[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.

           *       *       *       *       *       *       *


                                  
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