U.S. GOVERNMENT PUBLISHING OFFICE

34–881 PDF WASHINGTON : 2019

S. HRG. 115–616 

HEARING ON PENDING LEGISLATION 

HEARING 

BEFORE THE

COMMITTEE ON VETERANS’ AFFAIRS 

UNITED STATES SENATE 

ONE HUNDRED FIFTEENTH CONGRESS 

SECOND SESSION 

AUGUST 1, 2018 

Printed for the use of the Committee on Veterans’ Affairs 

( 

Available via the World Wide Web: http://www.govinfo.gov 
(II) 

COMMITTEE ON VETERANS’ AFFAIRS 

JOHNNY ISAKSON, Georgia, Chairman 

JERRY MORAN, Kansas 

JOHN BOOZMAN, Arkansas 

DEAN HELLER, Nevada 

BILL CASSIDY, Louisiana 

MIKE ROUNDS, South Dakota 

THOM TILLIS, North Carolina 

DAN SULLIVAN, Alaska 

JON TESTER, Montana, Ranking Member 

PATTY MURRAY, Washington 

BERNARD SANDERS, (I) Vermont 

SHERROD BROWN, Ohio 

RICHARD BLUMENTHAL, Connecticut 

MAZIE K. HIRONO, Hawaii 

JOE MANCHIN III, West Virginia 

ROBERT J. HENKE, Staff Director 

TONY MCCLAIN, Democratic Staff Director 

Majority Professional Staff 

Adam Reece 

Gretchan Blum 

Leslie Campbell 

Patrick McGuigan 

Maureen O’Neill 

David Shearman 

Jillian Workman 

Minority Professional Staff 

Dahlia Melendrez 

Cassandra Byerly 

Jon Coen 

Steve Colley 

Simon Coon 

Michelle Dominguez 

Amy Smith 
(III) 

C O N T E N T S 

AUGUST 1, 2018 

SENATORS 

Page 

Isakson, Hon. Johnny, Chairman, U.S. Senator from Georgia ............................ 1 

Brown, Hon. Sherrod, acting Ranking Member, U.S. Senator from Ohio .......... 2 

Boozman, Hon. John, U.S. Senator from Arkansas .............................................. 20 

Sanders, Hon. Bernard, U.S. Senator from Vermont ........................................... 29 

Manchin, Hon. Joe, III, U.S. Senator from West Virginia ................................... 31 

Cassidy, Hon. Bill, U.S. Senator from Louisianna ................................................ 36 

Hirono, Hon. Mazie K., U.S. Senator from Hawaii ............................................... 38 

Sullivan, Hon. Dan, U.S. Senator from Alaska ..................................................... 40 

Tillis, Hon. Thom, U.S. Senator from North Carolina .......................................... 45 

WITNESSES 

Peters, Hon. Gary C., U.S. Senator from Michigan .............................................. 3 

Gillibrand, Hon. Kirsten E., U.S. Senator from New York .................................. 4 

Prepared statement .......................................................................................... 5 

Daines, Hon. Steve, U.S. Senator from Montana .................................................. 6 

Lawrence, Paul R., Ph.D., Under Secretary for Benefits, Veterans Benefits 

Administration, U.S. Department of Veterans Affairs; accompanied by 

Ralph Erickson, M.D., M.P.H., Dr. PH, Chief Consultant, Post-Deployment 

Health, Veterans Health Administration, Tammy Czarnecki, Assistant Deputy Under Secretary for Health/Administrative Operations, Veterans 

Health Administration; and Jessica Bonjorni, Acting Assistant Deputy 

Under Secretary for Health for Workforce Services, Veterans Health Administration .......................................................................................................... 8 

Prepared statement .......................................................................................... 10 

Additional views ............................................................................................... 26 

Response to request arising during the hearing by: 

Hon. Johnny Isakson .................................................................................... 27 

Hon. Mazie K. Hirono ................................................................................... 40 

Response to posthearing questions submitted by: 

Hon. John Boozman ...................................................................................... 47 

Hon. Sherrod Brown ..................................................................................... 47,50 

Hon. Joe Manchin III ................................................................................... 48 

Hon. Mazie K. Hirono ................................................................................... 49 

Nuntavong, Chanin, Director, National Veterans Affairs & Rehabilitation Division, The American Legion ............................................................................... 54 

Prepared statement .......................................................................................... 56 

Manar, Gerald T., Blue Water Navy Veteran, Former Director, National 

Veterans Service, Veterans of Foreign Wars of the United States .................. 69 

Prepared statement .......................................................................................... 71 

Snee, Thomas J., National Executive Director, Fleet Reserve Association ........ 77 

Prepared statement .......................................................................................... 79 

Weidman, Rick, Executive Director for Policy and Government Affairs, Vietnam Veterans of America .................................................................................... 81 

Prepared statement .......................................................................................... 83 

APPENDIX 

Cantwell, Hon. Maria, U.S. Senator from Washington; prepared statement ..... 91 

Feinstein, Hon. Dianne, U.S. Senator from California; prepared statement ...... 91 

Advanced Medical Technology Association (AdvaMed); prepared statement ..... 92 
Page

IV 

Appraisal Institute (AI); letter ............................................................................... 94 

Webb, Amy, National Legislative Policy Advisor, American Veterans 

(AMVETS); prepared statement ......................................................................... 95 

McClain, Hon. Tim S., Chairman, Board of Directors and James Lorraine, 

President & CEO, America’s Warrior Partnership (AWP), Augusta, GA; 

prepared statement .............................................................................................. 100 

Johnson, Cinthia, Interim Executive Director, Connecticut Veterans Legal 

Center (CVLC); prepared statement ................................................................... 103 

Villanueva, Jeremy M., Associate National Legislative Director, Disabled 

American Veterans (DAV); prepared statement ................................................ 109 

U.S. Department of Defense (DOD); prepared statement .................................... 119 

Denton, Ivan, Director, Office of National Programs, Veterans’ Employment 

and Training Service, U.S. Department of Labor (DOL); prepared 

statement .............................................................................................................. 123 

Mortgage Bankers Association (MBA); prepared statement ................................ 129 

Military Officers Association of America (MOAA); prepared statement ............. 133 

Military Order of the Purple Heart (MOPH); prepared statement ..................... 138 

Wells, CDR John B., USN (Ret.), Executive Director, Military-Veterans Advocacy (MVA); prepared statement ........................................................................ 139 

Mendenhall, Elizabeth J., 2018 President, National Association of REALTORS® (NAR); letter ........................................................................................... 145 

Murphy, Sharon L., President, National Association of State Veterans Homes 

(NASVH); prepared statement ............................................................................ 146 

Stewart, Joshua, Director of Policy, National Coalition for Homeless Veterans 

(NCHV); letter ...................................................................................................... 147 

Co-Directors, National Military and Veterans Alliance (NMVA); letter ............. 149 

Paralyzed Veterans of America (PVA); prepared statement ................................ 150 

Augustine, Ms. Lauren, Vice President of Government Affairs, Student Veterans of America (SVA); prepared statement .................................................... 155 

Tragedy Assistance Program for Survivors (TAPS); prepared statement ........... 159 

Bandzul, Thomas, Esq. Legislative Counsel, Veterans & Military Families 

for Progress (VMFP); prepared statement ......................................................... 161 

Bardorf, Rene ́ C., Senior Vice President of Government and Community Relations, Wounded Warrior Project (WWP); prepared statement ......................... 164 
(1) 

HEARING ON PENDING LEGISLATION 

WEDNESDAY, AUGUST 1, 2018 

U.S. SENATE, COMMITTEE ON VETERANS’ AFFAIRS, Washington, DC. 

The Committee met, pursuant to notice, at 2:32 p.m., in room 

418, Russell Senate Office Building, Hon. Johnny Isakson, Chairman of the Committee, presiding. 

Present: Senators Isakson, Boozman, Heller, Cassidy, Tillis, Sullivan, Sanders, Brown, Blumenthal, Hirono, and Manchin. 

OPENING STATEMENT OF HON. JOHNNY ISAKSON, 

CHAIRMAN, U.S. SENATOR FROM GEORGIA 

Chairman ISAKSON. Good afternoon. I call this meeting of the 

Senate Veterans’ Affairs Committee to order. 

This is a hearing on legislation that will be pending before the 

U.S. Senate at some point in time in the future, in some cases the 

near future. I have had conversations with the authors before and 

told them that we would have a hearing as early as I could have 

one so we could get the preliminary information out there. I appreciate everybody who is here today from both the Senate and the 

members of the VA, plus VA staff and the advisory committees. 

We have a full agenda. We have 15 pieces of legislation to address. We have two panels with four speakers each. We have a 

number of big issues, but probably no bigger than the Blue Water 

Navy issue, which has come up for some time in the past. The 

House has passed a Blue Water Navy bill. Senator Gillibrand and 

others in the Senate have asked me if we are going to consider one 

in the U.S. Senate Veterans’ Affairs Committee. I said we are going 

to, but we are going to do it in regular order. That is the way we 

did everything. We had some big issues last year which we were 

able to get through, like the Caregivers’ bill, which had never gotten out of this Committee before because of the way we handled 

it, which is the reason we got it out. 

I know from time to time I irritated some people during the last 

couple of months by being deliberate, not slow but deliberate, on 

the way we handled that. We will handle it the same way this year 

in terms of Blue Water Navy, and I think we will come out with 

a similar result in terms of a thorough examination of the 

legislation. 

This is all very important legislation. For everybody’s knowledge, 

we passed in the last 18 months 18 pieces of legislation to reform 

the Veterans Administration. Every Member of this Committee has 
2 

had significant input into those reforms, had a lot to say about 

them. 

We have a new Secretary of the VA, Robert Wilkie, whom you 

heard from when we had our hearing, who I was with Monday with 

the President for the swearing in. He is a great individual, a fine 

individual, and someone who is known to all of you that are here. 

I know he will do a great job. 

My opening statement is this: Be ready. Fasten your seat belts. 

We have got a lot of work to do, and today is to find out what the 

authors of the legislation want us to know about the bills they have 

proposed and for the people who will be affected to have testimony 

and input on that. 

Each one of the Senators who are here, Mr. Peters, Mr. Daines, 

and Ms. Gillibrand, will speak first and will be welcome to leave 

as soon as your speech is over. You do not have to, but I know you 

are busy and got other things to do, so you are welcome to do that. 

I am proud to recognize Sherrod Brown, my good friend from the 

great State of Ohio, a good baseball State, and he, a good baseball 

player. Senator Brown is filling in for Jon Tester, our ranking 

member. We got out early today, as many of you know, and Senator Tester had to leave town early, as I understand it. I appreciate 

his tremendous help and cooperation over the last year and a half. 

He has pledged it for the remainder of this term as well. We are 

going to have a great time together in this Committee, and we need 

to get good stuff done. 

So, Senator Brown? 

OPENING STATEMENT OF HON. SHERROD BROWN, 

U.S. SENATOR FROM OHIO 

Senator BROWN. I will be brief, Mr. Chairman. I would add on 

behalf of everybody on this Committee that Johnny Isakson is the 

least irritating member of the U.S. Senate. [Laughter.] 

I think you would all agree with that. I think we all are an irritating group of people, by and large, and he is not. So, thank you, 

Johnny, for that. 

Senators Daines, Gillibrand and Peters, thank you for joining us, 

and I speak on behalf, in part, Senator Daines, of the senior Senator, for Senator Tester. 

Thanks for holding the hearing, Mr. Chairman. 

There are two specific bills that I am interested in: (1) Better Access to Technical Training, Learning, and Entrepreneurship for 

Servicemembers Act, or BATTLE for Servicemembers Act that I 

have worked on with Senator Rounds, and I thank him; and (2) the 

Blue Water Navy bill, which is so important. This Committee will 

review two different pieces of legislation to address the needs of active-duty servicemembers as they transition to civilian life. We 

need to do everything we can to ensure they have the information 

and tools they need to succeed. Additional days of training to pursue education, technical training, entrepreneurship will help to set 

servicemembers up for good-paying jobs when they reenter civilian 

life, and I was pleased that this year’s NDAA that Senator Isakson 

was so helpful on, too, included a version of this provision in the 

final conference report. 
3 

I will not be able to stay for the second panel’s discussion, but 

I wanted to say a few words about Blue Water Navy veterans. I 

appreciate Thomas Snee being here from Lake County, OH. I appreciate very much seeing him today. He knows all too well, we all 

do, the energy it takes to push the VA to do the right thing by 

those who have borne the battle, particularly those who were drafted to fight and felt forgotten when they returned home, only to develop conditions directly tied to their service. 

Our Vietnam vets, many of them, many of you, do not have a lot 

of years left, and it is important that they get these benefits regardless of whether they served on the land, in the Brown Water, 

or in the Blue Water. It does not matter. 

Mr. Manar will speak in a moment. I want to quote from him, 

if I could sort of a little bit steal his thunder with this quote: ‘‘If 

there was dioxin in the water, we would have been exposed to it 

while swimming. Week after week, patrolling up and down the 

coast, we took in sea water and processed it through our fresh 

water evaporator system. We know from the Australian Navy 

study, validated by the National Academy of Medicine. . . that fresh 

water evaporator systems concentrated toxic material, including 

dioxin, which was then transmitted to sailors through drinking 

water.’’ 

‘‘As a matter of observation,’’ he goes on, ‘‘absent the cleaning 

and sanitation of the entire fresh water evaporator system, it is 

conceivable that every person who ever served on board my ship 

could have been exposed to dioxin after its first visit to Vietnam. 

Further, by the time we completed our last deployment. . . in 1972, 

the evaporator system would have accumulated concentrated dioxin 

from dozens of visits to Vietnam, not simply the final three that 

I experienced while on board.’’ 

Nobody could have said that better. My question for the record 

will be: why hasn’t the VA concluded that the science behind the 

Australian study, in which NAM collaborated, is sufficient? Why 

hasn’t VA done right by our veterans? 

So, Mr. Chairman, thank you for letting me offer those words. 

And, I appreciate all the panel members being here. 

Chairman ISAKSON. Thank you, Senator Brown. Thank you for 

being here, and thank you for your opening statement. 

Our first panel is made up of Senator Peters, Senator Gillibrand, 

and Senator Daines. Senator Peters will be recognized for 5 minutes, Senator Gillibrand for 5 minutes. I understand you are going 

to yield some time, is that correct, to Senator Daines, Senator Gillibrand? [Both nodding in agreement.] 

We will start with Senator Peters. You are recognized for 5 minutes. If it gets to 7 or 8, you are in trouble. 

STATEMENT OF HON. GARY C. PETERS, 

U.S. SENATOR FROM MICHIGAN 

Senator PETERS. I will be brief, Mr. Chairman. 

Thank you, Mr. Chairman, and thank you to all my colleagues 

for your service on this Committee. I certainly appreciate the opportunity to speak in support of Senate bill 1596, which is entitled 

the ‘‘BRAVE Act.’’ I was proud to introduce this bipartisan legislation with Senator Rubio. 
4 

The BRAVE Act is a bicameral piece of legislation, and I also appreciate the leadership of Representative Duncan Hunter, who is 

shepherding this bill in the House of Representatives. 

Our brave men and women in uniform have sacrificed so much 

in the defense of our Nation. We owe it to them to ensure that they 

receive the benefits that they have earned through their service, including a dignified burial. Unfortunately, current VA burial benefits are woefully insufficient. 

The national median cost of a funeral in 2017 was $8,755. However, the VA burial benefits provide a mere $2,000 for service-connected deaths, $762 for non-service-connected deaths for veterans 

who pass away in a VA facility, and $300 for all non-service-connected deaths. 

It is clear that these benefits have not kept pace with the rising 

cost of funeral and burial expenses, which is why Senator Rubio 

and I have introduced the BRAVE Act. The BRAVE Act will make 

funeral benefits for non-service-connected deaths the same, regardless of where the veteran passes away. 

The legislation also ensures that all burial benefits are indexed 

for inflation, eliminating the need for Congress to make further readjustments and providing future generations of our Nation’s veterans with the dignified burial that they have earned through their 

honorable service. 

The BRAVE Act enjoys support from organizations including the 

Veterans of Foreign Wars, Vietnam Veterans of America, the National Funeral Directors Association, the Association of the U.S. 

Navy, The American Legion, and Disabled American Veterans. I 

believe we should honor our Nation’s heroes by making commonsense updates to VA burial benefits, ensuring that every veteran 

has a proper funeral and burial no matter the circumstances at the 

end of their lives. 

Thank you again, Mr. Chairman and the Committee, for the opportunity to speak today, and I look forward to working with you 

as you pass this important legislation. I yield the rest of my time 

to the Senator from New York, Senator Gillibrand. 

Chairman ISAKSON. Senator Gillibrand, you are recognized for 5 

minutes plus whatever he yielded to you. 

STATEMENT OF HON. KIRSTEN E. GILLIBRAND, 

U.S. SENATOR FROM NEW YORK 

Senator GILLIBRAND. Thank you so much, Mr. Chairman and Mr. 

Ranking Member. I am very grateful for your leadership. I am so 

grateful for this hearing—we really want to support our Blue 

Water Navy veterans—and for your commitment to finally passing 

this long overdue bill. 

It is my sincere hope that now that we have an offset that has 

been identified and passed in the House, 382–0, that we may also 

quickly pass this bill and send it to President Trump as expeditiously as possible. 

As you know, during the Vietnam War, thousands of patriotic 

Americans were exposed to the chemical Agent Orange, which we 

now know is highly toxic. Some of our veterans were exposed to 

Agent Orange on the ground, some patrolling rivers, some while 
5 

stationed on ships off the Vietnamese coast. These are called the 

‘‘Blue Water Navy vets.’’ 

Now, all these years later, Agent Orange has made many of them 

very sick, many of them severely ill, and many of them have already died because of Agent Orange. But, the VA is only helping 

some of the veterans exposed to this dangerous chemical. They are 

helping the Vietnam veterans who were exposed to Agent Orange 

on land or on rivers, but excluding those who served on the Blue 

Water. It does not make any sense. It is arbitrary. It is a bureaucratic rule that is preventing veterans who served in Vietnam from 

getting the treatment they desperately need. 

In Congress, we have been fighting for this legislation for nearly 

a decade so that the VA could just deliver the benefits that these 

men and women have already earned. With today’s markup, we are 

finally there. Thanks to the tireless effort of both members of the 

House and Senator Veterans’ Affairs Committees, we have a bipartisan bill, and we have a bipartisan pay-for. 

Now, I want to address the pay-for because that is important to 

a lot of our colleagues. The offset is nearly $1 billion to care for our 

Blue Water Navy veterans, their families, and for some, their survivors. The way we pay for it is from the VA Home Loan Program 

because it provides a home loan guarantee benefit to help servicemembers, veterans, and surviving spouses who become homeowners. Private lenders provide VA home loans, but the VA guarantees a portion of that loan, enabling veterans to receive more favorable terms. 

Now, these loans are different from those that are offered to nonveteran civilian populations. Instead of paying annual fees or interest on the loan, the veteran only pays a one-time up-front loan fee. 

Currently that fee is 0.25 percent lower if you are active-duty 

versus National Guard or Reserve. All this bill does is equalize that 

number at 2.4 percent. It pays for the entire bill. It passed unanimously in the House of Representatives. 

So, I hope that our Senate colleagues can look at this pay-for favorably and allow this bill to be fully paid for to help our veterans. 

Now, our Blue Water Navy veterans have waited a very long 

time for basic health care and basic benefits they have already 

earned. They have suffered consequences to their health, to their 

families, to their lives. I think this is an injustice that we can and 

must rectify, and I think we can do it in this Congress. So, I ask 

all of you to please consider this bill since it has had such bipartisan favorable response in both the House and Senate. I think the 

time is now to actually pass it. 

I would now like to yield the remainder of my time to my colleague Senator Daines. 

[The prepared statement of Sen. Gillibrand follows:] 

PREPARED STATEMENT BY HON. KIRSTEN GILLIBRAND, 

U.S. SENATOR FROM NEW YORK

BLUE WATER NAVY VIETNAM VETERANS ACT OF 2017

CHAIRMAN ISAKSON AND RANKING MEMBER TESTER, Thank you for the opportunity 

to speak again before this Committee in support of the Blue Water Navy Vietnam 

Veterans Act of 2017—and for your commitment to finally passing this long overdue 

bill. It is my sincere hope that now that an offset has been identified and passed 
6 

the House 382 to ZERO, that we may also quickly pass this bill and send it to President Trump as expeditiously as possible. 

As you know, during the Vietnam War, thousands of patriotic Americans were exposed to a chemical called Agent Orange, which we now know is highly toxic. 

Some of our veterans were exposed to Agent Orange on the ground. Some of them 

were exposed to Agent Orange while patrolling the rivers. And some of them were 

exposed to Agent Orange while they were stationed on ships off the Vietnamese 

coast—these are the Blue Water Navy veterans. 

And now, all these years later, Agent Orange has made many of them sick. They 

are severely ill. Many of them have already passed away because of Agent Orange. 

But, the VA is only helping SOME of the veterans exposed to this dangerous 

chemical. They’re helping the Vietnam veterans who were exposed to Agent Orange 

on land, or on rivers... but NOT the Blue Water Navy veterans. That doesn’t make 

any sense. 

This arbitrary, bureaucratic rule is preventing veterans who served in the Vietnam War from getting the treatment they need now. 

In Congress, we have been fighting for nearly a decade to deliver VA healthcare 

and benefits to the Blue Water Navy veterans exposed to Agent Orange. And with 

today’s markup of H.R. 299, we are finally there. Thanks to the tireless efforts of 

both the House and Senate Veterans’ Affairs Committees, we have a bipartisan bill 

and a pay-for. 

I think it is important, in this hearing, that we directly address the pay-for in 

H.R. 299 that will offset the nearly $1 billion cost of caring for our Blue Water Navy 

veterans, their families, and—for some—their survivors. 

The VA Home Loan program provides a home loan guaranty benefit to help servicemembers, veterans, and eligible surviving spouses become homeowners. Private 

lenders provide VA home loans, but the VA guarantees a portion of the loan, enabling veterans to receive more favorable terms. 

These loans are different from those offered to the non-veteran, civilian population. Instead of paying annual fees or interest on the loan, the veteran only pays 

a one-time, up-front loan fee at the initiation of their loan. 

Currently, the rate of this fee is 0.25% lower if you are active duty than if you 

are in the National Guard or Reserve. This bill would equalize the rate at 2.40%. 

I believe our colleagues in the Senate will agree with the unanimous, bipartisan 

consensus in the House—that this pay-for is appropriate and measured. The VA 

Home Loan program will remain a powerful, unparalleled tool to help America’s veterans become homeowners, and the rates will remain far better than rates in the 

private market. 

Our Blue Water Navy veterans have waited far too long for the healthcare and 

benefits owed to them. They’ve suffered health consequences that left them and 

their families on the hook for medical expenses that our government should have 

provided. Many have lost their lives. This is an injustice we can—and must—address here in this Congress. 

I ask that each of you here vote today to move H.R. 299 out of committee without 

changes or delay—so that our Nation can do right by our veterans and their families 

as quickly as possible. 

And now I’d like to yield to my colleague and lead cosponsor of this legislation, 

Senator Daines. 

Chairman ISAKSON. Senator Daines. 

STATEMENT OF HON. STEVE DAINES, 

U.S. SENATOR FROM MONTANA 

Senator DAINES. Chairman Isakson and Ranking Member Tester, 

thank you for allowing us to be here today to testify at this 

hearing. 

I am the lead Republican on this bill, and I want to thank my 

colleague and friend Senator Gillibrand for her leadership. I urge 

the Committee to pass this critical bipartisan measure. 

