatives.
Committee Cost Estimate
The Committee adopts as its own the cost estimate on H.R.
3889 prepared by the Director of the Congressional Budget
Office pursuant to section 402 of the Congressional Budget Act
of 1974.
Congressional Budget Office Cost Estimate
Pursuant to clause 3(c)(3) of rule XIII of the Rules of the
House of Representatives, the following is the cost estimate
for H.R. 3889 provided by the Congressional Budget Office
pursuant to section 402 of the Congressional Budget Act of
1974:
U.S. Congress,
Congressional Budget Office,
Washington, DC, May 12, 2008.
Hon. Bob Filner,
Chairman, Committee on Veterans' Affairs,
House of Representatives, Washington, DC.
Dear Mr. Chairman: The Congressional Budget Office has
prepared the enclosed cost estimate for H.R. 3889, a bill to
amend title 38, United States Code, to require the Secretary of
Veterans Affairs to conduct a longitudinal study of the
vocational rehabilitation programs administered by the
Secretary.
If you wish further details on this estimate, we will be
pleased to provide them. The CBO staff contact is Camille
Woodland.
Sincerely,
Robert A. Sunshine
(For Peter R. Orszag, Director).
Enclosure.
H.R. 3889--A bill to amend title 38, United States Code, to require the
Secretary of Veterans Affairs to conduct a longitudinal study
of the vocational rehabilitation programs administered by the
Secretary
H.R. 3889 would require the Department of Veterans Affairs
(VA) to conduct a longitudinal study of vocational
rehabilitation programs that would track veterans'
participation and educational and employment outcomes for at
least 20 years. VA also would be required to submit an annual
report on the study. Based on information from VA, CBO
estimates that designing the study and the survey instruments
and implementing the study would cost about $350,000 in 2009
and $1 million over the 2009-2013 period, assuming
appropriation of the estimated amounts. Enacting the bill would
have no effect on direct spending or revenues.
H.R. 3889 contains no intergovernmental or private-sector
mandates as defined in the Unfunded Mandates Reform Act and
would impose no cost on state, local, or tribal governments.
The CBO staff contact for this estimate is Camille
Woodland. This estimate was approved by Theresa Gullo, Deputy
Assistant Director for Budget Analysis.
Federal Mandates Statement
The Committee adopts as its own the estimate of Federal
mandates regarding H.R. 3889 prepared by the Director of the
Congressional Budget Office pursuant to section 423 of the
Unfunded Mandates Reform Act.
Advisory Committee Statement
No advisory committees within the meaning of section 5(b)
of the Federal Advisory Committee Act would be created by H.R.
3889.
Constitutional Authority Statement
Pursuant to clause 3(d)(1) of rule XIII of the Rules of the
House of Representatives, the Committee finds that the
Constitutional authority for H.R. 3889 is provided by Article
I, section 8 of the Constitution of the United States.
Applicability to Legislative Branch
The Committee finds that the legislation does not relate to
the terms and conditions of employment or access to public
services or accommodations within the meaning of section
102(b)(3) of the Congressional Accountability Act.
Section-by-Section Analysis of the Legislation
Section 1. Longitudinal study of vocational rehabilitation programs
This section would amend chapter 31, title 38, United
States Code by adding a new section 3122.
New section 3122 would require the Secretary of the VA to
conduct a longitudinal study of a statistically valid sample of
each of the groups (defined as those who begin participation in
the vocational rehabilitation program during fiscal years 2009,
2011, and 2014) of individuals participating in vocational
rehabilitation programs. The Secretary would be required to
study these groups for at least 20 years.
Subsection (b) requires the Secretary to submit to the
Committees on Veterans' Affairs of the Senate and House of
Representatives a report, no later than July 1 of each year, on
the study of the preceding year.
Subsection (c) defines the contents of the report and will
authorize the Secretary to include any data the Secretary deems
necessary to determine the long-term outcomes of the
individuals participating. The data required includes, but is
not limited to:
The number of individuals participating in the
program who have suspended their participation.