Since 2002, our U.S. Navy veterans who were exposed to Agent 

Orange while serving in Vietnam have been denied proper care 

through the VA. As background, you have to go back to the Agent 

Orange Act of 1991, 27 years ago. That bill passed unanimously by 
7 

both Houses of Congress, and it extended presumptive health care 

coverage for all illnesses linked to Agent Orange. 

Here is the problem: The VA thwarted congressional intent by 

choosing the narrowest possible definition of ‘‘service in the Republican of Vietnam,’’ which excluded the country’s territorial waters. 

Our Federal records show, the science shows a documented 19 million gallons of herbicide was sprayed over Vietnam between 1962 

and 1971. No reasonable person would conclude that the runoff 

from these powerful chemicals was contained just to the shoreline. 

I am encouraged by the recent action our colleagues in the House 

have taken and the growing bipartisan push here in the Senate to 

correct, frankly, a senseless disparity once and for all. I urge this 

Committee to take a critical step toward that end today. 

Chairman ISAKSON. Thank you very much, Senator Daines. I 

think we go to questions and answer on the first panel. 

I am trying to exercise executive privilege over here. Just a second. I will be right back to you. [Pause.] 

The staff tells me I am out of order. [Laughter.] 

That is not the first or would be the last time. Senator Daines, 

thank you for coming. 

Senator DAINES. Thank you, Mr. Chairman. 

Chairman ISAKSON. Ms. Gillibrand, thank you very much for 

your comments. 

Senator GILLIBRAND. Thank you all. Thank you for the time. 

Chairman ISAKSON. Senator Peters has already left. I thank him 

very much. 

The first panel, which I will introduce right now, is coming forward. Panel number 1 is Paul Lawrence, Ph.D., Under Secretary 

for Benefits, Veterans Benefits Administration, Department of Veterans Affairs. 

Ralph Erickson will be accompanying him. Ralph is a doctor, 

Chief Consultant, Post-Deployment Health, Veterans Health Administration. 

Tammy Czarnecki is Assistant Deputy Under Secretary for 

Health/Administrative Operations, Veterans Health Administration. 

And, Jessica Bonjorni—I hope you are Italian; that would be 

great—is Acting Assistant Deputy Under Secretary for Health for 

Workforce Services, Veterans Health Administration. 

Will you all please come forward and take your seats? Thank you 

very much for being here. This is an important panel, and I will 

get to ask you all questions. Just because the Senators dodged the 

bullet, you all will not be able to. 

We will start with Ms. Bonjorni—no, I am sorry. You are to be 

an acting aide. You are not going to be the main presenter. That 

is correct. I almost got you in trouble, too. 

Mr. Lawrence, you are on. You have 5 minutes, but if you take 

a little extra time because of the complexity of a couple of these 

issues, that will be fine with me. 
8 

STATEMENT OF PAUL R. LAWRENCE, Ph.D., UNDER SECRETARY FOR BENEFITS, VETERANS BENEFITS ADMINISTRATION, U.S. DEPARTMENT OF VETERANS AFFAIRS; ACCOMPANIED BY RALPH ERICKSON, M.D., M.P.H., DR. PH, CHIEF 

CONSULTANT, POST-DEPLOYMENT HEALTH, VETERANS 

HEALTH ADMINISTRATION; TAMMY CZARNECKI, ASSISTANT 

DEPUTY UNDER SECRETARY FOR HEALTH/ADMINISTRATIVE 

OPERATIONS, VETERANS HEALTH ADMINISTRATION; AND 

JESSICA BONJORNI, ACTING ASSISTANT DEPUTY UNDER 

SECRETARY FOR HEALTH FOR WORKFORCE SERVICES, VETERANS HEALTH ADMINISTRATION 

Mr. LAWRENCE. Thank you very much, sir. Good afternoon, 

Chairman Isakson, Ranking Member Sanders, and Members of the 

Committee. Thank you for inviting us here today to present our 

views on several bills that would affect the Department of Veterans 

Affairs. You generously introduced our panel, so I will not repeat 

their names. 

With 15 bills on the agenda, I will cover a few in my oral statement. 

We are glad to support the bill to provide grants to coordinate 

suicide prevention efforts for veterans in our communities. There is 

no bigger or more urgent priority for VA. 

Other bills we support will provide long-overdue increases in burial benefits as well as improving benefits for surviving spouses. 

There are other bills on the agenda that raise concerns, including 

Blue Water Navy. We oppose this bill. Let me explain why. 

We know it is incredibly difficult to hear from groups of veterans 

who are ailing and ill. Many of us in this room are veterans with 

empathy and compassion. We also understand there are practical 

effects from this bill that give us great concern and pause. In the 

case of this legislation, we should be very clear on the precedent 

this bill attempts to create and the broad effects it will have over 

time. 

As you know, when a veteran files a claim, our pledge is to work 

hard to honor it. In the process of evaluating a veteran’s claim, we 

rely on science and medical opinions. For example, a person suffers 

an injury during service or has a condition later in life that we 

think is connected to their time in service. They submit a claim for 

service-connected benefits based on the injury or condition. We 

apply science, in this case a medical exam, to demonstrate the injury or condition was caused during military services or has rendered them with a disability for which they should receive 

compensation. 

But, with Blue Water Navy, there is no conclusive science from 

the Institute of Medicine to support claims of toxic exposure. This 

Committee set the standard to use science to be fair and consistent 

in cases such as this. Once that standard is removed from the 

equation, it becomes nearly impossible to adjudicate a claim of this 

type on the merits. The resulting lower threshold sets in motion 

the prospect of uncontrolled demands for support. What remains 

eliminates this rationale, and instead we are left with a situation 

where there are no limits; therefore, no claims can be denied. 

This in turn invites other sympathetic causes without valid 

science to petition Congress for compensation. If this bill becomes 
9 

law, this Committee is setting a precedent for potentially unwieldy 

policy with consequences to the future of Veterans Benefits, VA, 

and in other areas of Government. 

The bill before us today will then be referenced when other exposure claims are presented to this Committee. At that point Congress will be under greater pressure to accommodate these requests, too, regardless of the evidence. 

The National Academy of Medicine reviewed all available scientific evidence, concluding that it was unable to state with certainty that Blue Water Navy personnel were or were not exposed 

to Agent Orange. They recognized that the oft-mentioned Australian study does not directly support the contention that Blue 

Water Navy personnel were exposed to the dioxins of Agent Orange. This laboratory simulation was based on the false premise 

that water for ship distillation would be drawn near shore where 

pollution accumulates. To avoid these contaminants, established 

U.S. Navy policy was only to draw water from 12 miles offshore 

where pollutants and dioxins would be diluted from trillions of gallons of sea water. 

Because we are always looking for new information, VA continues to review and monitor the peer-reviewed scientific and medical literature in collaboration with VSOs. To further address the 

medical aspects of Section 2, Dr. Erickson is with me today and is 

prepared to discuss ongoing VA studies of Vietnam veterans, one 

of which compares the health effect of Vietnam veterans with veterans who did not serve in Vietnam and with U.S. nonveteran populations. It has the advantage of including Blue Water Navy veterans on the steering committee. Results will be published in peerreviewed scientific literature starting in 2019. Nearly 1,000 Blue 

Water Navy veterans are included in the study at this time. 

Additionally, VA is opposed to paying for the provisions of this 

bill by increasing the costs that some veterans must pay to access 

their benefits. Veterans will have to either finance the VA funding 

fee with interest or pay up-front in cash. This means fewer veterans will buy homes or buy homes using non-VA options, potentially opening them to predatory lenders. 

Another impact we need to raise regards the recent ongoing efforts to reduce the appeals and claims backlog. These efforts would 

be impacted through additional FTEs and costs, but also adding 

time to the 125 days to process a claim due to the verification 

study that would need to go into the processing of that claim. 

In summary, we oppose this bill because the science is not there, 

and what we do depends upon science. We care so we keep looking. 

Increased fees levied on home loans place additional financial burdens on veterans who are trying to buy a home, opening them further to predatory lending. The ongoing efforts and momentum of 

appeals and claim backlog would be set back. 

A final thought. Congress has always relied on science. If this 

bill passes, the legacy of this Committee could be forever changed. 

Let me now briefly address the draft bill on Veterans Dental 

Care Eligibility Expansion and Enhancement Act of 2018. We feel 

part of the bill is unnecessary and that the significant expansion 

of dental care called for in this bill is simply not feasible. VA does 

not have the infrastructure to provide that care, and the significant 
10 

expense of adding the benefit we fear would squeeze resources from 

other critical veteran health care needs. 

State nursing homes are addressed in S. 3184. We know extended care for veterans is an important issue for the Committee 

and every Senator. However, we believe S. 3184, as drafted, could 

result in negative unintended consequences, including move State 

veterans’ homes away from their core mission of serving veterans. 

We are glad to discuss ideas to improve this bill further with the 

Committee. 

This concludes my testimony. We look forward to answering any 

questions the Committee has. 

[The prepared statement of Mr. Lawrence follows:] 

PREPARED STATEMENT OF DR. PAUL R. LAWRENCE, UNDER SECRETARY FOR BENEFITS, U.S. DEPARTMENT OF VETERANS AFFAIRS

GOOD MORNING, CHAIRMAN ISAKSON, RANKING MEMBER TESTER, AND MEMBERS OF

THE COMMITTEE. Thank you for inviting us here today to present our views on several bills that would affect the Department of Veterans Affairs’ (VA) programs and 

services. Joining me today are Ralph Erickson, M.D., M.P.H., Dr. PH, Chief Consultant, Post Deployment Health, VHA; Tammy Czarnecki, Assistant Deputy Under 

Secretary for Health/Administrative Operations, VHA; and Jessica Bonjorni, Acting 

Assistant Deputy Under Secretary for Health for Workforce Services, VHA. 

H.R. 299—BLUE WATER NAVY VIETNAM VETERANS ACT OF 2018

Section 2: Clarification of Presumptions of Exposure for Veterans Who Served in Vicinity of Republic of Vietnam 

Section 2 of H.R. 299 would add a new section 1116A to title 38, United States 

Code (U.S.C.). The bill would expand the presumption of Agent Orange exposure to 

all Veterans who served ‘‘offshore’’ of the Republic of Vietnam, as defined in subsection (d) of the bill, and would presume the in-service incurrence or aggravation 

of all diseases covered in 38 U.S.C. § 1116 for these Veterans. It would also provide 

retroactive benefits for Veterans who had a previous claim for a covered disease denied and then file a new claim, comparable to the retroactive benefits available for 

Veterans who went ashore. This retroactivity would be accomplished via a special 

effective date rule contained in the bill. The bill would also expand the definition 

of ‘‘Vietnam-era herbicide-exposed veteran,’’ codified at 38 U.S.C. § 1710(e)(4)(A), to 

include Veterans with ‘‘offshore’’ service for purposes of the provision of health care. 

VA is opposed to section 2 of this bill. The legislative history of Veterans’ disease 

presumptions dates back to 1921 when Congress established a presumption of service connection with an amendment (P.L. 67–47) to the War Risk Insurance Act (P.L. 

63–193). In the following years, additions to the presumptive list were made by regulation, executive order, and legislation. In 1991, the Agent Orange Act (P.L. 102– 

4) established for Vietnam Veterans a presumption of a service connection for diseases associated with exposure to Agent Orange and certain other herbicides. For 

the first time, this Act required VA to contract with the Institute of Medicine (IOM) 

to biennially conduct a scientific review of the evidence linking certain medical conditions to herbicide exposure. VA was instructed to use the IOM’s findings, and 

other evidence, to provide the rationale for establishing regulations and determining 

that a presumption for any disease would be warranted when there is scientific evidence of an association with herbicide exposure. 

VA’s view is that the evidence-based approach to creating or expanding presumptions should be maintained. Although presumptions exist to assist in proving claims 

that may otherwise be difficult for individual veterans to establish on a direct basis, 

the presumptions of exposure and/or medical causation should always be supported 

by historical, scientific, and/or medical evidence about the specific population of Veterans affected. VA recognizes Congress’s prerogative in creating or expanding presumptions. However, VA is concerned that new Congressionally-created presumptions that are not adequately supported by evidence will erode confidence in the 

soundness and fairness of the Veterans’ benefits system. Such statutory presumptions will lead to increased pressure on VA to create or expand additional presumptions administratively, under a similarly liberal approach. Because VA generally 

cannot establish regulatory presumptions that are not reasonably grounded in evidence, Veterans petitioning VA for new presumptions that are not supported by the 

required level of evidence will likely be unsatisfied with VA’s response. These Vet-
11 

erans may feel that the system is inequitable in providing expansive presumptions 

favoring certain groups of Veterans but not others. 

As a means of further assessing the potential for Agent Orange exposure, VA commissioned the IOM to produce the report, Blue Water Navy Vietnam Veterans and 

Agent Orange Exposure (2011). The report concluded that exposure among Blue 

Water Navy Veterans ‘‘cannot reasonably be determined,’’ and it did not find supported and compelling evidence of Agent Orange exposure due to aerial spray drift, 

river water runoff, or potable sea water distillation. The report indicated that Agent 

Orange was destroyed by sunlight within hours of application and any that survived 

would rarely make it out to the South China Sea because of the major dilution factor. Additionally, United States Navy ships were required to draw up seawater for 

conversion to shipboard potable water at least twelve miles offshore from any river, 

a distance at sea where the presence of Agent Orange was unlikely. 

Although there is insufficient scientific evidence to grant a blanket presumption 

of Agent Orange exposure for all Navy Vietnam Veterans, VA has a liberal policy 

of presuming exposure for all Veterans who served aboard Brown Water vessels operating on Vietnam’s inland waterways, and for those Veterans serving aboard Blue 

Water ships that temporarily entered the inland waterways. Additionally, if evidence shows that a Blue Water ship off the coast sent crew members ashore for duty 

or visitation, any Veteran on the ship at that time will receive the presumption of 

exposure if they state that they personally went ashore. 

As such, VA opposes section 2 because there is insufficient scientific evidence at 

this time showing Blue Water Navy Veterans were exposed to Agent Orange. At 

VA’s request, the IOM (now National Academy of Medicine (NAM) ) reviewed all 

available scientific evidence, concluding that it was ‘‘unable to state with certainty 

that Blue Water Navy personnel were or were not exposed to Agent Orange and its 

associated TCDD’’ (ref: Blue Water Navy Vietnam Veterans and Agent Orange Exposure, 2011). VA continues to review and monitor the peer-reviewed scientific and 

medical literature and is collaborating with Veterans Service Organizations (including the Veterans of Foreign Wars and the Blue Water Navy Vietnam Veterans Association) to gather more information. A new VA health study of Vietnam Veterans 

that includes the collection of data on Blue Water Navy Veterans is currently ongoing. VA researchers are currently analyzing data from this effort. The timeline for 

initial results is expected to be in 2019, with publication of results potentially within 1–2 years. VA is committed to examining all available evidence on this issue and 

gathering input from stakeholders in order to make well-informed, scientific, evidence-based decisions for our Nation’s Veterans. 

VA is also concerned with the special effective date provisions of the bill. Our understanding is that these provisions are intended to provide Blue Water Navy Veterans with effective date treatment that is similar to that available under the 

Nehmer court decision and orders for those who served in the Republic of Vietnam. 

However, in enacting provisions extending benefits to other groups of Veterans, 

Congress generally has not extended those benefits retroactively, much less for such 

a significant time period. VA is concerned about the apparent inequity of this disparate treatment of different groups of Veterans. Further, VA is concerned that the 

procedures necessary for applying these special effective date provisions, including 

determining proper effective dates and establishing awards covering large retroactive periods, would be complex and labor-intensive tasks that would divert resources from other important claim adjudications. 

Further, VA has concerns associated with the demarcation line used in this bill. 

Implementation of this provision would be impracticable. Currently, VA maintains 

a ship list for ships that operated on inland waterways. This requires VA to research and review deck logs in individual cases to assess the geographic coordinates 

of the ship, as well as the time periods on which the ship operated on an inland 

waterway. This bill would essentially extend that ships list to encompass an area 

no more than 12 nautical miles seaward of a line commencing on the southwestern 

demarcation line of the waters of Vietnam and Cambodia and intersecting certain 

geographic points. VA would be required to assess many more deck logs and coordinates to place additional ships on that list for certain time periods. Because of the 

nature of deck logs, it may be impossible to determine an exact location and determine whether a ship did, or did not, cross this line on a particular date. Additionally, based on the available scientific and medical evidence, VA is unaware of any 

association between a line twelve miles offshore and exposure to Agent Orange. VA 

understands that the Department of State also has concerns regarding this provision of the bill. 

This bill would also add significantly to the number of benefit claims pending over 

125 days. Because of the retroactive provisions and the intricacies of reviewing deck 

logs, each claim would take longer—more than twice as long, on average—to review 
12 

than claims VA generally receives. In addition, a large volume of claims would be 

expected as a result of this bill. Thus, unless additional employees are provided, VA 

would expect the backlog to grow significantly due to this expected claims burden. 

Finally, VA does not support paying for the provisions of this bill by increasing 

the costs that some Veterans must bear to access their benefits. Section 6(b) of the 

bill would adjust the loan fee that certain Veterans, Servicemembers, and surviving 

spouses must pay to obtain home loans in VA’s home loan program. In many cases, 

the adjustment would require borrowers to pay higher loan fees to obtain home 

loans. In other words, it appears that the bill would partially offset the Government’s cost of increased benefits spending on some Veterans by raising loan fees for 

others. Granting new benefits for some Veterans at the expense of other Veterans 

is counter to VA’s mission. 

VA’s cost estimate for the bill is broken down into four categories: benefits, general operating expenses, information technology (IT), and health care expenditures. 

VA estimates the total benefits cost of this bill would be $1.8 billion during fiscal 

year (FY) 2019, $3.4 billion over 5 years, and $5.7 billion over 10 years. In addition 

to benefits cost, VA estimates the Veterans Benefits Administration (VBA) General 

Operating Expenses (GOE) costs for the first year would be $90 million and include 

salary, benefits, rent, training, supplies, other services, and equipment. Five-year 

costs are estimated to be $215.2 million and 10-year costs are estimated to be 

$349.1 million. VA further estimates that the IT cost to support VBA would be $2.9 

million for the first year, $5.3 million over 5 years, and $7.6 million over 10 years. 

This cost would include the IT equipment for full-time equivalent employees, installation, maintenance, and IT support. Regarding health care expenditures, VA estimates the costs of section 2 of the bill would be $27.8 million in FY 2019, $275.1 

million over 5 years, and $625.0 million over 10 years. In total, VA estimates section 

2 of the bill would carry costs of approximately $6.7 billion over 10 years. 

Section 3: Presumption of Herbicide Exposure for Certain Veterans Who Served in 

Korea 

Section 3 would add a new section 1116B to title 38, U.S.C., extending the presumptions of service connection for diseases associated with exposure to herbicide 

agents to all Veterans who served in the Korean demilitarized zone (DMZ) between 

September 1, 1967, and August 31, 1971. It would not provide retroactive benefits 

comparable to those available for Veterans who served offshore of the Republic of 

Vietnam, as proposed in section 2 of this bill. 

VA is not opposed to presumptions for Veterans of service in the Korean DMZ, 

but has concerns with the prescribed presumptive dates, which we believe would unduly expand the start of the time period of presumptive exposure. 

Following consultation with the Department of Defense (DOD), VA promulgated 

38 Code of Federal Regulations (CFR) § 3.307(a)(6)(iv), which provides a presumption of exposure to an herbicide agent to Veterans who served between April 1, 

1968, and August 31, 1971, ‘‘in a unit that, as determined by [DOD], operated in 

or near the Korean DMZ in an area in which herbicides are known to have been 

applied during that period.’’ As VA explained in the proposed and final rule notices 

implementing 38 U.S.C. § 1821, DOD has identified April 1968, as the earliest 

known use of herbicides along the Korean DMZ. See 74 Fed. Reg. 36,640, 36,641 

(Jul. 24, 2009) (’’[s]pecifically, DOD has reported that herbicides were applied between April 1968 and July 1969’’); 76 Fed. Reg. 4245, 4246 (Jan. 25, 2011). 

Additionally, the lack of retroactive benefits for Veterans who served in the Korean DMZ highlights the disparity between the treatment of Veterans who served 

offshore of the Republic of Vietnam, as addressed in Section 2 of this bill, compared 

to other groups of Veterans. 

Costs associated with Section 3 are estimated to be insignificant. 

Section 4: Benefits for Children of Certain Thailand Service Veterans Born with 

Spina Bifida 

Section 4 would add a new section 1822 to title 38, United States Code, authorizing VA to provide the same benefits to children of Veterans with Thailand service, 

as defined in the bill, suffering from spina bifida as the benefits required to be paid 

to children of Vietnam Veterans suffering from spina bifida. 

VA supports assisting family members who may have been adversely affected by 

a Veteran’s in-service exposure to Agent Orange. However, VA is concerned with 

Section 4 because there is continued scientific uncertainty surrounding the association of spina bifida and exposure to Agent Orange. As found in the last relevant 

NAM report, an association between spina bifida and exposure to Agent Orange is 

no longer shown. Spina bifida was moved from the category of limited or suggestive 
13 

evidence of association in update 2012 to the category of inadequate or insufficient 

evidence of association in update 2014. 

VA estimates the total benefits cost of this bill would be $748,000 during FY 2019, 

$3.9 million over 5 years, and $8.1 million over 10 years. GOE and IT costs are not 

associated with this section. We are unable to provide health care cost estimates at 

this time. 

Section 5: Updated Report on Certain Gulf War Illness Study 

Section 5 of the bill would require VA, within 180 days of the date of the enactment of this Act, to submit to the Committees on Veterans’ Affairs of the House of 

Representatives and the Senate, an updated report on the findings, as of the date 

of the updated report, of the Follow-up Study of a National Cohort of Gulf War and 

Gulf Era Veterans under VA’s epidemiology program. VA has no objection to this 

requirement, as we anticipate this update would be available within that time 

period. 

Section 6: Loans Guaranteed Under Home Loan Program of Department of Veterans 

Affairs 

Section 6(a) would amend 38 U.S.C. § 3703(a)(1) by revising the definition of maximum guaranty amount to tie the maximum guaranty amount to the loan, regardless of whether the loan exceeds the Freddie Mac conforming loan limit. 

Subsection (b) would amend the loan fee table at 38 U.S.C. § 3729 to adjust the 

statutory loan fees charged to borrowers obtaining loans made, guaranteed, or insured under VA’s home loan program. Certain Veterans, Servicemembers, and surviving spouses would pay increased loan fees when obtaining purchase, construction, 

and fully underwritten loans. 

Subsection (c) would waive the statutory loan fees for Servicemembers who have 

received the Purple Heart award. However, subsection (c) would impose new statutory loan fees on disabled Veterans that have a service-connected disability rated 

as less than total and surviving spouses who are currently exempt from the loan 

fee. 

VA does not support section 6(a). Under current law, the maximum guaranty 

amount can prevent Veterans who live in high-cost areas from being able to obtain 

a zero down payment loan. By tying the maximum guaranty amount to the loan 

rather than to the Freddie Mac conforming loan limit, subsection (a) would eliminate what has restricted Veterans’ use of their home loan benefits in certain highcost areas. However, this provision may increase risks to the portfolio by increasing 

the effective loan-to-value ratio for these non-conforming loans. Higher loan-to-value 

ratios may lead to higher claim payments and lower recoveries in events of default. 

VA does not support subsections (b) and (c) of the bill. As previously explained, 

VA does not support paying for the provisions of this bill by increasing the costs 

that some Veterans must bear to access their benefits. 

VA still is refining estimates for benefits savings associated with section 6, but 

the 10-year savings likely will fall below $3 billion. Therefore, VA anticipates that 

the bill’s costs would far exceed any savings associated with this section. 

Section 7: Information Gathering for Department of Veterans Affairs Home Loan Appraisals 

Section 7 would amend 38 U.S.C. § 3731 to permit appraisers to make appraisals 

based solely on information gathered by a person with whom the appraiser has entered into an agreement for such services. The provision would result in less waittime for Veterans who want to close their loans, particularly those Veterans who 

live in remote areas. Section 7 would also better align VA-appraisal policy and procedures with industry standards. VA believes this provision would address recent 

stakeholder concerns regarding timely delivery of VA-required appraisals. VA estimates that there are no costs associated with this section. 

S. ___—VETERANS DENTAL CARE ELIGIBILITY EXPANSION AND ENHANCEMENT

ACT OF 2018

Section 2 of the draft bill would amend 38 U.S.C. § 1710(c) to authorize the Secretary to furnish dental services and treatment, and dental appliances, needed to 

restore functioning in a Veteran that is lost as a result of any services or treatment 

furnished under this subsection. 

VA does not support this section because it is unnecessary. VA already has the 

authority to provide these services. While VA currently has limited authority to furnish dental care and services, VA can furnish care and services under a different 

provision of law to Veterans who have been disabled by treatment. If the intent of 
14 

this section is otherwise, VA would appreciate the opportunity to discuss this further with the Committee. 

Section 3 of the draft bill would require VA to begin a 3-year pilot program not 

later than 540 days after the date of the enactment of this Act. Through this pilot 

program, VA would assess the feasibility and advisability of furnishing dental services and treatments to Veterans enrolled in VA health care who are not eligible for 

such care under other authorities. VA would have to carry out the pilot program 

at not fewer than 16 locations meeting certain criteria and based on certain considerations. No more than 100,000 Veterans could participate in the pilot program, and 

the Secretary would have to distribute this limitation among locations selected for 

the pilot program in a manner that takes appropriate account of the size and need 

of dental services at each location. The services that would be provided would have 

to be consistent with the services the Secretary furnishes to Veterans with serviceconnected disabilities rated 100 percent disabling under VA’s laws. Veterans would 

be able to participate in the pilot at their election. VA would have the authority to 

collect copayments for dental services in accordance with authorities on the collection of copayments under VA’s existing authorities, but could not be more than the 

copayments for medical care under chapter 17. VA would have to inform all Veterans eligible to participate in the pilot program of the services and treatment available, and VA could enter into contracts with appropriate entities for the provision 

of dental care, although each contract would have to specify performance standards 

and metrics and processes for ensuring compliance with such standards. Within 540 

days and again within 3 years of the commencement of the pilot program, VA would 

have to submit a report to Congress on the pilot program, and 180 days after the 

completion of the pilot program, VA would have to submit another report to Congress. These changes would take effect on the date that is one year after the date 

of the enactment of this Act. 

While VA supports the expansion of dental services and oral health, VA cannot 

support this section without additional resources, specifically funding, infrastructure, and staffing, to support such an effort. VA does not have the infrastructure 

or staff to furnish care to an additional 100,000 Veterans in 16 or more locations 

without reliance upon community providers. Therefore, implementation of this pilot 

program would significantly increase VA’s financial obligations for community care 

at a time when VA is in the process of implementing the new Veterans Community 

Care Program required by the Caring for Our Veterans Act of 2018. We further note 

that, as this is structured to be a pilot program, we have significant concerns on 

how we would implement this and believe that Congress should make additional 

policy decisions concerning how this program would operate. While VA may be able 

to make these decisions through rulemaking, we expect these would potentially be 

controversial and could delay implementation of the program if VA is forced to decide these matters instead of Congress. For example, the bill provides no guidance 

on how VA should administer this benefit fairly—whether VA should rely upon first 

in time, a clinical assessment, priority group, or some other criterion for determining which 100,000 Veterans receive care under this program. Similarly, the legislation offers no guidance on how VA should make determinations concerning 

where such care would be furnished. Finally, as a term-limited program, VA is concerned about how VA would manage care authorized near the end of the pilot program, as some Veterans may actually be worse off, if they received only a portion 

of a fuller episode of care. We would appreciate the opportunity to discuss these concerns in greater detail with the Committee. 

VA anticipates that the total cost for clinical care (not including administrative 

or other costs) during the three year pilot program would exceed $600 million. 

Section 4 would require VA to construct or lease a VA dental clinic in any State 

that does not have a VA facility that offers onsite dental services. Within 180 days 

of the date of the enactment of this Act, VA would have to submit a plan to Congress for construction or lease of a dental clinic in each applicable State and begin 

construction of any such clinic not later than 1 year after such date of enactment. 

There would be authorized to be appropriated, and would be appropriated, $10 million to carry out this section. 

VA supports ensuring Veterans have access to dental services, but we believe decisions about establishing a new VA health care presence, whether leased or government-owned, should be made based upon an analysis of local conditions, namely the 

density of the population of eligible Veterans and the availability of other options 

to deliver cost-effective care. 

Section 5 would require VA to carry out a program of education to promote dental 

health for Veterans who are enrolled in VA health care, although nothing in this 

authority would alter or revise the eligibility of any Veteran for dental care under 

VA’s authorities. This education program would have to provide information con-
15 

cerning the association between dental health and overall health and well-being; 

proper techniques for dental care; signs and symptoms of commonly occurring dental 

conditions; and treatment options for commonly occurring dental issues. The education program would also provide information pertaining to options for obtaining 

access to dental care, including information on eligibility for care through VA, State 

and local governments or non-profit organizations; purchasing private dental insurance; available and accessible options for obtaining low or no-cost dental care, including through dental schools and federally-qualified health centers; and such 

other matters relating to dental health as the Secretary considers appropriate. The 

education material would have to be provided through a variety of mechanisms, including print, online, and through presentations. 

VA does not support section 5 because it is unnecessary. VA already develops, provides, and promotes educational information, including training and the availability 

and accessibility of options for obtaining low or no-cost dental care, including 

through dental schools and federally-qualified health centers. 

Section 6 would require VA, no later than 540 days after the date of the enactment of this Act, to expand the dental insurance pilot program established by 38 

CFR § 17.169 (as in effect on the date of the enactment of this Act) to establish a 

mechanism by which private sector dental care providers shall forward to VA information on dental care furnished to individuals under the pilot program for inclusion 

in the electronic medical records of VA with respect to such individuals. VA could 

continue the dental insurance pilot program for 2 years in addition to what is otherwise provided for in 38 CFR § 17.169 if the Secretary determines that the continuation is needed to assess the mechanism required by this section. Individuals could 

elect whether to participate in the mechanism. VA would have to include information on the mechanism in each report to Congress on the dental insurance pilot program. This section would take effect on the date that is one year after the date of 

the enactment of this Act. 

VA does not support this section. We are concerned about the language in this 

section could create a requirement concerning medical records interoperability that 

is separate from VA’s efforts to modernize its electronic health records generally. 

Many dentists are not accustomed to providing health record information electronically to other providers; the claims they submit to patients and insurers for payment are generally all that they provide. As a result, this could create additional 

requirements on individual providers, which could either become difficult for them 

to implement or could result in their refusal to participate in the Dental Insurance 

Program. We believe it is necessary to balance the interests of a complete medical 

record with the obligations and expectations of community providers. We further 

note that the dental insurance program is no longer a pilot program, but is now a 

permanent program that is codified at 38 U.S.C. § 1712C; moreover, the pilot program authority (Public Law 111–163, section 510) was repealed through the Act 

that codified this authority (Public Law 114–218). VA fully supports the existing VA 

Dental Insurance Program. 

Section 7 would authorize VA to carry out a demonstration program to establish 

programs to train and employ alternative dental health care providers to increase 

access to dental care for Veterans who are entitled to such services from VA and 

reside in rural and other underserved communities. VA would give priority for participation in the demonstration program to VA medical centers or health systems 

in States with a technical college within the State college system that has established a degree or certificate level program for the training of alternative dental 

health care providers. Services through the demonstration program could be administered through telehealth-enabled collaboration and supervision when appropriate 

and feasible. Alternative dental health care providers would have the meaning given 

that term in 42 U.S.C. § 256g–1(a)(2). 

VA is opposed to unproven alternative delivery of dental care models. While we 

support programs that expand dental health care to Veterans in a safe and effective 

manner, the scientific evidence does not currently support the proposed model for 

Veteran patients who require management of multiple physical and mental 

comorbidities and multiple prescription medications. The average VA dental patient 

is approximately 60 years old and is taking over 10 medications. Allowing Veteran 

patients to seek restorative oral health care from a non-dentist practitioner poses 

too great of a potential overall health risk. VA strongly believes that the professional education and clinical expertise of a licensed dentist is essential for the thorough evaluation and comprehensive treatment of patients in VA. 

Section 8 would authorize to be appropriated $500 million for fiscal year 2020 to 

carry out this Act, other than section 4. The amount authorized to be appropriated 

would be available for obligation for the 5-year period beginning on the date that 

is one year after the date of the enactment of this Act. 
16 

VA has no views on section 8. 

S. 3184—TO AMEND TITLE 38, UNITED STATES CODE, TO MODIFY THE REQUIREMENTS

FOR APPLICATION FOR CONSTRUCTION OF STATE HOME FACILITIES TO INCREASE THE

MAXIMUM PERCENTAGE OF NONVETERANS ALLOWED TO BE TREATED AT SUCH FACILI- TIES, AND FOR OTHER PURPOSES. 

S. 3184 would amend one of the requirements for applications for State home construction grants in 38 U.S.C. § 8135(a)(4). Specifically, it would require States that 

submit an application to provide reasonable assurance that, for purposes of providing care to spouses of Veterans, during a period in which a facility is operating 

with a bed occupancy rate of 90 percent or less, not more than 40 percent of the 

bed occupancy at any one time will consist of patients who are not receiving such 

level of care as Veterans. 

While VA appreciates the intent of this legislation, we cannot support it as drafted. First, it is inconsistent with the intent of VA’s grant program for State Veterans 

Homes, as this would allow a significant portion of the population in a State Veterans Home to be non-Veterans. This authority would only apply if the home has 

less than 90 percent occupancy, which suggests that there may be insufficient demand for the Veterans Home in the first place. 

VA also has concerns with this legislation because the technical effects of the bill 

would result in adverse effects on Veterans and non-Veteran residents. Initially, we 

note that the additional language that would be added in § 8135(a)(4)(B) only refers 

to providing care to ‘‘spouses of veterans,’’ but State homes may also provide services to other non-Veterans besides spouses, such as persons whose child or children 

died while serving in the Armed Forces. We note that this creates some ambiguity 

as to how VA is to calculate the percentages further discussed in that subparagraph. 

VA’s greater concern, though, is that we believe that the language concerning occupancy rates could lead to unfortunate outcomes. Our reading of this language is 

that it would prohibit a State home from having a relative percentage of non-Veterans above 40 percent; for example, if a 100 bed facility only had 90 beds filled, 

there could be no more than 36 non-Veterans (40 percent of 90). We would interpret 

this language to mean that the occupancy rates would refer to the relative percentage of residents; VA has interpreted similar language concerning bed occupancy 

rates in VA’s regulations at 38 CFR § 51.210(d) to refer to the total number of residents, rather than the total number of beds in the home. Applying this interpretation to this legislation, though, could result in significant disruptions in care. For 

example, if the 40 percent occupancy rate is a percentage of the relative number 

of beds and 90 beds were filled, 36 could be filled with non-Veterans and 54 with 

Veterans. However, if the next applicant for a bed were a Veteran, the facility would 

exceed the 90 percent total occupancy rate, as it would have 91 residents if it admitted the Veteran. Because of this, it would no longer be authorized to have 40 percent of its available beds for non-Veterans; instead, it could only have 25 percent 

of its beds available for non-Veterans. 

We think this requirement could force the facility to take actions that could lead 

to unfortunate outcomes. First, the facility could simply discharge a non-Veteran patient immediately and admit the Veteran, which would be very disruptive to the discharged non-Veteran patient. This also would be a perverse incentive because it 

would discourage States to fully use the beds already in place. Second, the facility 

could tell the Veteran to wait until a non-Veteran left the facility on his or her own, 

but this would delay the Veteran’s care and would be a waste of resources, as the 

facility would have open beds available. We think one of these results would be required by the legislation because the bill would prohibit exceeding the 40 percent 

occupancy rate ‘‘at any one time,’’ which we interpret to mean that if at any point, 

even only momentarily, a facility is not in compliance with this requirement, it cannot have the additional flexibility the bill intends. The phrase ‘‘at any one time’’ has 

been very difficult for State homes to administer in other contexts, as it requires 

them to take action in anticipation of even momentary changes in their resident 

population. If the legislation, instead, referred to an average over a period of time 

(monthly or quarterly would likely be appropriate), that would seem to provide more 

flexibility and prevent unnecessary discharges as described in the scenarios above. 

VA does not anticipate that this bill would result in any additional costs. 

S. ___—DISCUSSION DRAFT REGARDING TRANSITION ASSISTANCE REFORM

The draft bill would amend title 10, U.S.C., to improve the Transition Assistance 

Program (TAP) for members of the Armed Forces, and for other purposes. VA generally defers to DOD, to the extent that it is responsible for administering title 10. 

However, we provide input on sections of the bill affecting VA. 
17 

Section 2 of the draft bill would direct the interagency partners for TAP to improve the counseling, information, and services currently furnished to transitioning 

Servicemembers, and to provide these services to transitioning Servicemembers’ 

spouses as appropriate. It would require that transitioning Servicemembers begin 

TAP no later than one year before their date of separation. It further would require 

sequencing of instruction and training provided by other agencies while allowing 

Servicemembers to complete VA training at a pace and order satisfactory to them. 

VA appreciates Congress’s interest in TAP and shares its desire to make sure that 

the program serves as many transitioning Servicemembers as possible, in the most 

effective way possible. To that end, VA and our TAP interagency partners currently 

have several interagency evaluations under way. These studies will provide us with 

the information needed to continue to make evidence-based policy decisions as to 

what improvements to TAP should be made, and how best to make them. While 

these evaluations are under way, we believe that legislation to mandate additional 

evaluations is premature at this time; nevertheless, we look forward to working 

with the Congress to improve TAP once we have completed these evaluations and 

have the evidence available to make evidence-based policy decisions. 

With regards to requiring Servicemembers to begin TAP no later than one year 

before separation, VA continues to take action to fulfill its commitment to integrate 

TAP into the Military Life Cycle in order to inform, equip, and provide support to 

Servicemembers earlier and at critical touchpoints throughout their career. 

With regards to the specific elements of counseling to be provided, VA supports 

the intent of proposed section 1142(f)(3)(A), regarding information on programs and 

benefits related to Veteran status, but is already providing benefits information to 

active duty Servicemembers who are separating from military service. This has facilitated earlier and easier enrollment and access to VA health care. Further, VA 

does not support subparagraph (E), which would require the pre-separation counseling include a description, developed in consultation with VA, of the assistance 

and support services for family caregivers of eligible Veterans furnished by VA 

under 38 U.S.C. § 1720G, including the Veterans covered by the program, the caregivers eligible for assistance and support through the program, and the assistance 

and support available through the program. VA does not support this subparagraph 

because VA has been working closely with DOD to implement a similar provision 

enacted in section 541 of the National Defense Authorization Act for Fiscal Year 

2018 (Public Law 115–91). VA fully supports ensuring Veterans understand the benefits that may be available to them, including those provided by VA and DOD (such 

as Special Compensation for Assistance with Activities of Daily Living), and we do 

not believe further legislation is required. VA supports the intent of subparagraph 

(F), which would require the pre-separation counseling to include information on 

survivor benefits available under the laws administered by VA or DOD. VA supports 

efforts to increase awareness of survivor benefits, such as the Civilian Health and 

Medical Program of the Department of Veterans Affairs, which is an important 

health care benefits program available for the family members of certain severely 

disabled or deceased Veterans. However, VA already provides much of this 

information. 

Subsection 1142(g)(4), would also extend VA’s current 6-hour briefings into a oneday course of instruction. VA interprets a full day of instruction as 8 hours. VA is 

in support of extending the VA benefits briefings to a full-day of instruction, which 

will ensure that VA can better prepare Servicemembers for their transition and help 

foster what will be a lifetime relationship between their families and the Department. A full-day will further ensure that transitioning Servicemembers are presented information in a manner that is conducive to promoting increased awareness 

and understanding of VA benefits, services, and support tools. Increasing the VA 

benefits briefings to a full-day of instruction would require additional funding. VA 

suggests that the term ‘‘registration’’ in this section be replaced with the term 

‘‘application.’’ 

With regards to mandating the sequencing of TAP, VA encourages that transitioning Servicemembers undertake the VA Benefits I/II training in an order satisfactory 

to their own personal transition goals, emphasizing that early and consistent training on VA benefits is crucial to the Servicemember’s successful transition outcomes. 

In addition to the changes to TAP, the draft bill would require changes to interagency data-sharing requirements. Section 4 would require DOD to establish and 

maintain an electronic tracking system and database that contains data on Servicemember participation, survey answers, available resources, and counselor notes for 

the Department of Labor (DOL), VA, commanders, and other TAP partners. Section 

5 would require the gathering of information and survey responses regarding TAP 

participation at various stages by various agencies and would require the information be made available electronically to VA, among other TAP partners. 
18 

Section 11 of the draft bill also calls for the identification of opportunities where 

VA can provide training to members which will lead to employment in critically 

understaffed positions in VA, using the DOD SkillBridge programs. With regards to 

identifying opportunities for job training and employment with VA in SkillBridge 

programs, VA and DOD have a shared goal to enhance services and employment 

opportunities at VA for transitioning Servicemembers through SkillBridge programs. Since 2014, VA has offered opportunities for transitioning Servicemembers 

to complete a national-level training program that leads to an opportunity for an 

interview and potential job as a benefits claims examiner. More recently, VA 

launched the Military Transition and Training Advancement Course (MTTAC) 

which trains Servicemembers to become medical support assistants. Furthermore, 

VA and DOD are working to develop an overarching agreement that will expand 

these types of opportunities to additional VA job fields. 

In sections 5, 12, and 13, the bill would require several different Servicemember 

studies and other evaluations of the effectiveness of transition-related training. It 

would require Servicemember surveys in order to assess the Servicemembers’ and 

their spouses’ experiences of the assistance provided through TAP. It also would require the evaluation of transition training and counseling relating to post-secondary 

education and use of educational assistance. Last, it would require VA, in consultation with interagency partners, to conduct a 5-year longitudinal study on three separate cohorts of Servicemembers who have separated from the Armed Forces. 

VA has already begun development of a post-transitional longitudinal program, 

which will survey Veterans over time to gain detailed information about their outcomes and their evaluations of how TAP helped them prepare for their transitions 

to civilian life. The assessment instrument was submitted to the Office of Management and Budget (OMB) for review in February 2018, and the Federal Register no- tice has been published. To conduct full execution of this study, VA will require additional funding. 

With regards to Servicemember surveys, VA receives feedback from participating 

Servicemembers and dependents through the Transition GPS Participant Assessment, which is a web-based instrument designed to measure and improve customer 

satisfaction with the curriculum and TAP overall. Using this transitioning Servicemember feedback, VA conducts a deep dive every other year to look for ways to improve the instructional delivery and design of its curriculum. In addition, we conduct a technical review every year to ensure all content is up to date. 

Section 14 would require the establishment of a board within the Veterans Benefits Administration (VBA) to exchange information and develop partnerships to support the prevention of suicides, substance abuse, and homelessness among Veterans. 

This board would include representatives from VBA, VHA, DOL, the Department 

of Homeland Security (DHS), and DOD. The existing VA/DOD Joint Executive Committee established during the 108th Congress and the TAP interagency Executive 

Council have significantly enhanced interagency exchange of information and partnership development to support the prevention of suicides, substance abuse, and 

homelessness. Furthermore, the Federal Government is improving collaboration on 

suicide prevention as a result of Executive Order (EO) 13822. These existing governance bodies provide a valuable forum for information sharing and collaboration on 

addressing mental health and at-risk populations. VA agrees that there is a clear 

need to improve coordination between the administrations and offices within VA, as 

well as among other agencies, regarding suicide, drug overdose, and alcohol-related 

mortality prevention efforts. As we recently released in the National Strategy for 

Preventing Veteran Suicide, data and surveillance form the foundation of a public 

health approach to ending Veteran suicide. Coordination within VA has already 

begun under our annual Veteran suicide data reports but there is more to be done. 

While VA supports the intent of this section, VA is concerned that the language prescribes that this board reside in an office which no longer exists in the VBA organizational structure, rather than affording VA the ability to determine which VA office 

should lead this board, should it be established. In addition, VA notes that the proposed board would have no experts on substance use disorders. 

Finally, section 15 would require VA, within 90 days of the enactment of this Act, 

to submit to Congress a report on current and future studies supported by VA’s Office of Research and Development (ORD) and others relating to economic risk factors 

affecting suicide prevention and a report on how the Department’s REACHVET program is incorporating or will incorporate economic risk factors in its algorithm for 

suicide prevention. 

VA does not support this section, as we can already provide this information, or 

will provide this information upon its completion, at the Committee’s request without legislation. Assessment of the effect of economic-related variables on risk for suicide is already part of the strategic plan within ORD that focuses on the transition 
19 

period from active military status to Veteran status. Epidemiological data analyses 

indicate that the transition period is a high risk period for suicide and related behaviors. The ORD strategic plan for suicide prevention aligns with EO 13822, which 

requires VA, DOD, and DHS to provide seamless access to mental health care and 

suicide prevention resources for transitioning Servicemembers. The EO specifically 

emphasizes access to services during the critical first year period following discharge, separation, or retirement from military service. 

In order to more closely examine the economic factors affecting suicide, ORD will 

leverage the existing data coordinating center at the Canandaigua VA Suicide Prevention Center of Excellence to identify, extract, and analyze data critical for a comprehensive suicide prevention program. ORD has identified funds (beginning in FY 

2019) to support the Canandaigua data coordinating center in this added effort. It 

is expected the work will be conducted in collaboration with various units across VA 

as well as with external agencies such as DOD and the National Institutes of 

Health. 

S. ___—VA HIRING ENHANCEMENT ACT

Section 2 of this legislation proposes to exempt VA physician hiring from the applicability of private sector covenants not to compete by adding new language to 

Subchapter 1 of Chapter 74 of Title 38 U.S.C. The applicability of covenants not to 

compete or non-compete clauses to Federal hiring has been a recurrent problem 

around the country, especially for physician hiring. In short, the proposed 38 U.S.C. 

§ 7413 states that any covenant not to compete with a non-departmental entity, facility or individual shall have no force or effect as it relates to an appointment to 

a physician position within VHA. It requires the appointee to provide clinical services at a VA medical facility for the duration of the covenant not to compete or for 

one year, whichever is longer. This service requirement may be waived by the Secretary. If the physician’s appointment is terminated for any reason before the termination date of the covenant not to compete, then the proposed 38 U.S.C. § 7413 

would no longer be applicable to the covenant not to compete. 

VA supports section 2 of this proposed legislation as written, as it solves a problem known to medical facility Chiefs of Staff across the country and clarifies that 

VHA hiring is not subject to private sector covenants not to compete. This legislation should make it easier to hire physicians with these contractual obligations. It 

should be noted that exempting VA physician hiring from covenants not to compete 

entered into with non-Departmental facilities, entities and individuals should not 

result in additional costs to the Federal Government or VA. 

While VA supports the intent of section 3, we do not support this provision as 

written. VA supports raising the qualification standard for physician hiring to completion of a full specialty residency program. This is the community standard and 

elevates VA standards to typical norms. VA changed the physician qualification 

standard over a year ago, and this section brings the statutory language in line with 

the current qualification standard. However, the inclusion of language regarding 

contingent appointments is unnecessary and confusing. VA already has the authority to extend job offers well before graduation from residency. Applicants must always meet the qualification standard prior to appointment. In addition, depending 

on state law, some residents may not gain the ability to be licensed immediately 

upon graduation from the residency program, as appears to be contemplated by section (3)(C)(ii). 