The average number of months that such individuals
served on active duty.
The distribution of disability rating of such
individuals.
The types of benefits such individuals are
receiving from the VA.
The types of Social Security benefits such
individuals are receiving.
Any unemployment benefits received by such
individuals.
The average number of months that such individuals
were employed during the year covered by the report.
The average annual starting and ending salaries of
such individuals who were employed during the year covered by
the report.
The number of such individuals enrolled in an
institute of higher learning.
The average number of academic credits, degrees,
and certificates obtained by such individuals during the year
covered by the report.
The average number of visits such individuals made
to the VA medical facilities during the year covered by the
report.
The average number of visits such individuals made
to non-VA medical facilities during the year covered by the
report.
The average annual income of such individuals.
The average household income of such individuals
for the year covered by such report.
The percentage of such individuals who own their
principal residences.
The average number of dependents of each such
veteran.
Changes in Existing Law Made by the Bill, as Reported
In compliance with clause 3(e) of rule XIII of the Rules of
the House of Representatives, changes in existing law made by
the bill, as reported, are shown as follows (new matter is
printed in italic and existing law in which no change is
proposed is shown in roman):
TITLE 38, UNITED STATES CODE
* * * * * * *
PART III--READJUSTMENT AND RELATED BENEFITS
* * * * * * *
CHAPTER 31--TRAINING AND REHABILITATION FOR VETERANS WITH SERVICE-
CONNECTED DISABILITIES
Sec.
3100. Purposes.
* * * * * * *
3122. Longitudinal study of vocational rehabilitation programs.
* * * * * * *
Sec. 3122. Longitudinal study of vocational rehabilitation programs
(a) Study Required.--(1) Subject to the availabilty of
appropriated funds, the Secretary shall conduct a longitudinal
study of a statistically valid sample of each of the groups of
individuals described in paragraph (2). The Secretary shall
study each such group over a period of at least 20 years.
(2) The groups of individuals described in this paragraph are
the following:
(A) Individuals who begin participating in a
vocational rehabilitation program under this chapter
during fiscal year 2009.
(B) Individuals who begin participating in such a
program during fiscal year 2011.
(C) Individuals who begin participating in such a
program during fiscal year 2014.
(b) Annual Reports.--By not later than July 1 of each year
covered by the study required under subsection (a), the
Secretary shall submit to the Committees on Veterans' Affairs
of the Senate and House of Representatives a report on the
study during the preceding year.
(c) Contents of Report.--The Secretary shall include in the
report required under subsection (b) any data the Secretary
determines is necessary to determine the long-term outcomes of
the individuals participating in the vocational rehabilitation
programs under this chapter. The Secretary may add data
elements from time to time as necessary. In addition, each such
report shall contain the following information:
(1) The number of individuals participating in
vocational rehabilitation programs under this chapter
who suspended participation in such a program during
the year covered by the report.
(2) The average number of months such individuals
served on active duty.
(3) The distribution of disability rating of such
individuals.
(4) The types of other benefits administered by the
Secretary received by such individuals.
(5) The types of social security benefits received by
such individuals.
(6) Any unemployment benefits received by such
individuals.
(7) The average number of months such individuals
were employed during the year covered by the report.
(8) The average annual starting and ending salaries
such individuals who were employed during the year
covered by the report.
(9) The number of such individuals enrolled in an
institution of higher learning, as that term is defined
in section 3452(f) of this title.
(10) The average number of academic credit hours,
degrees, and certificates obtained by such individuals
during the year covered by the report.
(11) The average number of visits such individuals
made to Department medical facilities during the year
covered by the report.
(12) The average number of visits such individuals
made to non-Department medical facilities during the
year covered by the report.
(13) The average annual income of such individuals.
(14) The average total household income of such
individuals for the year covered by the report.
(15) The percentage of such individuals who own their
principal residences.
(16) The average number of dependents of each such
veteran.
* * * * * * *