VA anticipates that this bill would result in no additional costs. 

H.R. 5418—VETERANS AFFAIRS MEDICAL-SURGICAL PURCHASING STABILIZATION ACT

H.R. 5418 would require multiple regional prime vendors to carry out the Medical 

Surgical Prime Vendor (MSPV) Program and successors. It would require each employee that conducts formulary analysis or makes decisions on formulary management have medical expertise relevant to the items being considered. The proposed 

legislation would also require a quarterly report to Congress of the names and medical expertise of employees who are participating in formulary management. 

VA agrees that there is a need for a clinically driven sourcing capability. The proposed legislation limits consideration of the full spectrum of MSPV delivery solutions available to efficiently provide medical products to VA healthcare facilities. 

The requirement to provide quarterly reports on clinicians who participate in formulary management is excessively burdensome. 

Further, MSPV costs are affected by many variables including: contract language; 

vendor geographic presence; mix of items purchased; etc. These variables change in 

relation to one another and in relation to how many vendors VHA uses. VA believes 

the MSPV legislation will likely increase medical commodity identification and pro-
20 

curement costs. Further, Congress has already provided tools for evaluating options 

for changing the number of vendors in subsequent acquisitions. Statutes on contract 

bundling and consolidation provide criteria for evaluating potential cost savings or 

other acquisition benefits to determine if such actions are necessary and justified. 

Thus, VA does not support this proposed legislation as written. 

VA is unable to provide a cost estimate at this time. MSPV costs are affected by 

many variables including: contract language; vendor geographic presence; mix of 

items purchased; etc. These variables change in relation to one another and in relation to how many vendors VA uses. VA believes the bill would likely increase medical commodity identification and procurement costs. 

S. 1596—BRAVE ACT OF 2017

S. 1596 would increase the basic non-service-connected monetary burial benefit allowance and tie monetary burial benefit allowances to the current rate of inflation 

according to the Consumer Price Index (CPI). Under current law, VA may only pay 

a sum not exceeding $300 under section 2302 of title 38 U.S.C. for basic burial allowance. This bill would increase the basic burial allowance payment to $749 and 

increase it by the CPI on an annual basis. The bill would also increase the serviceconnected burial benefit under section 2307, title 38 U.S.C. based on the CPI. 

As a technical matter, VA notes that the burial allowance under section 2303 is 

currently $762, after the CPI adjustment. The $749 amount in this bill may be derived from FY17’s CPI calculation. However, the legislation would apply to deaths 

that occur one year after the bill’s enactment. Therefore, we suggest changing the 

starting amount from $749 to $762 in order to achieve parity between the burial 

benefits in sections 2302 and 2303. 

VA supports S. 1596 provided Congress finds corresponding funding offsets. The 

last increase in the non-service-connected burial allowance under section 2302 occurred October 1, 1978, through the enactment of Public Law 95–479, increasing the 

allowance from $250 to $300. The last increase in the service-connected burial allowance under § 2307 occurred December 27, 2001 through the enactment of Public 

Law 107–103, increasing the allowance from $1,500 to $2,000. 

In 2007, and 2008, VA’s Office of Policy and Planning (OPP) conducted a study 

to determine whether the burial program was achieving expected outcomes and to 

determine the program’s impact on Veterans and families. OPP found that funeral 

costs had increased at a greater pace than the cost of other services since 1990. OPP 

noted that in 1973, the service-connected burial allowance covered 72 percent of a 

Veteran’s funeral and burial expenses, and the non-service-connected allowance covered only 22 percent of a Veteran’s funeral and burial expenses. According to OPP, 

by 2007, the value of these benefits had decreased significantly; the service-connected burial allowance reimbursed only 23 percent of the cost of a Veteran’s burial, 

and the non-service-connected burial allowance reimbursed only four percent of the 

cost of a Veteran’s burial. The National Funeral Directors Association (NFDA) reports on its Web site, www.nfda.org, that the median cost of a funeral and burial 

was $7,045 in 2012. The reported cost did not include the cost of a vault or cemetery 

plot or other miscellaneous cash advance charges, such as charges for flowers or 

obituaries. Further, NFDA reports that the median cost for an adult burial and funeral in the United States had increased from $708 in 1960, to $7,045 in 2012. 

The proposal will allow VA to offer a more valuable reimbursement for the costs 

of a Veteran’s funeral during a very difficult and vulnerable period of transition for 

the survivor. Additionally, the proposal will tie the burial allowances to the current 

rate of inflation consistent with burial benefits under section 2303. 

Benefit costs are estimated to be: no budget impact in 2019, $75.8 million over 

five years, and $259.2 million over ten years. This estimate is based on the rate of 

$749 for basic burial allowance in the bill. The cost would increase slightly if the 

rate is corrected to match the rate for burial benefits under section 2303. 

S. 2881—MARE ISLAND NAVAL CEMETERY TRANSFER ACT

S. 2881 would require VA to seek an agreement with the city of Vallejo, California, under which the city would transfer all right, title, and interest in Mare Island Naval Cemetery to the control of VA, at no cost to VA. If the cemetery is transferred, VA would be required to maintain the cemetery as a national shrine. 

VA does not support S. 2881, because the transfer of the Mare Island Naval Cemetery to VA could disrupt efforts currently underway to address the condition of the 

cemetery, and because acquisition of the cemetery by VA does not align with VA’s 

current strategic objectives with respect to providing burial access to Veterans and 

their families. Finally, VA does not support S. 2881 because it sets an unwanted 
21 

precedent regarding Veteran cemeteries in disrepair managed by localities, allowing 

them to eschew their responsibility to our Nation’s heroes. 

In 2017, concerned citizens began an effort to persuade VA to ‘‘take back’’ the 

Mare Island cemetery to address the deteriorating condition of the property. However, Mare Island cemetery has never been under the jurisdiction of VA. Mare Island was a Naval Base and a Navy shipyard that was closed in 1996; the on-base 

cemetery was closed to new interments sometime prior to that. When the base 

closed in 1996, the physical land and facilities, including the cemetery, were transferred to the city of Vallejo, at its request, which agreed to maintain the cemetery 

and has been solely responsible for its maintenance since that time. Despite the subsequent sale of some of the transferred land by the city of Vallejo, no funds were 

set aside to ensure the upkeep of the cemetery. 

VA is very concerned with the conditions observed at the Mare Island Cemetery 

and has been aiding the city of Vallejo to find ways to address the repairs needed. 

VA’s National Cemetery Administration (NCA) has provided expert advice to the 

city in developing its application for support from DOD’s Innovative Readiness 

Training (IRT) program. IRT establishes partnerships between DOD and U.S. communities that provide training for Servicemembers while addressing public and civic 

needs. DOD assessed Mare Island Naval Cemetery as a potential IRT project in 

May 2018 and has reported that a decision is pending evaluation of legal and historical considerations, as well as Federal and state environmental review requirements. DOD has indicated that the city’s application for IRT assistance would not 

transfer to VA should ownership be transferred from the city of Vallejo to VA. Costs 

of repairs and upkeep for the cemetery would become a VA responsibility, one for 

which VA has received no appropriation. 

In addition to disrupting the current efforts to address the condition of Mare Island Naval Cemetery, transfer of the cemetery to VA does not align with VA’s strategic objective to provide reasonable access to a burial option to 95 percent of eligible veterans and their families. Because this cemetery is closed to new interments, 

it does not offer new burial options for Veterans, and the transfer of the cemetery 

to VA would divert resources that should be used to provide additional burial options elsewhere. The service area within which Mare Island is located is already 

covered by other open VA national cemeteries. For instance, NCA currently operates 

the Sacramento Valley National Cemetery in Dixon, California, to serve Veterans 

and families members in the northern Bay Area. NCA also is seeking to improve 

burial access in this area with development of a columbaria-only urban cemetery 

(currently in design) at the new Alameda Point National Cemetery, which will provide enhanced access to burial benefits for approximately 420,478 Veterans, spouses 

and other eligible dependents. 

Finally, transfer of Mare Island Naval Cemetery to VA would establish an unwanted precedent with respect to Veterans cemeteries or sections of cemeteries not 

managed by VA, a state or tribal government that may fall into disrepair. VA could 

be asked to assume operational responsibility for gravesites in some of these locations and does not have the resources to address these requirements. 

VA cannot accurately assess the costs associated with S. 2881, because we have 

not performed our own assessment of the extent of repairs necessary to remediate 

the deterioration of the cemetery. In particular, we do not know the extent of structural problems that may not be visible from the surface, nor the cost of addressing 

those problems. 

Issues noted on visual observation include headstones that are misaligned and 

lacking proper maintenance, some of which may need to be replaced; restoration or 

replacement of perimeter fencing, foundation wall, and flagpole; turf restoration; 

and replacement of the irrigation system and water source. Based on a subject matter expert comparison of prior cemetery projects of similar size and potential scope, 

we estimate the cost of these discernable repairs to have a rough order of magnitude 

between $1.5 million and $3.2 million. 

VA is aware of media reports that raised the possibility of sub-surface issues with 

the property, but we are unable to verify these reports without a complete survey 

and assessment of the cemetery. If those reports are validated, the estimated costs 

to restore the cemetery in compliance with S. 2811 could be $15 million or more. 

S. 1952—VA FINANCIAL ACCOUNTABILITY ACT OF 2017

Section 2 expresses the sense of Congress regarding VA’s budgeting process. We 

defer to Congress in expressing its sense. 

Section 3 would require, not later than 90 days from the date of the enactment 

of this Act, VA to enter into a contract with an independent third party to, within 

180 days, review and audit VA’s financial processes, including reporting structures, 
22 

and actuarial and estimation models, and develop recommendations for improving 

such structures. Within 60 days of the completion of this review, VA would have 

to submit a plan to Congress to implement the recommendations developed by the 

third party. VA would have to appoint one individual within the Office of the Secretary of Veterans Affairs to be responsible for monitoring the status and progress 

of implementation of recommendations submitted to the Secretary by third parties, 

including those submitted pursuant to the contract described above, and all such 

other recommendations as may be submitted to VA by the Comptroller General, the 

Special Counsel, and the VA Office of Inspector General. Subsection (c) would require VA to, not later than 45 days before the date on which a budgetary issue 

would start affecting a program or service, submit a justification for any supplemental appropriation request it submits to Congress, including a plan for how VA 

intends to use the requested appropriation, how long the requested appropriation 

is expected to meet the needs of VA, and certification that the request was made 

using an updated and sound actuarial analysis. Subsection (d) would require starting in FY 2019 and in each FY thereafter, the VA Chief Financial Officer (CFO) 

to submit to Congress a statement of assurance that the financial projections included in the President’s annual budget request or the supporting materials submitted along with such budget are sufficient to provide benefits and services under 

laws administered by VA; a certification of the CFO’s responsibility for internal financial controls of the Department; and an attestation that the CFO has collaborated sufficiently with the financial officers of the facilities and components of VA 

to be confident in such financial projections. 

VA concurs with the intent to make our Departmental resource requests more 

analytically based and transparent to Congress and other stakeholders. However, 

we do not support this bill as we find it to be duplicative of existing laws and policies within the Department. For example, subsections (a) and (b) are duplicative of 

current processes. VA’s budget and financial processes are already the subject of frequent external audits and reviews. In particular, the Enrollee Health Care Projection Model (EHCPM) has been reviewed extensively by stakeholders, including 

OMB, VA leadership, Congressional staff, the Congressional Budget Office, , and the 

Government Accountability Office (GAO). GAO published a review of the EHCPM 

in 2011, ‘‘VA Uses a Projection Model to Develop Most of Its Health Care Budget 

Estimate to Inform the President’s Budget Request’’ (GAO–11–205) and is currently 

reviewing the EHCPM as part their review of the VA Community Care Budget 

(102732). The RAND Corporation has also conducted an external review of the 

EHCPM The Department always takes the findings and recommendations of external audit bodies, including GAO and the VA Inspector General, seriously. Our 

progress in addressing these recommendations is described annually in our Congressional Budget Justification books, and we regularly monitor progress throughout the 

year via internal reviews. 

Similarly, subsection (c) is redundant, as it was enacted through section 141 of 

the VA MISSION Act of 2018. Moreover, as with all appropriations requests to Congress, VA already provides the most detailed justification possible to explain the 

need for resources and the consequences should they fail to be provided. While we 

try to anticipate funding needs well in advance of their becoming urgent, some funding needs are true emergencies, and we are concerned that the rigidity of the 45- 

day advance timeline required will constrain both Congress and VA in ensuring Veterans’ needs are adequately met in the face of unexpected funding crises. 

Finally, subsection (d) is duplicative of laws and administration policies governing 

the Budget request and annual audit process, including the Congressional Budget 

Act and the Chief Financial Officers Act of 1990. 

S. 1990—DEPENDENCY AND INDEMNITY COMPENSATION IMPROVEMENT ACT OF 2017

S. 1990 would change the formula for calculating Dependency and Indemnity 

Compensation (DIC) payments, which would increase the payment amounts. The 

bill would also lessen the number of years a Veteran must be rated totally disabled 

prior to death for a surviving spouse to be entitled to DIC and it would entitle a 

surviving spouse to all benefits under Chapter 13 when the surviving spouse remarries after the age of 55. 

VA supports the bill. Increasing the amount of DIC benefit payments will help 

survivors continue to live a sustainable life. Lowering the remarriage age to 55 creates parity with certain DOD survivor benefits. 

VA is developing a cost estimate, but no estimate is available at this time. Although the bill would not require additional employee resources, there would be additional mandatory costs and associated required PAYGO savings, as well as information technology development costs. 
23 

S. 2485, MEDAL OF HONOR SURVIVING SPOUSES RECOGNITION ACT OF 2018

S. 2485 would codify the current rate of $1,329.58 for the Medal of Honor special 

pension paid to eligible Veterans. The bill would also establish entitlement for surviving spouses of Medal of Honor (MOH) recipients to this special pension at the 

same rate. To be eligible, the surviving spouse must have been married to the Veteran for one year or more prior to the Veteran’s death or for any period of time if 

a child was born of the marriage, or was born to them before the marriage. 

VA supports this bill provided Congress finds corresponding funding offsets. Paying special pension to surviving spouses would provide assistance to dependents of 

our most courageous Servicemembers and Veterans. 

Additionally, setting specific parameters concerning receipt of only one special 

pension, regardless if a surviving spouse has been married to more than one Veteran who was in receipt of a MOH, remarriage, and age is in-line with the other 

survivor benefits VA administers. Benefit costs are estimated to be $1.7 million in 

2019, $9.0 million over five years, and $19.1 million over ten years. 

S. 2748—BATTLE FOR SERVICEMEMBERS ACT

S. 2748 would make participation in the Transition Assistance Program (TAP) to 

prepare for higher education, technical training, or entrepreneurship mandatory for 

Servicemembers unless a waiver is granted. 

VA defers to DOD and DHS, as those Departments would have responsibility to 

implement the bill. VA fully collaborates with our interagency partners to address 

the complex challenges faced by our transitioning Servicemembers and Veterans. 

VA notes that a complicating factor in rapid identification of risk—or lack thereof 

for groups—is that often the signs and symptoms that stem from the challenges experienced during transition do not appear or begin until well after transition from 

military service. This delayed onset presents further challenges, as there are times 

when the Departments do not have regular contact with the transitioning Servicemember/Veteran. 

VA anticipates no additional costs to VA resulting from this bill. 

S. ___—TO REQUIRE THE SECRETARY OF VETERANS AFFAIRS TO ESTABLISH A PROGRAM

TO AWARD GRANTS TO PERSONS TO PROVIDE AND COORDINATE THE PROVISION OF

SUICIDE PREVENTION SERVICES FOR VETERANS TRANSITIONING FROM SERVICE IN THE

ARMED FORCES WHO ARE AT RISK OF SUICIDE AND FOR THEIR FAMILIES, AND FOR

OTHER PURPOSES. 

The draft bill would require VA, not later than 1 year after the date of the enactment of this Act, to establish a program to award grants to persons to provide and 

coordinate the provision of suicide prevention services for eligible Veterans who are 

at risk of suicide and for their families. A Veteran would be eligible for services 

under this section if the Veteran is within the first 3 years of transitioning from 

a member of the Armed Forces to civilian status. Grant applicants would be required to submit an application that describes the suicide prevention services to be 

provided; the identified need for these services; a detailed plan describing how the 

suicide prevention services would be delivered, including the community partners 

with whom the applicant proposes to work, the arrangements currently in place 

with such partners; and how long such arrangements have been in place. Additional 

information required is a description of the types of Veterans at risk for suicide and 

the families of such Veterans to be provided such services; an estimate of the number of Veterans at risk for suicide and the families of such Veterans proposed to 

be provided such services and the basis for the estimate; evidence of the experience 

of the person and proposed partners in providing suicide prevention services to individuals at risk for suicide, and particularly to Veterans at risk for suicide and the 

families of such Veterans; and a description of the managerial capacity of the applicant in several different areas. 

VA would be required to give priority in awarding grants to applicants who: have 

been providing or coordinating the provision of suicide prevention services for Veterans at risk of suicide and the families of such Veterans; have demonstrated the 

ability to provide or coordinate such services to such persons; have demonstrated 

the ability to provide opportunities for social connectedness for Veterans; and have 

demonstrated how they measure the effectiveness of their program. VA would also 

have to give priority to applicants providing services in rural or tribal areas, or in 

areas that have experienced high rates of or a high burden of veteran suicide and 

where no health care is furnished by the Department. Grants awarded under this 

program would be used to provide or coordinate the provision of suicide prevention 

services for Veterans who are at risk of suicide and their families. The suicide pre-
24 

vention services provided or coordinated would have to include the following: outreach to identify Veterans at risk of suicide, with an emphasis on Veterans who are 

at highest risk of not receiving health care or services from VA; screening risk assessment and referral to care; education of suicide risk and prevention to families 

and communities; case management services; peer support services; assistance in 

obtaining benefits from VA and other Federal, State, and local government entities; 

temporary assistance in transportation in the form of a voucher, when appropriate 

and applicable, to be used in accessing services; personal financial planning; legal 

services to assist with issues that interfere with obtaining or retaining housing or 

supportive services; and other services necessary for improving the resiliency of veterans at risk for suicide and their families. 

VA could require grantees to submit to the Secretary reports describing the use 

of the grant amounts. Grantees would have to notify each person who receives services that the services are being paid for in whole or in part by VA. VA would have 

to establish evaluation criteria for grantees under this section, require each grantee 

to submit a report with information necessary to evaluate the grantee at least annually, and evaluate each grantee at least annually. In planning and preparing to 

carry out this program, VA would have to consult with Veterans Service Organizations and various national and local organizations. VA would be required to report 

to Congress within 1 year of starting the program on the program and on the grant 

recipients under the program. 

VA strongly supports the concept of this legislation subject to Congress finding 

appropriate offsets. In June 2018, VA published a report on its findings from the 

most comprehensive analysis of Veteran suicide in our Nation’s history, examining 

more than 55 million Veteran records from 1979 to 2015 from all 50 States and four 

territories. The report built on previous VA Suicide Data Reports. Key findings include that in 2015, on average, 20 Veterans died by suicide each day. Six of the 20 

were users of VHA services, while 14 Veterans had not used any VHA care in the 

calendar year of or prior to their death. While VA has a number of programs devoted to reducing Veteran suicide, and we continue to develop and enhance these 

programs and efforts, they are designed to reduce risk of suicide in the population 

of Veterans who are under VA care. Therefore, we believe this legislation could provide a critical tool for coordinating with other entities in the community to reach 

this population of Veterans who do not rely on VA for care. VA’s efforts to reduce 

the incidence of suicide ideation, behavior (and suicide completions) among all Veterans could be complemented by partnering with community-based providers who 

are able to replicate VA’s suicide prevention programs in the community and to connect with Veterans that are currently beyond VA’s reach. VA considers effective 

partnering with eligible grantees key to being able to reduce the number of Veterans dying by suicide. 

We would appreciate the opportunity to work with the Committee to explore some 

technical alternatives or modifying language that may improve this proposal. For 

example, we have concerns about the narrow scope of eligibility for Veterans, as the 

bill would exclude Veterans who separated from the Armed Forces more than 3 

years before; this would include the population of Vietnam Veterans who have some 

of the highest rates of suicide. We also recommend including members of the Armed 

Forces (including members of the Reserve Forces and the National Guard) up to a 

year prior to their separation. This would better inform them of VA services and 

help facilitate needed wraparound services for this high-risk population as they 

transition. It would also facilitate a warm handoff to VA upon their separation 

should the new Veteran be interested. Further, we recommend that the legislation 

authorize eligible entities, rather than persons, to receive grants. We are also concerned about the timeline for implementation, as pursuant to 38 U.S.C. § 501, VA 

will need to publish regulations for this program prior to awarding grants. Finally, 

we note that additional resources would be needed to support a new grant program, 

including funding for grant awards and program administration. 

S. ___—MODERNIZATION OF MEDICAL RECORDS ACCESS FOR VETERANS ACT

The proposed legislation would require VA to establish a pilot program that would 

provide patients with a physical device, the size of a credit card, which would be 

used by patients to support the review of their personal health information and the 

exchange of information with other healthcare providers they might see, both inside 

and outside of VA. VA would be required to conduct a full and open acquisition and 

award a contract within 120 days of the enactment of the Act. VA would need to 

conduct a pilot in at least one VISN for a one-year period. 

VA agrees that patient-mediated health information exchange is a valuable strategy to support making health information available directly to patients and then 
25 

under their direction, making that same health information available to the providers across the health system they entrust with their care. However, VA does not 

support this bill as written. 

Currently, VA has technologies that support interoperable patient health information exchange nationwide. VA’s My HealtheVet Blue Button is piloting technology 

that allows Veteran patients to share their VA health records with their community 

care provider directly from their personal devices. VA’s eHealth exchange technology 

is a rapidly growing network that connects VA with community health providers 

who can then securely share clinical information using a standardized approach. 

As noted above, the proposed legislation would require VA to establish a pilot program that would evaluate a physical device, the size of a credit card, which would 

be used by patients to support the exchange of information. Providing physical devices to patients with their health information has not been a part of VA’s strategy 

for supporting patient-mediated data exchange, and we do not believe that this approach would add significant value beyond current efforts. VA believes Veterans 

would prefer to minimize the number of physical devices or items they would need 

to manage. Given the near ubiquity of smart mobile devices owned and used by 

health care consumers, VA believes a strategy that focuses on improved health data 

availability and exchange on a mobile platform would be preferred. 

VA believes that continued work on expanding query based exchange and on patient-mediated exchange via mobile and web applications supported by Federal 

Health Interoperability Resource Application Program Interfaces should remain top 

priorities at this time. Additionally, VA is preparing for the Department of Health 

and Human Services Trusted Exchange Framework direction that supports the ability for patients to access their health information electronically without any special 

effort. This direction supports a significant step toward achieving interoperability 

for the patient. 

Finally, no additional funding will be provided to support any efforts that would 

be required, should this bill become law. This would adversely affect other higherpriority health interoperability programs. 

S. 514—NO HERO LEFT UNTREATED ACT

S. 514 would require VA, within 90 days of enactment, to begin a one-year pilot 

program in no more than two VA facilities by providing access to magnetic EEG/ 

EKG-guided resonance therapy (Magnetic eResonance Therapy (MeRT)) to treat 

Veterans suffering from Post Traumatic Stress Disorder (PTSD), Traumatic Brain 

Injury (TBI), military sexual trauma (MST), chronic pain, or opiate addiction. VA 

would provide access to MeRT to no more than 50 Veterans in carrying out this program. VA would have to submit a report to Congress on the program no later than 

90 days after the completion of the program. The bill would not authorize additional 

amounts to be appropriated to carry out the requirements of this bill. 

While preliminary experience with this technology is promising, a study by the 

Newport Brain Research Laboratory to establish the efficacy of MeRT in treating 

PTSD in veterans is still in progress. VA offers repetitive transcranial magnetic 

stimulation (rTMS), which is a treatment related to MeRT that has the Food and 

Drug Administration (FDA) approval for treatment-resistant depression, a common 

comorbid condition in PTSD, TBI, MST, and chronic pain and opioid addiction. 

There is no existing evidence that MeRT is superior to rTMS for treating any disorder. To date, no medical device using MeRT technology has been cleared or approved by the FDA for the uses described in the legislation. While VA research continuously examines new treatment methods and modalities, independently collected 

evidence of the safety and efficacy of this technology has yet to be obtained. The 

additional pilot data that would be obtained under the proposed legislation would 

not address the critical issues of determining MeRT’s efficacy against a placebo or 

against rTMS. For these reasons, VA does not support the legislation. VA estimates 

the bill will have a one-time $1.83 million cost to implement. 

This concludes my testimony. We appreciate the opportunity to present our views 

on these bills and look forward to answering any questions the Committee may 

have. 
26 

ADDITIONAL VIEWS PROVIDED BY HON. ROBERT L. WILKIE, SECRETARY, U.S. 

DEPARTMENT OF VETERANS AFFAIRS

THE SECRETARY OF VETERANS AFFAIRS, 

Washington, September 6, 2018. 

Hon. JOHNNY ISAKSON, 

Chairman, 

Committee on Veterans’ Affairs, 

U.S. Senate, Washington, DC. 

DEAR MR. CHAIRMAN: By this letter, the Department of Veterans Affairs (VA) is 

providing deliverables from the Committee’s legislative hearing on August 1, 2018, 

and reiterating our opposing views on House Resolution (H.R.) 299. 

We know it is incredibly difficult to hear from Blue Water Veterans who are ailing 

and ill, and we have great empathy and compassion for these Veterans and their 

families. However, we urge the Committee to consider the scientific evidence, impact 

on other veterans, and costs associated with this legislation: 

• Science Does Not Support the Presumption that Blue Water Navy Veterans Were 

Exposed to Agent Orange. 

In 2011, the Institute of Medicine (IOM), now the National Academy of Medicine, reviewed all available scientific evidence and concluded that exposure 

among Blue Water Navy Veterans ‘‘cannot reasonably be determined.’’ The 

IOM’s report indicated that Agent Orange was destroyed by sunlight within 

hours of application and any that survived would rarely make it out to the 

South China Sea because of the major dilution factor. 

Media and several Veterans Service Organizations supporting the legislation 

have relied on an Australian study from 2002 that was designed to mimic Royal 

Australian Navy distillation policies and procedures; however, this study is irrelevant to U.S. Navy policy and practice. U.S. Navy ships were required to 

draw up seawater for conversion to shipboard potable water at least 12 miles 

offshore from any river, a distance at sea where the presence of Agent Orange 

was highly unlikely. As points of reference, 12 cubic miles of water is equal to 

13.2 trillion gallons, and 1 trillion gallons of water flow over Niagara Falls in 

a single month. Thus, the dilution factor would have been significant. IOM considered the Australian study in its 2011 review and stated the significance of 

the study’s findings was highly uncertain for U.S. Blue Water Navy ships. 

VA continues to study the science behind this issue. In late 2019, VA will publish the peer-reviewed Vietnam Era Health Retrospective Observational Study. 

The study will compare the health and morbidity of deployed Vietnam Veterans 

versus a cohort of non-deployed Veterans and similarly-aged U.S. residents who 

never served in the military. VA collected data from nearly 43,000 participants 

including nearly 1,000 Blue Water Navy Veterans. VA recommends waiting on 

the findings of the study instead of establishing a new presumption without a 

scientific basis. 

• Disabled Veterans Would Be Negatively and Disproportionately Impacted by Modified Funding Fees for VA-Guaranteed Home Loans. 

Under this legislation, the funding fee would be a new requirement for Veterans 

with service-connected disabilities rated as less than total. This would be a departure from the longstanding requirement that Veterans in receipt of VA disability compensation are always exempt from the VA funding fee. 

Currently, Veterans with a disability rating of less than ‘‘permanent and total’’ 

pay $0 in VA funding fees, regardless of loan amount. However, lenders generally require a down payment for loans exceeding the conforming loan limit; 

that down payment creates home equity for the Veteran. 

Under H.R. 299, such Veterans might not need a down payment, but they 

would be required to pay a funding fee. The fee is non-refundable, and if rolled 

into the life of the loan, it is paid with interest. For example, on a $500,000 

non-conforming purchase loan, a disabled Veteran could be required to pay 

$12,000 to VA in funding fees (plus interest if rolled into the life of the loan) 

rather than applying $11,725 as a down payment which results in home equity. 

• Savings from Funding Fees Would Not Be Enough To Cover Blue Water Costs. 

VA estimates we will need $5.5 billion to support the net costs of the bill, $5.4 

billion more than the approximate $100 million that the Congressional Budget 

Office (CBO) estimates for the bill. CBO significantly underestimated the number of Veterans and survivors who would be newly eligible for Blue Water bene-
27 

fits. VA’s estimate is based on the actual number of Vietnam-era Navy Veterans 

denied the presumption for Agent Orange on the basis of never setting foot on 

the landmass of the Republic of Vietnam or its inland waters. VA records show 

nearly 30,000 of these Veterans were previously denied, but CBO estimates only 

4,730 of these Veterans were previously denied. Similarly, CBO anticipates only 

120 survivors receiving benefits over 10 years, while VA estimates 2,817 survivors would receive benefits in the first year alone. In addition, CBO did not 

account for any expenses to implement this section of the bill. The Veterans 

Benefits Administration (VBA) estimates 803 employees would need to be hired 

in the first year, and funding would be required for salaries and related expenses such as training and information technology equipment. VA is unaware 

of any plans for CBO to revise its estimate. 

• Impact on Claims Backlog. 

Another impact we need to raise is in regard to the recent ongoing efforts to 

reduce the appeals and claims processing backlogs. The accomplishments we 

have made with congressional assistance will be stymied due to the fact that 

we will have to research and evaluate what could total over 30,000 potential 

claims. VBA’s current resources are not adequate to begin this workload. Therefore, these efforts would not only be impacted through hiring of additional fulltime equivalents and costs but also in adding time to the 125 days to process 

a claim due to the verification and study that would need to go into the processing of that claim. 

• Setting a New Precedent by Creating a Presumption without Adequate Scientific 

Evidence. 

The changes proposed in this legislation will have a greater effect beyond what 

we believe Congress intends. The creation of a new statutory presumption that 

is not adequately supported by scientific evidence will encourage increased pressure on both Congress and VA to create and expand additional presumptions 

under a similarly liberal approach. This would present a choice between taking 

a similarly unprincipled approach to other circumstances where a presumption 

is sought, but not supported by science, or treating different groups of Veterans 

disparately without any reasoned basis for doing so. If we do not allow standards in these cases, there is a greater chance that such policies will spread to 

other agencies in the Federal Government. 

• Unintended Consequences on Disabled Veterans. 

To offset costs for non-housing related programs, a disabled Veteran would be 

required to pay VA a new loan fee of up to 2.4 percent of the purchase price 

of a home instead of applying a similar down payment amount toward the purchase price. In short, certain disabled Veterans would bear the cost of providing 

other benefits by paying a new loan fee, which creates no home equity, instead 

of contributing funds toward home equity. This would impose a steep price for 

many and a cost that others may be unable to take on. We do not believe that 

these unintended consequences have been fully considered by Congress, and 

they should be completely understood before this legislation is passed. 

As for the deliverables requested during the hearing, VA was asked to provide for 

the record: 

• An Estimate of the Additional Funds Generated by the Fee Increases Proposed in 

H.R. 299. 

VA estimates savings associated with modified funding fees proposed in section 

6 of H.R. 299 would be $140 million in 2019, $732 million over 5 years, and 

$1.2 billion over 10 years. 

• The Number of VA Home Loans Provided in 1 Year Based on the Most Recent 

Data Available. 

In 2017, 685,735 home loans were guaranteed by VA. 

• The Number of Those Loans that Included a Funding Fee. 

In 2017, 285,282 home loans, or 42 percent of all VA-guaranteed home loans, 

included a funding fee. 

We appreciate this opportunity to comment on H.R. 299 and look forward to working with you and the other Committee members on this legislation. 

Sincerely, 

ROBERT L. WILKIE, 

Secretary. 
28 

Chairman ISAKSON. I will open with questions, and the order of 

questioning, by the way, is going to be all the Members that are 

here; we are going to call on everybody in order of arrival. 

Let me just start with myself on the Blue Water Navy. You made 

a statement just a second ago that the Australian study is flawed? 

Mr. LAWRENCE. That is correct. 

Chairman ISAKSON. What is the principal flaw in that? 

Mr. LAWRENCE. Let me draw on Dr. Erickson. He is the medical—— 

Chairman ISAKSON. Dr. Erickson. 

Dr. ERICKSON. Chairman Isakson, thank you for the question. 

The Australian study—in fact, I even brought a copy of that in case 

we need to refer to it. It is a good study insofar as it purports to 

go after certain answers. In particular, this was commissioned by 

the Australian Government. The lead author was a fellow named 

Muller. It involved wanting to replicate or copy the distillation 

process that we used in Australian ships. 

Part of the problem here is that the Australian format for drawing water into the distillation system allowed them to draw water 

close to shore, quite frankly. So, in fact, this experiment—it was a 

laboratory experiment. Think about high school chemistry and the 

distillation apparatus. They wanted to replicate an existing amount 

of sea water with dioxin that they would approximate what was 

near shore. 

The problem is you cannot go from that experiment to then make 

a conclusion about U.S. naval personnel. And, in fact, the Institute 

of Medicine in their report, which Dr. Lawrence referred to this 

conclusion—there was not enough information to determine whether Blue Water Navy personnel were exposed or not. 

The Committee that wrote this report had the Australian study 

available to them and had an opportunity to really go through this. 

This was not enough information for that committee to conclude 

that U.S. Navy personnel had been exposed. 

Chairman ISAKSON. OK. Is anyone here familiar with the VA 

loan program and the funding fee? 

Mr. LAWRENCE. Yes. I am. 

Chairman ISAKSON. It has been a while since I was in the business, but if I heard Senator Gillibrand correctly, what she wanted 

to do was raise the funding fee from 2.25 to 2.4 percent. Is that 

correct? 

Mr. LAWRENCE. That is correct. 

Chairman ISAKSON. That is 11⁄2 percent of the loan amount, correct? An increase? 

Mr. LAWRENCE. Yeah, that is correct. It is $250 on every 

$100,000 of loan. 

Chairman ISAKSON. OK. Is that enough money based on the 

number of VA loans that are closed in any 1 year to actually fund 

the difference if it were to pass? 

Mr. LAWRENCE. Not in our opinion, no. 

Chairman ISAKSON. I would offer for everybody’s benefit, I did 

real estate sales my entire life and did a lot of VA loans and FHA 

loans and things of that nature. You can make those numbers look 

like a lot of things, but that is not a lot of money, 11⁄4 increase. 

It is a variable, too, because it depends on the number of loans that 
29 

are actually closed and it is paid on. If you could get me your calculation, the best calculation as to what that yield would be in any 

1 year, I would appreciate it, Dr. Lawrence. 

Mr. LAWRENCE. Will do. We will provide that. Thank you. 

[The information requested is included in VA’s Additional Views 

letter dated September 6, 2018.] 

Chairman ISAKSON. I would like a copy of the Blue Water Navy 

report, Dr. Erickson. I would like a copy of that report. Not that 

I have the scientific acumen to understand it, but I can learn to 

ask enough questions about it, because we are going to make sure 

we do not leave any stone unturned in getting the information out 

that is necessary to make an educated decision. Our veterans deserve no less than that. 

Senator Sanders? 

HON. BERNIE SANDERS, U.S. SENATOR FROM VERMONT 

Senator SANDERS. Thank you, Mr. Chairman, and thanks for 

holding this hearing. Let me thank the representatives of the VA 

for being here. 

I was not happy to hear that the VA is in opposition to legislation that we have introduced which does something that I think 

most Americans understand to be correct, and that is to understand that when we talk about health care, we must talk about 

dental care. Dental care is health care. Today, with the exception 

of service-connected oral problems, the VA does not provide dental 

care to veterans in this country. What that means is that in 

Vermont and I think in every State in this Nation, you have veterans who have teeth rotting in their mouths, who have infections, 

who are in desperate need of dental care, but are not able to afford 

to get that dental care and are not getting it at the VA. 

What ends up happening is, I think the panel will acknowledge, 

that a poor dental situation causes other health care problems. 

Many veterans, especially those exposed to Agent Orange, suffer 

from diabetes. Diabetes has a relationship to your teeth. So, the 

idea that we are compensating people appropriately for exposure to 

Agent Orange and the diabetes it causes, but not dealing with dental care does not make any sense to me at all. 

I think, Mr. Chairman, the time is long overdue for the VA to 

acknowledge what most Americans acknowledge: dental care is 

health care. Too many of our veterans are not getting the dental 

care they need. 

So, what our legislation is is a modest pilot program—and I am 

prepared to discuss with you and others about how we can modify 

it. Let us see how it works. Let us see if the need is out there. I 

think it is. I hear from Vermonters all of the time that it is a need. 

I heard from people around the country. Our legislation is supported by the VFW, and I thank them for that; The American Legion; the Fleet Reserve Association; and the Vietnam Veterans of 

America; and we will hear from a representative from the Vietnam 

Veterans of America in a few minutes. 

The bottom line is, Mr. Chairman, the time is long overdue for 

the VA to understand that dental care is health care, and it must 

be addressed for our veterans. 

Thank you. 
30 

Chairman ISAKSON. Thank you, Senator Sanders. 

Senator Boozman? 

HON. JOHN BOOZMAN, U.S. SENATOR FROM ARKANSAS 

Senator BOOZMAN. Thank you, Mr. Chairman. Thank you so 

much for holding this important hearing that really covers a lot of 

different items. 

We appreciate you all being here, and we appreciate the second 

panel talking to us about the pros and cons, as you see it. 

First of all, I would like to start by saying how glad I am to see 

the Blue Water Navy legislation move forward in the Senate. This 

is an important piece of legislation that will allow many deserving 

veterans to receive the care and benefits that they have long 

earned and sought. 

I am also very pleased to see that the House-passed version of 

the Blue Water Navy bill includes a provision from my Thailand 

toxic exposure legislation. The provision authorizes the Secretary to 

provide any child of a veteran of covered service in Thailand who 

is affected by spina bifida the same health care, monetary allowance, and vocational training and rehab required for the children 

of Vietnam veterans similarly impacted by spina bifida. 

We have a situation where people in Thailand who served, we 

have recognized were affected, yet they are the only ones left out 

in regard to the children with spina bifida that we know is directly 

related to the other. 

Is there a reason that—I mean, are you all for or against that 

provision? Is there any reason, scientifically or not, not to include 

them with every other besides the cost? 

Dr. ERICKSON. Senator Boozman, thank you for the question. 

Part of the challenge as it relates to spina bifida is that the most 

recent ad hoc committee from the National Academy which reviewed this issue actually downgraded the evidence for there being 

an association of spina bifida in the children of Vietnam veterans. 

That does not mean that VA withdrew that benefit. However, at 

the present time, extending the benefit further is a little bit tricky 

because the foundation, the scientific foundation, per the National 

Academy of Medicine, has diminished remarkably. 

Senator BOOZMAN. I guess the only argument I would make, a 

benefit for one, a benefit for another is not—it is not the way that 

we do things. So, we need to get that worked out. 

In regard to the Blue Water bill—we would like to get the Thailand exposure bill done, and we are going to work really hard to 

do that. But, in regard to Blue Water, we really are pleased that 

this is moving forward. I want to commend Commander Wells for 

his dedicated work to seeing the bill through the lengthy but rewarding process that we are experiencing. I strongly believe that 

it is due to people giving continued service pushing this forward— 

Commander Wells, Mr. William Rhodes, an Arkansas veteran who 

served in Thailand—that the Committee is able to advocate for 

servicemembers and their families. It is my sincere hope that this 

momentum will continue as we continue to seek care for the needs 

of all of our Nation’s veterans well into the future. 

The other thing I would like to mention is a bill that we have, 

the VA Hiring Enhancement Act and just spend a second. That is 
31 

a bill from myself, Senator Heller, and Senator Tester. What we 

have tried to do, you know—we talk about all of these situations, 

whether it is extending Blue Water Navy, Thailand, and then all 

the problems we have at the VA, one of the major problems we 

have right now is we do not have enough providers in positions to 

fill. In talking to our provider community, in talking to the people 

that are running the hospitals, one of the things that they mention 

is that and a couple of other things. 

First of all, in their residencies, the ability to offer them the opportunity like other providers do fairly early in their residency to 

come to work for the VA. That is not done now. I do not know if 

it is precluded, but it is not being done. This bill specifically says 

let us do that. 

The other thing is the noncompete contracts, which I think many 

people feel like do not hold up anyway. Many people just go ahead 

and do that regardless. We have had, I think, mixed judicial things 

in regard to that. But, what we would like to do is based on the 

fact that if you are in private practice, you go to work for the VA, 

you are not pulling patients from the private practice to the VA. 

It is a different class of patients. So, we would like to get rid of 

that and make it such that the VA is exempt from that. 

Do you have any comments about that very quickly? 

Mr. LAWRENCE. Sure. Let me direct the question to my colleague 

Jessica Bonjorni. 

Ms. BONJORNI. Thank you, sir, for the question. We are in support of the provision to remove noncompete agreements. We do not 

have data to suggest how often this is happening, but we do certainly have incidents where we have had difficulty bringing providers on board because of noncompete agreements in their local 

market, and we have to use work-arounds to try and get them on 

board or wait. We appreciate your support on that. 

Senator BOOZMAN. Thank you very much. 

How about the issue regarding the residencies and trying to offer 

a job earlier than we are now? 

Ms. BONJORNI. We do have the ability to offer contingent appointments now. However, this legislation may help clarify that we 

have that ability now and make it more used in the community. 

Senator BOOZMAN. Very good. Well, we will welcome you working 

with us on language, if you have concerns about specific things, 

and I do think little things like this really are big things in the 

sense we desperately need the providers that we can use in the VA 

system. 

Thank you, Mr. Chairman. 

Chairman ISAKSON. Thank you, Senator Boozman. 

Senator Manchin? 

HON. JOE MANCHIN III, 

U.S. SENATOR FROM WEST VIRGINIA 

Senator MANCHIN. Thank you, Mr. Chairman. I thank all of you 

for being here. Just a few things. 

The Blue Water Navy, so that I understand, that is for anyone 

who served during the Vietnam era that basically was on a ship 

10–12 miles out supporting a carrier base, right? Probably a carrier 

fleet. 
32 

Mr. LAWRENCE. That is correct. 

Senator MANCHIN. OK. And, they were not coming in. They were 

not combat. You are saying—I mean not ground combat. I am—— 

Mr. LAWRENCE. Let me clarify. If your ship came in, in your example, and you parked at a port, you went on shore, and you make 

a claim, you would be covered by, as described earlier, the ground 

base presumptive, right? Senator Gillibrand talked about it. You 

were on the ground. So, in the example you are talking about, your 

ship has to stay out of—— 

Senator MANCHIN. So, I never could touch land in Vietnam? 

Mr. LAWRENCE. Generally speaking, that is correct. 

Senator MANCHIN. But, now there are people that say that basically their ships did come into port, and they are still not getting 

that type—I mean, they are being rejected because they were not 

in combat or not in a combat zone that would have been exposed. 

I am just trying to understand. 

Mr. LAWRENCE. Sure. 

Senator MANCHIN. We all want to take care of our veterans, OK? 

I cannot imagine even if a veteran was on a ship that never came 

in and started showing all these symptoms that are prevalent with 

Agent Orange, that that person would not be taken care of. 

Mr. LAWRENCE. Certainly, and he should be. I am unfamiliar 

with the specifics you are referring to. But, we have logs during 

this period of time from the Department of Defense of where the 

ships traveled, where they moved. It is very detailed and it is voluminous. So, we are able to track the people you are describing. It 

does not say it does not happen, but, you know, you then have to 

have the diseases or the disabilities that are covered by the 

presumptives. So—— 

Senator MANCHIN. The presumptives are if you were exposed in 

any way, shape, or form, these are the things that could happen, 

and you all can detect that. 

Mr. LAWRENCE. Correct. That is correct. So, ideally, the situation—— 

Senator MANCHIN. But, you should be able to detect that also 

even if they had not come to shore. 

Mr. LAWRENCE. That is correct. Any veteran at any time can 

apply for a claim, and we adjudicate it the way I described. 

Senator MANCHIN. It looks like that you all—I mean, here is the 

only thing I can tell you what I hear, is they are automatically rejected if they had not been to shore. They are automatically—it is 

not like saying it is unusual, it is rare, but you do have the symptoms of being exposed even though you were not on land. 

Mr. LAWRENCE. The only thing I would quibble with, sir, is hopefully they are not automatically rejected, because we do each case 

on a case-by-case basis. 

Senator MANCHIN. OK. 

Mr. LAWRENCE. They are not automatically—— 

Senator MANCHIN. Tell me how, if I have my constituents—and 

West Virginia has a large military population, a large VA. How do 

I make sure they get proper evaluation and care, not just rejected 

because they had never been—this bill might not be needed if we 

were getting the care that a person showed the symptoms and they 

were taken care of under those conditions. I think that is what we 
33 

are running into, the real stumbling block, and the people that are 

so upset are thinking they are just—there is no chance at all that 

I will get any care because I did not—I was on that ship, I was 

on that fleet, I did not come to shore. 

Mr. LAWRENCE. Sure. We have many, many claims made covering the way you are describing, and they are processed through 

our process with quality control. If you would like, I would be 

happy to talk to you about specifics to look in on them, but I will 

tell you, the process I am describing is what we use, and it is not 

automatic rejection the way you are describing. It does not say that 

there could not be things like that which you are describing happening, but that is not the intent—— 

Senator MANCHIN. Well, Doctor, that might not be the intention, 

and I respect that. The only thing I can tell you is you would not 

have a vote that you had so strong out of the House if the people 

believed that. You would not have that many people supporting it 

in the Senate if the constituents are saying, ‘‘Listen, we are just 

not being treated fair. We are not even given a chance.’’ That is 

why it has come to this level. 

So, whatever you have done, whether we have the bill or not, we 

have got to get our veterans the care they need. 

Mr. LAWRENCE. Sure. 

Senator MANCHIN. That is the problem we are running into. I assume this bill is going to pass, probably, if it comes out and goes 

to the floor. I do not know anybody that would be opposed, because 

we have all had constituents that have been rejected without a fair 

evaluation. That is about it in a nutshell. 

I want you to know I am very much concerned about it. We 

should not be at this level. We should have taken care of our 

veterans. 

I have a bill, Senate bill 1952, the Financial Accountability Act. 

I know you all are not crazy about it either. 

Mr. LAWRENCE. Technically, sir, we do not support it. 

Senator MANCHIN. I want to be as respectful as I can. On that, 

it seems like, you know, you all—veterans is the one group of people that keep us together in a bipartisan way. There is not another 

group that we all respond in the same way, no matter where you 

come from, because they have done so much and given us a chance 

to be here. Every time you all need money, it is an emergency. It 

is an emergency. We have run out of money. I do not know whether 

you have got somebody that cannot count, somebody that cannot 

keep track of it, or whatever the problem may be, Doctor. I am not 

trying to be facetious about this. But, this bill only asks for 45— 

I mean I can see a crisis coming. If the VA cannot see a crisis coming in 45 days to put us always in an emergency position, it is not 

fair for us, not any of us, not to be able to do our job to make sure. 

We are very supportive of Mr. Wilkie coming in. We think he will 

do a good job. He is no-nonsense. I think he got bipartisan support. 

I think, from everything I am hearing, he has done a pretty good 

job trying to get things straightened out and moving in the right 

direction. But, I do not know why anyone would—you tell me what 

you are so offended by on holding you all accountable financially. 

Mr. LAWRENCE. I am generally aware of the subject matter covered by your bill, and I believe it has to do with—— 
34 

Senator MANCHIN. It is also Mr. McCain’s bill. 

Mr. LAWRENCE. Sorry. 

Senator MANCHIN. It is also Mr. Tester’s bill. 

Mr. LAWRENCE. All the cosponsors. I am generally familiar with 

that. I believe it has to do with the duplication of yet another set 

of requirements for things that are already in place. I will offer to 

you and others to bring the subject matter experts to talk to you 

directly about their concerns. 

Senator MANCHIN. Well, I am also for eliminating that, so if 

there is a duplication that we have that allows you all to declare 

an emergency within a week or two and not give us enough notice, 

we will do away with that one. What we believe is there should not 

be anyone that has not done their finances or done their due diligence telling us where you are going to run into a jam if something 

hits. That is, I think, what we are asking for. 

I know I have used more than my time, Mr. Chairman, and I appreciate it. Sir, I just believe our Blue Water veterans who are in 

need of service, we should not even be here talking about this. I 

mean, I do not think that they are asking for that much. So, if we 

have to do the bill, we are going to do the bill. But, I wish that 

we could find another way forward. 

Thank you, Mr. Chairman. 

Chairman ISAKSON. If I could beg the Committee’s indulgence, let 

me expand on Senator Manchin’s question. I want to make sure I 

understood your answer. 

When he asked you the question about exposure to Agent Orange 

of someone who had served in the Vietnam theater but was in the 

Navy and was 12 miles out, do I understand you to say that if they 

could demonstrate that they were on the ground during that service at any point in time, they could possibly be eligible for benefits, 

but if they were never on the ground, they could not be? 

Mr. LAWRENCE. Sure, let me be precise. As you recall, the law 

that was referenced provides a presumptive for Agent Orange for 

folks on the ground. 

Chairman ISAKSON. Right. 

Mr. LAWRENCE. It was expanded then to what was referred to as 

‘‘Brown Water.’’ So, that is why if you are in the Blue Water and 

you are 12 miles offshore, you are not covered, hence the conversation we are having now. But, by tracking the ships and the flow, 

if your ship came in and parked on the land, now you were in the 

water that is covered by the presumptive, and you went ashore and 

you can document that you went ashore, and you now have the disabilities, the diseases that are covered by the presumptive, you 

would be covered by and be able to receive benefits. 

In the example he was talking about, for someone to be 12 miles 

off and never be less than 12 miles off, you would not be covered. 

That is what Dr. Erickson was referring to about the pollutants 

being diluted. 

Chairman ISAKSON. That is the answer I expected, which I wanted to hear again so that we are absolutely clear on that, because 

that answer evolved during the course of your exchange. 

Senator MANCHIN. Mr. Chairman, if I may, just one other thing. 

That is the hardest thing we have to understand. If you are exposed, you are exposed. We do not care whether it is blue, brown, 
35 

purple, green, yellow water, whatever it is. If you are on a ship and 

you are carrying—and they are loading tons and tons of napalm 

and tons and tons of Agent Orange, that is what we are saying. 

They have these symptoms, and the symptoms are directly involved 

with what they contacted. That is the hardest thing that we have 

to understand. They are automatically just saying, ‘‘Listen, we are 

not even going to test you for that because we do not think there 

is any way you could have that because it is impossible since you 

were in Blue Water.’’ That is the thing that does not make sense. 

That is the problem we have. 

Mr. LAWRENCE. Sure. Let me pull apart your question in a couple 

parts, OK? 

Senator MANCHIN. OK. 

Mr. LAWRENCE. So, again, anyone can file a claim, and you are 

not automatically rejected. Let me draw on Dr. Erickson, though, 

to clarify the science of what you described about handling weapons with napalm on them and how you actually are exposed to 

dioxin. 

Senator MANCHIN. Well, basically the aircraft coming back being 

exposed. 

Dr. ERICKSON. Senator Manchin, there are a couple things you 

referred to. Certainly we work with the Department of Defense on 

a regular basis to try to learn where were these agents shipped, 

how were they shipped, where were they stored, where were they 

used. We actually rely upon them because many of your constituents will contact and say, ‘‘I was in country X, and I am sure that 

I was covered with it.’’ We talk to DOD. DOD says, ‘‘We used commercially available herbicides, but those colored agents, such as 

Agent Orange, were not shipped, stored, or used at that location.’’ 

So, there is some precision that we would need to know, and if you 

have specific cases, please bring those to us, and we can help you 

with that. 

The other thing I want to engage you with, sir, is this issue of 

diseases being very clearly Agent Orange or, in particular, dioxin 

caused. Chloracne is one of the 14 conditions, and that is probably 

the one of the 14 presumption conditions that is sort of a smoking 

gun. There was a president in Ukraine who, in fact, was poisoned 

with a dioxin, and you probably remember his face changed dramatically. He has chloracne. But, the other 13 conditions are ones 

actually that are common with age. They are diseases that people 

who did not go to Vietnam actually get. So, when an individual develops one of those diseases, that is not immediate proof that it 

was Agent Orange. We need to do other types of studies, other 

means to get to that type of conclusion. 

Senator SANDERS. Mr. Chairman? 

Chairman ISAKSON. Senator Sanders? And, we are going to have 

to move on. 

Senator SANDERS. All of this discussion, picking up on Senator 

Manchin’s point, tells us why we need universal health care. What 

you are saying, if I got it correctly, if I am on a ship 11 miles offshore and I come down with an illness, I am covered. If I am on 

a ship 13 miles offshore and I come down with the same illness, 

I am not covered because under your definition I cannot quite 

prove that it is attributable to the water I may have drunk. 
36 

Meanwhile, veterans are becoming ill with the same type of illnesses and they need care. Maybe our position should be if you are 

a veteran and you served in the United States military and you become ill, you are entitled to VA health care. End of discussion. 

Chairman ISAKSON. I think that is the way to end the discussion. 

I am the one that violated the rule by doing a follow-up question, 

so I hate to reprimand anybody else, but I thought Senator 

Manchin’s question was right on point, and we needed to get that 

answer on record. I certainly would never cut out the former Chairman from having his say. 

So, with that said, Senator Cassidy. 

STATEMENT OF HON. BILL CASSIDY, 

U.S. SENATOR FROM LOUISIANA 

Senator CASSIDY. Thank you, Mr. Chair. I may come back to 

Blue Water just because Commander Wells is from Louisiana. I am 

very proud of him. I am also very proud of my Chairman for how 

he is handling this, so thank you both for bringing great 

consideration. 

I will briefly mention, by the way, my Modernization of Medical 

Records Access for Veterans Act, which I understand the VA has 

opposition to the bill’s pilot program, but I will follow up on that 

at a later point because I want to focus on our suicide prevention. 

I noted, Dr. Lawrence, that the VA is in support. Thank you very 

much. That said, I understand there is both internal and external 

potential opposition to it, and so I would just like to make the case 

for my colleagues and hopefully for those who might not be sure 

about the bill. 

To put this in perspective, when Dr. Lawrence came for his nomination hearing, we spoke about suicide prevention and veteran 

community. We know that there are socioeconomic risk factors in 

addition to mental health issues associated with suicide. We have 

spoken previously about so-called deaths of despair. 

[To staff: Can you put that chart up?] 

We find from data prepared by Princeton using CDC data that 

suicide, alcohol abuse, and drug abuse are in this unholy trinity, 

which results in folks being at increased risk for support. By the 

way, CDC notes that 54 percent of suicides have no known mental 

health condition. 

The socioeconomic factors, particularly isolation, should be part 

of our approach. Here is the next graphic, put up by my assistant; 

again, social isolation, foreclosure, life events, addiction only being 

one of them, can be associated with so-called deaths of despair. 

So, the Community Grant Program that we are suggesting would 

coordinate services within the community, helping veterans by integrating and strengthening social networks. I smile. My daughter 

thinks of a social network as being Facebook. I do not think that 

most folks my age would consider such. 

The grant, by the way, is also about reaching the 70 percent of 

veterans who do not seek care in a VA facility. Seventy percent of 

veterans who die by suicide have not been seen within a VA in the 

past 12 months. We think this is an incredibly important statistic 

and, if you will, a vulnerability relying on a VA hospital-central 

approach. 
37 

So, Dr. Lawrence, you then enter. We are interested in kind of 

a different paradigm. How could we use the Veterans Benefits Administration, which is for many the gateway to the VA. In fact, 

more veterans access VA benefits than health care, and in many 

cases that might be their only connection. 

I note that we talked about a VA loan program for homes. That 

is one way a veteran who is probably a little bit better off might 

interact with the VA, but she or he might never interact with a 

hospital. So, we are trying to think of that. 

The other thing—and I think we spoke about this before—the 

Transition Assistance Program legislation which establishes a governance board in this legislation to address deaths of despair within the Benefits Administration, if you will, breaking down the silos 

within the VA, leveraging all the resources, not just the hospital 

system but also VBA in a Department-wide suicide prevention 

effort. 

I say that, again, per our previous conversation, that the first 3 

years after leaving service are when veterans are at the highest 

risk of suicide, which is why the Transition Assistance Program is 

a critical partner in our suicide prevention effort. So, the Community Grant Program will augment the VA’s efforts in seeking out 

veterans in need and connecting them to the VA and community 

services and benefits. 

Defeating deaths of despair requires that we take a comprehensive approach to reaching vulnerable veterans, and that is why we 

want VBA. 

Dr. Lawrence, we spoke about VBA’s role in suicide prevention 

during your confirmation hearing. Since then, and knowing that 

you have looked at the bill we proposed, can you give your thoughts 

on how you, the VBA, can support this effort and place in the governance board within VBA to ensure suicide prevention is a department-wide effort? 

Mr. LAWRENCE. Certainly. I want you to know I took seriously 

our conversation on April 12, and one of the first things I did when 

I was confirmed was begin to understand what is the relationship, 

as you point out, with that despair. VA has a series of counselors, 

called ‘‘voc rehab counselors,’’ vocational rehabilitation. They begin 

the engagement you actually were describing with veterans. One of 

the things I learned from, you know, reports of GAO while watching the House hearing, was the ratio of servicemembers to counselors was above the ratio prescribed by law. It is supposed to be 

125:1. It was north of 140. The first thing I immediately did was 

figure out how to streamline staffing to go and hire more of these 

counselors, so by the end of this fiscal year, in a couple of months, 

we will have enough counselors on board so that ratio is in compliance with the law. We completely agree with you, I completely 

agree with you that the engagement is critical. Part of what these 

counselors do is exactly what the second slide shows. What do you 

need from us? Is it benefits? Perhaps you are homeless. We can expedite your claim. Perhaps you need medical attention, and we connect you with VA. I totally took our conversation seriously, and it 

had an impact on my actions in the first less than 100 days. 

The second thing, as you know, is transition assistance is actually led by the Department of Defense and Department of Labor. 
38 

We work with them. So, you know, I would like to say we have reignited—but I do not think it needed that much igniting—engaging 

with them to really work these issues. We are conducting a survey—it is now sitting with OMB, so we can do that—to analyze 

servicemembers who are now veterans who have gone through TAP 

afterwards. We get a very good survey while it goes on, but sometimes we wonder if they do not know what they do not know. We 

want to talk to them afterwards and reflect on now that you have 

had a job and you have begun your life again, how did we do getting you ready. 

So, we are very much in agreement with you that what we think 

about at VA is, you know, you are a member of the military for a 

short period of time, in my case 3 years, but you are a veteran forever. We have a longer relationship with you that we need to think 

about how it is maintained and continued. 

Senator CASSIDY. Thank you very much. I appreciate you all 

looking at this and I look forward to its passage. I urge my colleagues to support it when the time arises. Thank you. 

Chairman ISAKSON. Thank you. 

Senator Hirono? 

HON. MAZIE K. HIRONO, U.S. SENATOR FROM HAWAII 

Senator HIRONO. Thank you, Mr. Chairman. 

I am proud to join my colleagues and the veteran service organizations here today in support of the Blue Water Navy Vietnam Veterans Act. Passage of this bill is needed for veterans in Hawaii, 

like Richard from Kaneohe, who served on the USS Hancock in the 

Gulf of Tonkin from 1972 to 1975. Richard was diagnosed with diabetes and is now on kidney dialysis. Or veterans like Gordon, also 

from Hawaii, who served in the Navy fleet on the USS Chipola 

from 1967 to 1969 and was diagnosed with soft tissue carcinoma. 

Both Richard and Gordon contend that their illnesses are due to 

Agent Orange exposure while serving off the coast of Vietnam. 

These are some of the thousands of Blue Water Navy Vietnam 

veterans who have applied for VA health benefits, but were denied 

because they happened to serve our country at sea rather than on 

land. We would like to correct that wrong. 

One thing I would like to ask you, Dr. Lawrence, is that you said 

that even for these people who did not serve on land, it is not an 

automatic denial of coverage. Is that correct? 

Mr. LAWRENCE. That is correct. 

Senator HIRONO. So, if they are not automatically rejected, what 

would the servicemember have to show to raise the presumption 

that he or she would be covered? 

Mr. LAWRENCE. It is very complicated—you have asked a question that could easily be very, very complicated, but let me try. 

Senator HIRONO. What I am getting to is: how much of a burden 

are we placing on the servicemembers themselves to prove that 

they were indeed exposed to Agent Orange? See, that can be a burden that is way too high for any servicemember, so we may as well 

just automatically deny them. 

Mr. LAWRENCE. Let me make a couple of observations. At VBA 

we have a duty to assist the servicemembers to help them find the 

records and the information they need. Often, when you ask why 
39 

does it take so long for a claim to be processed, it is because we 

are trying to help them find the medical records. So, hopefully, it 

is less of a burden because we assist. But, they are required to 

produce some information which we will try to figure out and if 

they are qualified under, does this seem presumptive or not. 

In addition, we need a medical exam, as Dr. Erickson pointed 

out, to figure out what is the cause of the situation they find themselves in. 

Senator HIRONO. I have talked to a lot of veterans, and it is hard 

enough to show that they do come within the parameters for treatment even without exposure to Agent Orange. I can only imagine 

what that is like for those who claim to have been exposed to Agent 

Orange. So, I think the burden of proof of showing, coming forward 

with that kind of evidence is very high. In fact, it took decades for 

the VA to even cover or to acknowledge that exposure to Agent Orange should be one that would be covered under the VA. It took 

an act of Congress for that to happen. So, it looks as though we 

are going to need to have an act of Congress again. 

Let us say that we do that, and obviously we need to work with 

you to make sure that you have the resources necessary to provide 

the kind of care that this additional group of veterans are going to 

need. You did indicate in your testimony that this would really 

strain your resources and that you would need to hire more people, 

et cetera. Can you tell me what kind of additional resources you 

would need to deal with the claims burden that would be generated 

by the passage of this bill? 

Mr. LAWRENCE. Sure. Based on our estimates that we provided 

in the testimony, it is $500 million over 10 years. 

Senator HIRONO. OK. How many veterans are we talking about? 

Something like 70,000? 

Mr. LAWRENCE. Well, yes, that is an estimate. That is correct. 

Senator HIRONO. OK. So, I think that, you know, in a situation 

like this where the burden is really extremely high for the veterans 

to show that they should indeed be covered, I think we should go 

ahead with covering this. And, I am pretty much in line with our 

former Chair in saying that, you know, we should provide the 

health care that they need. 

I have a question relating to S. 1990 that is also on this agenda, 

Dependency and Indemnity Compensation Improvement Act. I am 

a cosponsor of this bill, and I certainly applaud Senator Tester’s 

work in leading this effort. It has been a long overdue increase of 

approximately $300 a month for DIC recipients, including thousands of beneficiaries in Hawaii. 

Dr. Lawrence, you state in your testimony that increasing the 

amount of DIC benefits payment will help survivors continue to 

live a sustainable life, which I wholeheartedly agree with. Are 

there any other programs under your purview which need a fresh 

look at—changing the formula for calculating payments similar to 

how S. 1990 does for DIC payments? 

Mr. LAWRENCE. None come to mind at this moment, but I would 

like to take that back and perhaps come back and discuss this with 

you. 
40 

Senator HIRONO. Yes, because I think we share the goal of enabling all these survivors to live, as you put it, sustainable lives. I 

would appreciate that information. 

Thank you, Mr. Chairman. 

RESPONSE TO REQUEST ARISING DURING THE HEARING BY HON. MAZIE K. HIRONO

TO PAUL R. LAWRENCE, PH.D., UNDER SECRETARY FOR BENEFITS, VETERANS BENE- FITS ADMINISTRATION, U.S. DEPARTMENT OF VETERANS AFFAIRS

Question. Dr. Lawrence, you state in your testimony that increasing the amount 

of DIC benefits payment will help survivors continue to live a sustainable life, which 

I wholeheartedly agree with. Are there any other programs under your purview 

which need a fresh look at changing the formula for calculating payments similar 

to how S. 1990 does for DIC payments? 

Response. Yes, the VA legislative proposals published in the Fiscal Year 2019 

President’s Budget address identified areas for improvement in how VA calculates 

and provides benefits, including proposals pertaining to: (1) the reissuance of VA 

benefit payments to all victims of fiduciary misuse; and (2) the removal of annual 

income from net worth calculations for pension benefits. 

Chairman ISAKSON. Thank you, Senator Hirono. 

Senator Sullivan? 

HON. DAN SULLIVAN, U.S. SENATOR FROM ALASKA 

Senator SULLIVAN. Thank you, Mr. Chairman. And, Dr. Lawrence and your team, I want to thank you. I know that with Secretary Wilkie on board you guys are going to work hard, but, you 

know, you have got a tough job here, right? These are good bills, 

but there are some issues with them. Your job is to tell us which 

are the good ones, which are the ones you have issues with, how 

you can work with us on them. 

I appreciate what you and your team are doing. It is not easy. 

It is easier to say yes to all these bills. Now I am going to ask you 

to say yes to one of my bills. 

But, in all seriousness, we do appreciate what you are doing. 

I do want to talk about a rather simple bill that I know you have 

looked at, and I want to get your view on it. It is the Medal of 

Honor Surviving Spouses Recognition Act, which is S. 2485. This 

was actually—it is kind of a story you have probably heard a lot 

about from some Senate bills. It was inspired by a constituent of 

mine, a gentleman in Alaska named Dave Glenn, a Vietnam veteran from Wasilla, AK, who served as a paratrooper in the 101st 

Airborne. Every Memorial Day and Veterans Day, he stands for 

hours at attention on a bridge in Alaska named after one of our 

two Medal of Honor winners, a recipient, Army Sergeant First 

Class James Bondsteel, who was a fellow Vietnam vet of his, who 

now rests at Fort Richardson National Cemetery in Alaska. Dave’s 

one-man Honor Guard on the bridge twice a year—he is 73 now— 

pays respect not only to Sergeant First Class Bondsteel, but, importantly, the wife and the daughters he left behind after he died in 

a car accident on that very bridge, which is why it was named after 

him. 

Dave, about a year and a half ago, pitched an idea to me. He 

said, ‘‘Senator, you know this. Families serve in the military as 

well as spouses, even if they are not wearing the uniform. I always 

tell my wife and daughters, you know, they have served as much 

as me or anyone else. Maybe sometimes they have even a tougher 

job.’’ 
41 

So, in that spirit, and that respect from Dave Glenn, my bill is 

simple. It extends the special pensions granted to Medal of Honor 

recipients to the spouses that survive them after they are gone. 

The spouses obviously have sacrificed as well. 

This is a rather small gesture. It is not expensive. I know you 

guys have looked at the dollar amounts. When you are talking to 

VA, there are rounding errors. But, it means a lot to the families 

of these Medal of Honor families. I also think it means a lot to 

Americans. 

Mr. Chairman, I am going to submit for the record an article 

from the Frontiersman in Alaska entitled ‘‘Veteran stands Honor 

Guard alongside the Glenn Highway.’’ It is about Dave Glenn’s 

Honor Guard. He says, ‘‘The fabric of our country is heroes,’’ and, 

‘‘These people’’—Medal of Honor winners—‘‘inspire all of us.’’ 

I would submit that for the record. 

Chairman ISAKSON. Without objection. 

[The article follows:] 
42 

https://www.frontiersman.com/news/veteran·stands·honor-guard·alongside-glenn·highway/article 9234d07e-f602· 

11e5-b28d-cb7f9ce81802.html 

Veteran stands honor guard alongside 

Glenn Highway 

Matt Tunseth 

Mar 29,2016 

Wasilln Dave Gletlf'l stands near the Glenn Higtlny'a SFC .JetnM BonciS'eet Bridge of tiOnof tcrOQ the Knik Rivet on TueSda-y, March 29, 2016. Glenn WIS stlnding hOnol 

guetd eo~ Bond&teel. a Medal ot Honor~~ from IN Mal& v.tK>died 11'1 a tratle ac:ddent 0t1 the td:lge In 1987. [Pholo aedit! Mall Tunsectllf~J 

WASILLA - No, Dave Glenn wasn't guarding the Mat-Su against invaders from Anchorage on Tuesday as he 

stood holding an AR-15 rifle alongside the Knik River bridge across the Glenn Highway on Tuesday morning. 

Instead, the Vietnam veteran's highly visible gesture was intended to honor one of the Mat-Su Valley's most 

heroic figures. 

"We can't honor him enough,"the camouflage-clad Glenn said as cars and trucks sped past the busy bridge that 

bears the name of Medal of Honor recipient SFC James Bondstcel. "This is a national hero." 

On May 24, 1969, Sgt. Bondsteel was credited with saving the lives of several fellow of his fellow soldiers 

dnring an almost unbelievable ac.f of bravery. According to his Medal of Honor citation, Bondsteel was 

wounded by a grenade during the fierce battle in An Loc Province, yet continued to lead the fight during a 

bloody four-hour battle - taking out I 0 enemy bunkers in the process. 
43 

Senator SULLIVAN. So, anyway, that is what the bill does. I certainly agree with Rick Weidman, the executive director for policy 

and government affairs for the Vietnam Veterans of America, when 

"His extraordinary heroism at the risk of his life was in the highest traditions of the military service and reflect 

great credit on him, his unit and the U.S. Anny," reads Bondsteel's Medal of Honor citation. 

Glenn saw combat in Vietnam during his tour in 1965-66, but says his experiences pale in comparison to what 

Bondstecl did in 1969. 

"I don't qualify to carry his lunch box," Glenn said. 

However, Glenn said he can keep Bondsteel's memory alive, and that's why be was out waving at vehicles 

alongside one of the state's busiest highways on Tuesday - Vietnam Veterans Day. 

"The fabric of our country is heroes,'' he said. "These people inspire us." 

Sgt. Bondstecl moved to the Houston area after a military career that included a Bronze Star, two Purple Hearts 

and the Soldier's Medal. 

In 1987, Bondsteel was driving on the bridge across the Knik River when a load of logs fell off a truck and 

struck his car, killing him. He left a wife, Elaine, and two daughters. 

Glenn has been standing guard in honor of Sgt. Bondsteel for the past four years. He said be's crossed the 

bridge over the Knik "thousands of times," and one day while driving the highway found himself suddenly 

struck by inspiration. 

" I'm driving by and this voice says, 'You're supposed to be doing something,'" he recalled during a roadside 

interview Tuesday morning. 

Glenn said he wasn't initially sure what that meant. Then it came to him. 

·• All of the sudden it hit me: Get off your fat duff and get out there and do honor guard for t.his guy," he said. 

Ever since, Glerm bas stood near the sign honoring Sgt. Bondsteel each Memorial Day, Veterans Day and 

Vietnam Veterans Day. He usually stands for four or five hours, or as long as be can bold up in the chilly Knik 

River breeze. 

"The old knees aren 't what they used to be," said the 72-ycar-old "semi-retired" pilot from Wasilla, who served 

as a paratrooper in the I 0 I" Airborne Division. 

In additi.on to bringing light to Bondstcel's story, Glenn said the vigil is a way for him to honor those Vietnam 

vets who weren't as fortunate as he was during their time in the war. 

"I think, 'Good lord, what a lucky kid I was,'" by returning from the war unscathed. be said. "58,000 didn't 

come home." 

As Glenn stood guard Tuesday, an American flag he brought with him flapped in the chilly breeze. Several 

people honked their horns in solidarity with his gesture, which Glenn said he sees as a beartwanning sign of 

respect. 

"This is one of the biggest rewards of being out here is the public wants to participate," he said. "[t's amazing." 

Glenn said he knows some people might be taken aback by the sight of a white-bearded man in camouflage 

holding a rifle while standing alongside the state's busiest highway. 

" I understand that, I have no problem with that," said Glenn, who noted that be keeps the rifle unloaded during 

his honor guard vigils. 

But be thinks when people bear the meaning behind his gesture, they'U understand why be braves the chill and 

endures the strain on his aging knees. Honoring Sgt. Bondsteel, he said, is worth the pain. 

"This is a national hero," be said. 

Contact Frontiersman editor Mall Tunseth at 352-2268 or emai/ news@ti-ontiersman.com 
44 

he called this bill a ‘‘no-brainer’’ in his written testimony. I would 

appreciate your assessment and your team’s assessment as well. 

Then, if I have time, I have a quick question on transition 

assistance. 

Thanks again for the good job you guys are doing. It is not an 

easy job. 

Mr. LAWRENCE. Thank you. We support the bill. 

Senator SULLIVAN. Great. Well, I will leave it at that. [Laughter.] 

No, no follow-up. Thank you. Wow. OK. Good. I am glad. I have 

another question for you. 

Transition assistance, you know, a number of us right now—and 

I think you guys are working with Senators Crapo, Tester, Cassidy, 

myself—we are working on looking at ways to improve that. One 

issue that I have thought might be something—and I know you 

guys are doing studies on it—is, you know, last time I got off active 

duty for a recall was in 2013. I went through the TAP transition, 

and it is all right at the end there. It is all right at the end. But, 

you get hit with a lot of stuff. 

Now, if you are on active day, say a Marine, you have got a 4- 

year tour. You are getting out—usually these young men and 

women, they do it all at the end. Is there any thought about saying, hey, Marine, you are going to get out in 6 months, let us start 

thinking about your career in 6 months or, you know, maybe even 

a year so they can start thinking and strategizing, as opposed to— 

and we know how it works. I was in this position a couple times. 

You just want to get out, right? You are not thinking about transition. You are just saying, ‘‘I am going to go through the classes, do 

all this, and leave.’’ 

But, is there any thought about pushing that process kind of 

deeper into the career of an active-duty military member so they 

are actually strategizing and thinking a little bit more seriously 

than, ‘‘Hey, I know I have got to go through this; I will check the 

box, and get out of here’’? 

Mr. LAWRENCE. The short answer is yes, especially at VA. We 

very much think about that. We worry exactly as you described, 

that it is all at the end, and sometimes things at the end, events 

overcome and people miss it. 

Senator SULLIVAN. Yeah, and you are just not that focused. 

Mr. LAWRENCE. Right. And, as you know, DOD has the lead on 

this; the Department of Labor is involved and we are involved. So, 

these conversations we have with them are collaborative in nature, 

and that is a perspective we bring. They bring different perspectives, so we try real hard to work through that. We have always 

advocated that the sooner we can begin to teach people about the 

benefits they will have as a veteran, the better it will be, especially 

when we think about things we are talking about—home loan ownership, for example, not something you probably think of right 

away, but later you will look back and say, ‘‘This is a very powerful 

benefit.’’ Access to health care, as we have talked about, understanding that, you know, you will under certain circumstances be 

open to health care and the like. 

We are very much in favor of that. We try hard to work with 

DOD and Department of Labor to get that point into the 

conversation. 
45 

Senator SULLIVAN. Great. Well, we want to continue to work with 

you on that, with those and other ideas on the transition 

assistance. 

Mr. LAWRENCE. Thank you very much. 

Senator SULLIVAN. Thank you, Mr. Chairman. 

Chairman ISAKSON. Thank you, Senator Sullivan. 

Senator Tillis? 

STATEMENT OF HON. THOM TILLIS, 

U.S. SENATOR FROM NORTH CAROLINA 

Senator TILLIS. Thank you, Mr. Chair. I will tell my colleague 

Senator Sullivan that, as Chair of the Personnel Subcommittee, 

that is going to be the focus, TAP, the transition assistance program being on VA, not only how much earlier we weave it into the 

life cycle, but recognize some young person transitioning may have 

very different needs than someone that has been in 10 years, 15 

years, 20 years. So, we have got to do a better job of tailoring, we 

have got to do a better job of understanding what sorts of assignments and MOS’s the military personnel had that may make them 

at risk for certain things they may not even know they are at risk 

for. So, there is a lot of work to be done there, and, Mr. Chair, I 

was going to suggest that we possibly even have a subset of the 

Veterans Committee and Personnel Subcommittee get together so 

we are all hearing the same thing at the same time so the two committees can work together. 

Mr. Lawrence, when you were responding to Senator Hirono’s 

questions about the documentation and how you process the documentation and try to take up claims for outside of which you already have a presumption, I was reminded of a constituent request 

that I had about a year and a half ago in my office. We are approaching 20,000 cases in North Carolina. I have been in 3 years, 

31⁄2 years. The majority of them are for veterans. This particular 

one was a veteran who came home with his wife. While she was 

reading the mail, and she said, ‘‘Honey, I did not know you died.’’ 

The VA had sent her, as a survivor, a notice about the paperwork 

she needs to do for what was apparently her living husband right 

next to her. 

So, he called the VA, and the VA told him that there was this 

paperwork and these documents that he would have to submit to 

prove that he was, in fact, alive. He then called our office. I said, 

‘‘Look, it is not our problem to fix your problem.’’ 

Now, I know you are coming in new, and you have got an organization that has got a lot of problems to fix. But, I would tell you 

there may be cases where you are trying to help, but with the volume you have, I am sure there are a lot of cases where people are 

not getting the kind of help they need, and it is very difficult to 

navigate through the VA. So, I wish you well on really trying to 

make those processes work where it is less work for the veteran 

and more work for the Department to get things done. 

He, by the way, is now considered alive again, and he has got 

VA benefits, so that was a happy ending. 

Dr. Erickson, I want to talk with you about the science on the 

Blue Water issue. You may not know—Jerry Ensminger I know is 

on the Hill somewhere, but he was chasing the issue down with 
46 

Camp Lejeune toxic substances before I got here. We had a tug and 

pull with the Department for a while, and to Dr. Shulkin’s credit, 

we made good progress there. 

The way we arrived at that is making sure that we kind of 

matched up competing views on the science to a large extent. I 

think that is a fair way to characterize it. 

So, if I look at the Blue Water Navy, I ask myself: how can we 

get a process going that could be driven largely by science, but in 

the same way that we had to pull people together and try to bridge 

the gap, identify a potential class of people that right now do not 

get the presumption? The main reason—I share everybody’s concerns. I would rather err on the side of the veteran in every case. 

But, one of the concerns that I have right now with the bill as proposed is the new pay-for. The pay-for that was proposed in the past 

was an adjustment to the COLA, kind of a broad base, relatively 

low impact, but it impacted all veterans. Now, the new proposal is 

one that gets right at loans, home loans. It is something that Senator Warren and I worked on. We made some progress on that in 

terms of bad actors for veterans. I am afraid that, one, it actually 

concentrates the cost on a smaller group of veterans, so it becomes 

a higher cost. Depending upon how you get the presumptions, it 

could even be a greater cost. I think we are talking about a spread 

of 25 to 50 basis points, and on certain loans that could be a lot 

of cost borne by certain veterans. 

So, how could we actually accelerate or create a construct similar 

to what we did with Camp Lejeune to come to a good and fair conclusion, but also manage the upside risk and costs along the way? 

Dr. ERICKSON. Senator Tillis, thank you for the question. I do not 

know if you remember me. I was part of the tug and pull, and I 

remember all that well. 

Senator TILLIS. That is why you got a question. [Laughter.] 

Dr. ERICKSON. Thank you. I am sure you are aware but perhaps 

other Members of the Committee are not aware that we relied initially—and you in legislation relied in the Janey Ensminger Act— 

on the National Academy. In fact, those 15 covered conditions came 

from a National Academy report, a 2009 report. Not a perfect report; I got that. But, that was the basis for—the evidentiary basis 

that initially led to legislation. 

Likewise, within the tug and pull with Camp Lejeune, we came 

together with other Federal agencies, in particular, the Department 

of Health and Human Services, ATSDR, looked at a lot of the same 

information together. It was a very profitable exercise for us. It is 

one that, in fact, we are using now for lots of other toxic exposure 

issues. And, in fact, that led to our Secretary at the time then promulgating presumptions for Camp Lejeune veterans. But, again, 

based in evidence; based in evidence. 

Our challenge right now is that the National Academy did not 

help us out. They said, ‘‘We do not know. We do not know. We cannot say that they were exposed. We cannot say that they were not 

exposed.’’ So, we are stuck. We are stuck. And, I think part of our 

concern is what are the second- and third-order effects when we go 

beyond this law, as there might be other groups that will say, 

‘‘Well, you know, our evidence is equally strong or weak, and, why 
47 

don’t you take care of us either through VA regulation promulgation or through legislation?’’ That is the challenge. 

Senator TILLIS. The main thing for me is I want to make sure 

that those where the science leads us to say we absolutely owe it 

to them—and I do not even mind a little gray area, a gray area 

that favors the veteran. But, if you do not figure out how to sustain 

it—what we do here is pass bills, which we forget when we cut or 

change benefits somewhere else later on, because we do not have 

the money to pay for it. I want to make sure that the promises that 

we made we keep, and if we make a promise in this area, it is driven in a way that is sustainable, gives care to those who need it and 

deserve it, but does not put us in a situation where, when we run 

out of money and we are already out of money. I do not know if 

you know about our $21 trillion debt. You have always got to be 

mindful of making sure that you are not making empty promises, 

you are not promising progress in one area at the expense of a risk 

for future funding in the other area. 

I look forward to the VSOs. Sorry I ran over, Mr. Chair. 

Chairman ISAKSON. Thank you, Senator Tillis. We excuse the 

panel and thank the panel for being here. If you wish to stay to 

hear from the VSOs, I hope you will. 

If our VSOs will come forward as quickly as possible, I am going 

to make sure I do not cut you off like I did the last time you were 

here. 

While those testifying are being seated, I am going to ask to 

make a unanimous consent request. I have 20 organizations that 

have submitted written statements for today’s hearing and agenda. 

I ask consent that those statements be made part of the record of 

this hearing. Hearing no objection—is there any? [No response.] 

Hearing no objection, we will enter them in the record. 

[These statements can be found in the Appendix.] 

RESPONSE TO POSTHEARING QUESTIONS SUBMITTED BY HON. JOHN BOOZMAN TO

U.S. DEPARTMENT OF VETERANS AFFAIRS

Question 1. I want to thank the VA for your foresight and leadership on S. 769, 

The Medicare Access to Radiology Care Act of 2017, to require Medicare to recognize 

RAs. The VA has indicated that they are in the process of authorizing Radiology 

Assistants at the VA to align Medicare requirements with state requirements. Will 

you provide a status update for this effort and your sense as to when this process 

will be completed? 

Response. The Department of Veterans Affairs (VA) Office of Human Resources 

and Administration (HRA) is in the process of establishing a new qualification 

standard for the Registered Radiologist Assistant. Currently, the qualification 

standard is in the final stages of concurrence for approval and publication. The 

qualification standard provides that a Registered Radiologist Assistant practices 

under the direction and supervision of a physician. HRA is working toward having 

this qualification standard completed by November 2018. 

RESPONSE TO POSTHEARING QUESTIONS SUBMITTED BY HON. SHERROD BROWN TO

U.S. DEPARTMENT OF VETERANS AFFAIRS

Question 2. I am very happy the Committee will review two different pieces of legislation to address the needs of active duty servicemembers as they transition to civilian life. We need to do everything we can to ensure that they have the information and tools that they need to succeed. Additional days of training to pursue education, technical training, or entrepreneurship will help to set servicemembers up 

for good paying jobs when they reenter civilian life and I was pleased that this 

year’s NDAA included a version of this provision in the final conference report. 
48 

Under Secretary Lawrence, in your testimony, you say we need to do more to communicate with veterans after they transition because rapid identification of risk 

from transition does not present until much later. Are you referring to the VFW’s 

suggestion that TAP programs should be offered to veterans once they have reintegrated in their communities? Are you referring to risk for medical/mental issues, 

unemployment? Walk me through what you mean by that. 

Response. VA agrees with our Veterans Service Organization (VSO) partners that 

consideration must be given to assist transitioning Servicemembers to identify and 

connect with national and community-based resources within their new civilian communities—wherever they choose to live. VSOs are introduced as a support resource 

early in VA’s Transition Assistance Program (TAP) curriculum, and additional references are integrated throughout the curriculum to ensure transitioning Servicemembers are aware of the support and services they can provide. The curriculum 

highlights how VSOs can support the military to civilian transition, including VSO 

support for filing for disability compensation within the pre-discharge program. During the curriculum, Servicemembers have the opportunity to use locator tools to find 

their local VSO. The program also allows time to introduce local VSO representatives in attendance at VA Benefits I & II Briefings. 

However, VA is not referring to offering TAP to Veterans once they have reintegrated into their communities. To that end, VA and its TAP interagency partners are currently developing a Military Life Cycle module that will introduce transitioning Servicemembers to resources located in their civilian communities and inform them on how to connect with those resources. VA will complete development 

of this module by December 2018 and will be ready to pilot in coordination with the 

Department of Defense (DOD) and the military services beginning in January 2019. 

Moreover, with regard to Servicemembers who are at-risk for challenges during 

their transition, VA and its TAP interagency partners recognize the need to be 

available during the entire transition to civilian life. As such, we are working to implement Executive Order 13822, ‘‘Supporting Our Veterans During Their Transition 

from Uniformed Service to Civilian Life,’’ to ensure these at-risk transitioning Servicemembers are identified and receive a warm handover to the support they need. 

However, VA notes that the signs and symptoms associated with these areas of risk 

do not always appear or begin until after transition from military service. The delayed onset of symptoms presents challenges for VA and other agencies, as there 

are times when the Government does not have regular contact with the transitioning Servicemember/Veteran. 

In keeping with our enduring commitment to those who have worn the uniform, 

VA and its Federal partners have developed a Joint Action Plan which, when fully 

implemented by July 2019, will improve our ability to provide a seamless handoff 

to VA and ensure early and consistent contact with Veterans to keep them informed 

of access to peer support, availability of mental health care after separation, and 

eligibility for health care and VA benefits. 

RESPONSE TO POSTHEARING QUESTIONS SUBMITTED BY HON. JOE MANCHIN III TO

U.S. DEPARTMENT OF VETERANS AFFAIRS

In your testimony on S. 1592, VA Financial Accountability Act of 2017, you stated 

an independent review of VA financial processes would be redundant and that the 

VA’s Enrollee Health Care Projection Model (EHCPM) has been extensively reviewed. The two reports you cited, a GAO report and a report by The RAND Corporation are from 2008 and 2011 however, i.e. well before the VA Choice Program 

was enacted. One of the conclusions of the 2008 RAND report was that the EHCPM 

model could yield misleading results, especially in a changing policy and budgetary 

environment. 

Question 3a. Has the EHCPM been updated to model the changing demand for 

healthcare obtained outside of the VA system through Choice and other community 

care initiatives? 

Response. Yes. The 2016 Enrollee Health Care Projection Model (EHCPM) that 

informed the 2019 President’s Budget was enhanced to differentiate health care provided in VA facilities and care purchased in the community. Key enhancements included developing unit costs that reflect what VA is expected to pay for purchased 

care and differentiating reliance and other assumptions in the EHCPM by location 

of care. 

The EHCPM has been enhanced to model changes in Veteran demand for VA 

health care recognizing that greater access to care in the community closer to the 

enrollee’s home is expected to increase enrollee reliance on VA health care and the 

proportion of that care expected to be met outside of the VA system through commu-
49 

nity care. Since enrollees currently rely on VA for less than 40 percent of their 

health care, small changes in reliance can have a significant impact on expenditure 

requirements. 

The total enrollee demand for VA health care projected by the EHCPM can be 

reported separately for care expected to be provided in VA facilities and expected 

to be purchased in the community. However, the proportion of total care that will 

be provided in VA facilities and purchased in the community can vary significantly 

depending upon eligibility criteria, operational guidelines, and resource availability. 

Health care is very dynamic. Further, the EHCPM projections supporting the VA 

budget are developed based on data that are three years removed from the beginning of the budget year (four years for the Advance Appropriation). During this 

time, new policies, legislation, regulations, and external factors, such as economic 

recessions, can occur and change the projected demand for VA health care. If so, 

the EHCPM can be updated to reflect this emerging experience, and the Budget is 

updated to reflect the revised projections. 

Question 3b. Has EHCPM been reviewed, by an independent body, since the VA 

Choice program was enacted? 

Response. The EHCPM has been reviewed extensively by independent stakeholders, including the Office of Management and Budget, Congressional staff, the 

Congressional Budget Office, and the Government Accountability Office (GAO). 

GAO, which reviewed the EHCPM in 2011, is currently reviewing the EHCPM as 

part their review of the VA Community Care Budget (GAO Report 102732). VA is 

providing extensive information on the enhancements to the EHCPM in order to differentiate health care provided in VA facilities and purchased in the community and 

will address any recommendations included in GAO’s final report. 

Question 3c. Given the sweeping reforms that are part of the VA MISSION Act 

doesn’t make sense to have a new, independent review of the VA’s cost projection 

models? 

Response. Please see response to Question 3b. 

Question 4. In your testimony, you state that the Blue Water Navy bill would add 

significantly to the number of benefit claims pending over 125 days and additional 

employees would have to be hired to handle the case load. How many people would 

you need to hire if the bill passed into law? 

Response. The Veterans Benefits Administration (VBA) would require an additional 803 full-time employees (FTE) for 2019 to successfully and timely address any 

new reviews and claims that would be a result of the bill passing into law. 

Question 5. In the introduction of the 2011 Institute of Medicine (IOM) report on 

Blue Water Navy, they say the following in the introduction: ‘‘The Committee was 

surprised and disheartened to find a dearth of information on environmental concentrations of TCDD during the Vietnam War, in spite of large volumes of Agent 

Orange sprayed throughout South Vietnam. Such information is vital to determining possible exposures not only of Navy veterans but also veterans who served 

on the ground and on the land waterways of Vietnam.’’ Can you elaborate on ways 

the Department of Defense and Department of Veterans Affairs have improved service record keeping and transfers of information so that they accurately reflect possible toxic exposures while in service? 

Response. VA defers to DOD for a full description of initiatives and efforts to improve recordkeeping of military exposure events. However, VA and DOD work closely to identify situations where Servicemembers may be at risk. The Deployment 

Health Working Group, comprised of both DOD and VA officials, meets monthly to 

discuss ongoing and emerging environmental issues and oversees development of 

initiatives to improve interagency sharing of vital information. 

The Individual Longitudinal Exposure Record (ILER) is an example of an ongoing 

joint enterprise initiative between DOD and VA. The purpose of this initiative is to 

establish a complete record of every Servicemember’s exposure over the course of his 

or her career. ILER will provide a real-time, long-term exposure record matched to 

health status and matched to a Servicemember to a place, time, location, and event. 

RESPONSE TO POSTHEARING QUESTIONS SUBMITTED BY HON. MAZIE K. HIRONO TO

U.S. DEPARTMENT OF VETERANS AFFAIRS

Question 6. Dr. Lawrence, you state in your testimony that increasing the amount 

of DIC benefits payment will help survivors continue to live a sustainable life, which 

I wholeheartedly agree with. Are there any other programs under your purview 

which need a fresh look at changing the formula for calculating payments similar 

to how S. 1990 does for DIC payments? 
50 

1 Blue Water Navy Vietnam Veterans and Agent Orange Exposure, Institute of Medicine, 

2011, pg 13, https://www.nap.edu/read/13026/chapter/2#13. 

Response. Yes, the VA legislative proposals published in the Fiscal Year 2019 

President’s Budget address identified areas for improvement in how VA calculates 

and provides benefits, including proposals pertaining to: (1) the reissuance of VA 

benefit payments to all victims of fiduciary misuse; and (2) the removal of annual 

income from net worth calculations for pension benefits. 

RESPONSE TO ADDITIONAL POSTHEARING QUESTIONS SUBMITTED BY HON. SHERROD

BROWN TO U.S. DEPARTMENT OF VETERANS AFFAIRS

BLUE WATER NAVY

Mr. Manar’s testimony is very convincing, and so was the Australian study. ‘‘If 

there was dioxin in the water, we would have been exposed to it while swimming. 

Week after week, patrolling up and down the coast, we took in sea water and processed it through our fresh water evaporator system. We know from the Australian 

Navy study, validated by the National Academy of Medicine (formerly the Institute 

of Medicine), that fresh water evaporator systems concentrated toxic material, including dioxin, which was then transmitted to sailors through drinking water.1

As a matter of observation, absent the cleaning and sanitation of the entire fresh 

water evaporator system, it is conceivable that every person who ever served on 

board my ship could have been exposed to dioxin after its first visit to Vietnam. Further, by the time we completed our last deployment to Vietnam in 1972, the evaporator system would have accumulated concentrated dioxin from dozens of visits to 

Vietnam, not simply the final three that I experienced while on board.’’ 

Question 7. Dr. Erickson, to date, why hasn’t VA concluded that the science behind the Australian study, which NAM corroborated, is sufficient? What additional 

science is VA waiting for? 

Response. We thank the Senator for this question and for his careful consideration of the evidence underlying this bill. We recognize that this is a complex exposure issue that is important to our Veterans, and we have been working diligently 

over the years to gain as much understanding as possible and to recommend policies 

that are facts based. The Senator has noted that he finds both the Australian study 

and the Veteran’s testimony to be strong evidence in support of concluding that Blue 

Water Navy Veterans were exposed to Agent Orange and other tactical herbicides 

during the Vietnam War; however, the statements and conclusions made in both of 

these, in terms of the consumption of water distilled aboard ships while at sea, are 

contingent upon the assumption and requirement that tactical herbicides and the 

contaminant Tetrachlorodibenzo-p-dioxin (TCDD) were present in the water. VA’s 

understanding of the science related to that issue, including the policies regarding 

the spray missions, the properties of the herbicides, the environmental fate of the 

herbicide components, and the expected behavior of the components in bodies of 

water off the coast of Vietnam, is that it is unlikely that this was a significant pathway of exposure to tactical herbicides for most Blue Water Navy Veterans. 

AUSTRALIAN STUDY (MULLER, ET AL., 2002)

Researchers in Australia demonstrated it may have been possible to concentrate 

dioxin during the distillation of contaminated water, based on laboratory recreations 

of the major aspects of the distillation systems used aboard most ships during the 

Vietnam War. The theoretical nature of this series of experiments and differences 

in U.S. and Australian Naval policies at the time, however, restrict the extrapolation of these findings in terms of representing the experience of U.S. Navy Veterans who served on the offshore waters of Vietnam. 

The authors attempted to determine this by recreating the major principles of the 

distillation system in a laboratory setting and assessing the potential for the co-distillation of several chemicals. It is important to note that most of the variables in 

the experiments, including the concentrations of chemicals, were not chosen to directly mirror the conditions in the offshore waters of Vietnam but rather to evaluate 

the effects of the physico-chemical properties of water and different types of compounds on distillation in this type of system. Thus, it was not meant to model the 

exposure scenario in Vietnam, but rather, the type of distillation system aboard the 

ships that were used. Based on the findings of the study, the authors concluded that 

‘‘the distillation process of water contaminated with TCDD would result in contamination of potable water. Subsequent ingestion by sailors on board ships (as well as 
51 

soldiers and airmen, who were passengers) is thus a vector for exposure to these 

chemicals. 

While it is unlikely that accurate exposure of the personnel on board ships can 

be estimated, the study findings suggest that the personnel on board ships were exposed to biologically significant quantities of dioxins.’’ This conclusion may be appropriate for the Royal Australian Navy members who served during the war, as their 

protocol at that time was to draw water for drinking from turbid, estuarine type 

waters (or those closer to shore), which would include higher levels of salt, suspended particles, and potentially, contaminants from herbicide spray drift, while reserving the drawing of more pristine waters that were several miles off shore exclusively for their steam engines. The U.S. Navy protocol, however, was starkly different during that conflict. Per § 2.4.2 of the Naval Ships’ Technical Manual 

(NAVMED P–5010–6; Department of the Navy, 1990), which is titled ‘‘Polluted 

Water,’’ states that ‘‘unless determined otherwise, water in harbors, rivers, inlets, 

bays, landlocked waters, and the open sea within 12 miles of the entrance to these 

waterways, shall be considered to be polluted... The desalting of polluted harbor 

water or seawater for human consumption shall be avoided except in emergencies.’’ 

Therefore, U.S. Navy ships that served only on the offshore waters several (at least 

12) miles off the coast of Vietnam were not likely to have drawn contaminated water 

for drinking. 

2011 INSTITUTE OF MEDICINE (IOM) REPORT

At the request of VA, IOM reviewed the evidence on this topic and issued a report 

in 2011. In this comprehensive review, the Committee detailed several factors that 

would affect the potential for TCDD-contaminated water to reach U.S. ships that 

were several miles offshore, including: 

• It has been estimated that 87 percent of the Agent Orange sprayed reached the 

forest canopy, while only 13 percent was lost to drift, and of the 13 percent, an appreciable amount was likely degraded due to the Vietnamese environment. 

• Agent Orange and TCDD would have entered waterways via riverbank spraying 

or runoff; however, a considerable fraction would absorb in organic materials that 

would be deposited in the delta regions or estuaries. 

• Agent Orange and TCDD would have entered marine water from river discharge and spray drift; however, any amount in marine waters would be greatly reduced by the initial dilution in river water and dispersion in air and further dilution 

in coastal waters. 

The Committee also reviewed the Australian study and considered another theoretical model that appeared to support its findings on the potential to concentrate 

TCDD through the distillation process. The Committee concluded that ‘‘it is theoretically possible to concentrate dioxin in distilled water, at least experimentally.’’ 

While the Committee noted that, based on the available science, ‘‘if Agent Orange— 

associated TCDD was present in the marine water that U.S. ships drew for drinking 

water, distilled potable water would be a plausible pathway of exposure,’’ they ultimately concluded that ‘‘without information on the TCDD concentrations in the marine feed water, it is impossible to determine whether Blue Water Navy personnel 

were exposed to Agent Orange—associated TCDD via ingestion, dermal contact, or 

inhalation of potable water.’’ Additionally, regarding the Australian study, the Committee stated: ‘‘If the purpose of this experiment was to demonstrate the plausibility 

of TCDD exposure to sailors via distilled water, then this study is useful; however, 

the application of these findings to actual shipboard distillation systems requires 

knowledge of several factors not addressed in the experiment. The significance of 

this study’s findings for contaminant exposures on Blue Water Navy ships is highly 

uncertain.’’ Therefore, IOM did not corroborate the Australian study in terms of its 

applicability to U.S. Navy Veterans that served during the Vietnam War, but they 

noted that the study findings do support that the concentration of TCDD during distillation aboard ships is theoretically plausible. 

CURRENT VA STUDY THAT MAY PROVIDE ADDITIONAL SCIENTIFIC EVIDENCE ON

BLUE WATER NAVY

VA recently conducted a survey study on the health of Vietnam-era Veterans that 

included an ‘‘over-sampling’’ of Blue Water Navy Veterans as a subpopulation. The 

study will compare the health of this group to that of Vietnam Veterans, Vietnamera Veterans, and the general U.S. population. In the absence of adequate exposure 

data, we hope to gain an understanding of the health of Blue Water Navy Veterans 

and may be able to make some determinations about whether outcomes they are experiencing could be related to exposure to tactical herbicides during their service. 
52 

The results are currently being analyzed and are slated to be published as early as 

2019. 

Question 8. Why has VA denied claims for veterans who were exposed to Agent 

Orange if VA has records of specific ships and the veterans who were on those ships 

within the 12 mile demarcation line? 

Response. Under current laws and regulations, there is not a 12-mile demarcation 

line for determining whether a vessel operated in the inland waterways. 

Background: 

VA, under the law, may only pay compensation based on a presumption of service 

connection for an Agent Orange-related disease if the Veteran was exposed to Agent 

Orange or any other covered herbicide. Under the law, 38 United States Code 

§ 1116, a Veteran is presumed to have been exposed to Agent Orange only if he or 

she ‘‘served in the Republic of Vietnam’’ during the period beginning on January 9, 

1962, and ending on May 7, 1975. 

VA regulations, 38 Code of Federal Regulations § 3.307(a)(6)(iii), defines service in 

the Republic of Vietnam to only include service in the offshore waters if the service 

included duty or visitation in the Republic of Vietnam. VA has further clarified 

‘‘service in the Republic of Vietnam’’ to consist of ‘‘boots on the ground’’ service or 

service in the inland waterways. VA’s interpretation of ‘‘service in Vietnam,’’ to include encompassing inland waterways, but excluding offshore waters has been 

upheld by the courts, to include the United States Court of Appeals for the Federal 

Circuit in its seminal decision in Haas v. Peake, 525 F.3d 1168 (Fed. Cir. 2008). 

VA’s regulatory definition of service in Vietnam excludes service in the offshore 

waters, as there is no evidence that Agent Orange was applied to the waters off the 

shore of Vietnam, nor is VA aware of any valid scientific evidence showing that individuals who served in the offshore waters were subject to the same risk of Agent 

Orange exposure as those who served in the geographic land boundaries of Vietnam. 

Therefore, VA would not necessarily award benefits for a claim for disability compensation due to Agent Orange exposure for a Veteran who had served aboard a 

ship within 12 miles of the Vietnamese coast, as offshore service is not considered 

service in the inland waterways, which meets the statutory and regulatory definition of ‘‘service in Vietnam.’’ Inland waterways include rivers, canals, estuaries, and 

deltas. Deep-water bays and harbors are not inland waterways but are considered 

to be offshore waters of Vietnam because of their deep-water anchorage capabilities 

and open access to the South China Sea. For example, we would consider service 

aboard a swift boat, landing ship, or tank to be service in the inland waterways because those types of vessels operated primarily on Vietnam’s inland waterways. 

Agent Orange exposure would be conceded for any Veteran who served aboard this 

type of Naval vessel. 

We also would concede exposure to Agent Orange if a Veteran who served in a 

ship operating in the offshore waters that temporarily entered an inland waterway. 

Additionally, we concede Agent Orange exposure if the ship docked to a pier or 

shore or was in the offshore waters and delivered personnel or supplies if there is 

evidence that the Veteran went ashore, as this was would be consistent with service 

that ‘‘involved duty or visitation in the Republic of Vietnam.’’ 

Veterans who are not presumed to have been exposed to Agent Orange, including 

those who served in ships in offshore waters that did not enter inland waterways, 

may submit evidence of actual exposure, and VA evaluates such evidence on a caseby-case basis. 

MEDICAL SURGICAL PRIME VENDOR (MSPV) PROGRAM REFORMS

My office has heard that the lack of a comprehensive approach to manage medical 

products throughout the VA system, could lead to an inefficient acquisition strategy 

for the Department. There have been efforts to revamp the MSPV program and I 

would like to know more about what the Department’s next steps will be. 

Question 9. What additional steps could VA take to reorganize the Medical Surgical Prime Vendor (MSPV) Program, and would VA use the Pharmaceutical Prime 

Vendor program as a model? 

Response. VA should continue its efforts on multiple fronts now underway to improve the MSPV program, which are: 

• The Veterans Health Administration (VHA) Healthcare Commodities Program 

Office (HCPO) near-term efforts to improve the MSPV program to increase VA medical centers (VAMC) and clinician access to the medical/surgical supplies required 

to treat patients, and improve flexibility for adding supplies to the list of available 

items, as feasible under legal and regulatory constraints. Simultaneously, we are 

pursuing longer term program goals that focus on leveraging VA’s buying power to 
53 

deliver more consistent, faster distribution services to the facilities, lower costs, and 

increase enterprise spend visibility via the MSPV 2.0 and our Clinically-Driven 

Strategic Sourcing (CDSS) initiative. • The VHA CDSS initiative will improve processes and tools to better involve clinicians in identifying and validating supplies. • The VHA HCPO’s MSPV 2.0 effort is planning new, competitively awarded supply and distribution services contracts for Prime Vendors to improve VAMC with a 

more seamless and compliant, end-to-end supply chain solution focused on lowering 

costs, reducing acquisition wait times, and delivering essential supplies for Veteran 

care. The VHA HCPO has been working closely with the Strategic Acquisition Center, 

Office of Small and Disadvantaged Business Utilization, and Office of General Counsel to ensure facility requirements and requests are pursued within relevant Federal 

Acquisition Regulations and Veterans Administration Acquisition Regulation framework and are compliant with legal statutes, which include the Rule of Two and Vets 

First. • VHA is evaluating parts of the Pharmaceutical Prime Vendor (PPV) program 

for incorporation into the MSPV Program. One of the potential courses of action is 

to utilize the Federal Supply Schedules to make a larger market basket of medical 

surgical products available to all facilities. • PPV program does currently rely on a single Prime Vendor to cover all regions, 

which is not the preferred approach for the VHA MSPV. VHA will propose to have 

more than one MSPV to reduce dependency risk. H.R. 5418, the Veteran Affairs 

Medical-Surgical Purchasing Stabilization Act, would set the expectation to have 

more than one prime vendor for VA medical/surgical supplies. • The mechanism for communicating pharmaceutical prices to PPV may not be 

scalable for the volume of items that are required by the MSPV program. In the 

existing PPV model, the VA/National Acquisition Center (NAC) provides the prices 

electronically to PPV. PPV is only permitted to load prices provided by NAC. In the 

event the contracting office is delayed or unable to provide pricing, item availability 

may be at risk as MSPV would not have the information required to effectively procure the necessary items. Given that one of the key goals of the new MSPV program 

is to increase item availability, the risks associated with the current PPV model 

would run counter to the future intentions of HCPO. 

Question 10. Has VA consulted with other interagency partners such as DOD? 

VA Response: 

• As part of the MSPV 2.0 program, we are analyzing different course of action 

for medical/surgical items—which include VA’s Federal Supply Schedule and Defense Logistics Agency’s (DLA) Distribution and Pricing Agreements (DAPA). Utilizing the DLA DAPA option is a possible solution that DLA has made available to 

VA. 

• VHA views a partnership with DLA as a potential long-term solution given the 

comparable nature of the Department of Defense’s (DOD) medical programs in 

terms of service and scope across hundreds of facilities; DLA’s MSPV program is 

generally regarded as effective and efficient. VHA is including subject matter experts from DLA to assist in the MSPV 2.0 development efforts. DLA experts have 

shared best practices for their MSPV program and highlighted key differences between the two organizations to provide a more comprehensive understanding of the 

advantages and disadvantages of the different supply programs. 

• As VA continues to explore migration to DOD’s Defense Medical Logistics Supply System (DMLSS)/LogiCole solution to replace the legacy Integrated Funds Distribution, Control Point Activity, Accounting and Procurement system, the synergies 

of leveraging the DLA MSPV contract and DAPAs increase. A migration to DMLSS/ 

LogiCole may need to include utilizing the DLA MSPV contracts, to achieve the efficiencies desired from this program. 

Question 11. What steps would VA take to ensure the new program is staffed 

properly with individuals who have both clinical and medical supply chain 

expertise? 

Response. CDSS initiative will be piloted next year to better leverage and integrate clinical, supply chain, and contracting expertise to provide clinicians with the 

medical supplies and equipment required to provide improved patient care for our 

Veterans. CDSS will include comprehensive and extensive coordination with the National Clinical Program Offices, clinicians, and supply chain personnel at both the 

facility and the Veterans Integrated Service Network levels. The strategy will be 

driven by clinician feedback and requests, and the supply catalog will include items 

that are safe, effective, and clinically sourced. Constant communication and transparency with clinicians is essential for the success of CDSS, and every CDSS- 
54 

sourced medical item will leverage the medical expertise of our clinicians in the 

field. 

Current VA Ordering Officer training materials will be updated to reflect lessons 

learned as well as the changes introduced by the MSPV 2.0 (future state) program. 

Question 12. Would the reorganization include a program office to manage the 

new enterprise? 

Response. In June 2018, VA’s Healthcare Commodities Program Office in its reorganization established a Medical/Surgical Future State effort to support the development of the MSPV 2.0 and other future medical/surgical programs. As the future 

MSPV program transitions from development to implementation and sustainment, 

additional reorganization may be required to best support the VAMCs. 

Question 13. Would a reorganization require additional resources, either personnel 

or funding? 

Response. VA is assessing the need for additional resources, in the form of both 

personnel and funding, that may be required to support the MSPV 2.0 program as 

it moves into implementation and sustainment. Additional resources may be required to support a successful implementation, provide contract oversight and administration, and provide general program management support. 

Question 14. Does VA need legislative language to facilitate a program reform? 

Response. VA is reviewing ideas for legislation that could contribute to its efforts 

in these areas. We are glad to discuss potential improvements with the Committee. 

Chairman ISAKSON. Those testifying in panel 2 are as follows: 

Chanin Nuntavong—did I get that right, Chanin? 

Mr. NUNTAVONG. Yes, Senator. 

Chairman ISAKSON. OK. Chanin Nuntavong is Director of Veterans Affairs and Rehabilitation, The American Legion; Gerald 

Manar, former Director, National Veterans Service, Veterans of 

Foreign Wars; Thomas Snee, National Executive Director of the 

Fleet Reserve Association; and Rick Weidman, Executive Director 

for Policy and Government Affairs, Vietnam Veterans of America. 

We welcome all four of you to testify, and we will begin right now 

with Mr. Nuntavong. I am sorry if I am not doing well with the 

name. I apologize. 

STATEMENT OF CHANIN NUNTAVONG, DIRECTOR, NATIONAL 

VETERANS AFFAIRS & REHABILITATION DIVISION, THE 

AMERICAN LEGION 

Mr. NUNTAVONG. Michael Kvintus, a resident of Cambridge, OH, 

deployed twice aboard the USS Buchanan during the Vietnam War. 

Michael was exposed to the chemical known as Agent Orange while 

guarding aircraft, searching boats, providing field naval fire support, and while anchored near Da Nang harbor in August 1966. 

Chairman Isakson, Senator Sanders, and distinguished Members 

of this Committee, on behalf of National Commander Denise 

Rohan, representing 2 million dues-paying members living in every 

State and American territory, it is my duty and honor to present 

The American Legion’s position on the pending legislation being 

discussed here today. 

Michael has been happily married for 55 years, is the father of 

three, and lives with the daily illnesses of exposure to Agent 

Orange. Michael had a heart attack, not one but two stents placed 

in his heart, and quadruple bypass surgery. At the age of 72, he 

currently lives with heart disease, diabetes, neuropathy, and erectile dysfunction. All, he believes, is connected to Agent Orange 

exposure. 
55 

H.R. 299 is a massive step forward in recognizing the men who 

were impacted by Agent Orange. Mr. Chairman, it is time we as 

a Nation give veterans like Michael the benefits they deserve. 

Beyond the benefits for Blue Water Vietnam veterans, all veterans deserve comprehensive health care. The American Legion’s 

System Worth Saving program routinely conducts town hall meetings across the Nation allowing veterans to share their VA experience. We frequently meet with veterans who express concerns 

about VA dental benefit eligibility. A majority of the veterans treated by VA do not qualify for this benefit. Bottom line, dental care 

is health care, and The American Legion supports this legislation. 

In the 1990s, BRAC was created to assess and close military installations no longer paramount to our national defense. An unintended consequence of the closures was Mare Island Cemetery. The 

cemetery is in total disrepair. It fell out of the purview of the U.S. 

Navy and is currently under the control of the city of Vallejo, CA. 

The proposal in S. 2881 is simple, Mr. Chairman: Transfer the 

cemetery that has more than 850 veterans, including 3 Medal of 

Honor recipients, to the VA’s National Cemetery Administration, 

whose mission is to ensure that those who have departed us are 

treated with the respect they deserve. We firmly believe NCA is the 

best authority and only authority to restore Mare Island Cemetery 

to greatness. 

Shifting topics, ensuring servicemembers receive world-class 

training as they transition out of the military has been and always 

will be a priority of The American Legion. The draft bill before you 

would increase the number of DOD TAP employees, collect data for 

studying long-term effectiveness, and establish a governing board 

to help prevent overdoses, suicide, and alcoholism, among other 

provisions. The American Legion is thankful for the ability to review and provide feedback on this proposed bill. 

In short, we support the draft bill but recommend the following 

changes: require commanding officers to attend TAP so they can 

understand what the program offers to their troops; require DOD 

to report data to Congress on troops who have completed TAP, broken down into useful information to enhance the program; and, finally, eliminate the postsecondary education assessment. This program needs significant participation before it can yield helpful 

results. 

In terms of VA staffing, The American Legion, along with Members of this Committee, continues to highlight the shortages of 

more than 30,000 jobs within VHA. Filling these vacancies with 

qualified professionals is a priority for The American Legion, the 

9 million veterans using VA, and future veterans. This legislation 

will allow physicians to complete their education, then immediately 

begin treating veterans in the VA system. The VA Hiring Enhancement Act aligns the hiring practices of VA to those of the private 

sector, ensuring top-quality health care is provided to our veterans. 

We encourage you to support this initiative. 

I conclude by thanking this Committee and you, Chairman Isakson, for holding the confirmation hearing, ensuring the full Senate 

to vote, and giving veterans of our Nation a Secretary of Veterans 

Affairs. The Department was without Senate-confirmed leadership 
56 

1 American Legion Resolution No. 246 (Sept. 2016): Blue Water Navy Vietnam Veterans 

for 124 days. The American Legion stands ready to assist Secretary 

Wilkie in doing what is best for veterans. 

We thank Chairman Isakson and Ranking Member Tester for 

their incredible leadership and for always keeping veterans at the 

core of their mission. It is my privilege to represent The American 

Legion before this Committee. I look forward to answering any 

questions you have. Thank you. 

[The prepared statement of Mr. Nuntavong follows:] 

PREPARED STATEMENT OF CHANIN NUNTAVONG, DIRECTOR, NATIONAL VETERANS

AFFAIRS & REHABILITATION DIVISION, THE AMERICAN LEGION

H.R. 299; S. 3184; H.R. 5418; S. 1596; S. 2881; S. 1952; S. 1990; S. 2485; S. 2748; S. 514; AND

ALL SUBSEQUENTIAL DRAFT BILLS

CHAIRMAN ISAKSON, RANKING MEMBER TESTER, AND DISTINGUISHED MEMBERS OF

THE COMMITTEE; On behalf of National Commander Denise H. Rohan, and the 2 

million members of The American Legion, we thank you for this opportunity to testify regarding The American Legion’s positions on pending legislation. Established 

in 1919, and being the largest veterans service organization in the United States 

with a myriad of programs supporting veterans, we appreciate the Committee focusing on these critical issues that will affect veterans and their families. 

H.R. 299

To amend title 38, United States Code, to clarify presumptions relating to the exposure of certain veterans who served in the vicinity of the Republic of Vietnam, 

and for other purposes. 

Veterans who served on open sea ships off the shore of Vietnam during the Vietnam War are called ‘‘Blue Water Veterans.’’ Currently, Blue Water Veterans must 

have physically set foot on the land of Vietnam or served on its inland waterways 

between January 9, 1962 and May 7, 1975 to be presumed to have been exposed to 

herbicides when claiming service-connection for diseases related to Agent Orange 

exposure. 

Blue Water Veterans who did not set foot in Vietnam or serve aboard ships that 

operated on the inland waterways of Vietnam must show, on a factual basis, that 

they were exposed to herbicides during military service in order to receive disability 

compensation for diseases related to Agent Orange exposure. These claims are decided on a case-by-case basis. 

We are aware the Department of Veteran Affairs (VA) previously asked the National Academy of Sciences’ Institute of Medicine (IOM) to review the medical and 

scientific evidence regarding Blue Water Veterans’ possible exposure to Agent Orange and other herbicides. IOM’s report, ‘‘Blue Water Navy Vietnam Veterans and 

Agent Orange Exposure’’ was released in May 2011. The report concluded that 

‘‘there was not enough information for the IOM to determine whether Blue Water 

Navy personnel were or were not exposed to Agent Orange.’’ 

However, Vietnam veterans who served on the open sea now have health problems commonly associated with herbicide exposure. Just as those who served on 

land were afforded the presumption because it would have placed an impossible burden on them to prove exposure, Congress should understand the injustice of placing 

the same burden on those who served offshore. Clearly, all the toxic wind-blown, 

waterborne, and contamination transfer stemming from aircraft, vehicle, and troop 

transfer makes it impossible to conclude that Agent Orange-dioxin stopped at the 

coastline. 

Through Resolution No. 246: Blue Water Navy Vietnam Veterans, The American 

Legion supports legislation to expand the presumption of Agent Orange exposure to 

any military personnel who served on any vessel during the Vietnam War that came 

within 12 nautical miles of the coastlines of Vietnam.1

The American Legion supports H.R. 299. 
57 

2 Veterans Average Age: https://www.va.gov/VETDATA/docs/SurveysAndStudies/VETPOP.pdf 

3Prevalence of and Trends in Diabetes Among Veterans, United States, 2005–2014: available 

at https://www.ncbi.nlm.nih.gov/pmc/articles/PMC5737977/ 4 Veterans and Alzheimers: Meeting the Crisis Head on: available at https://www. 

usagainstalzheimers.org/sites/default/files/USA2_Veterans_Issue_Brief_April_10_2018.pdf 5The American Legion Resolution No. 377 (2016): Support for Veteran Quality of Life 

6The American Legion Resolution No. 186 (2016): Department of Veterans Affairs Dental 

Care 

DRAFT BILL: VETERANS DENTAL CARE ELIGIBILITY EXPANSION AND

ENHANCEMENT ACT OF 2018

To improve dental care provided to veterans by the Department of Veterans Affairs, 

and for other purposes. 

The American Legion’s System Worth Saving program routinely conducts town 

hall meetings allowing veterans to share their Department of Veteran Affairs (VA) 

healthcare experiences. In addition to hosting town hall meetings, The American Legion frequently receives letters and telephone calls from veterans expressing concerns about VA dental benefit eligibility. Under VA’s current eligibility for dental 

care, the majority of veterans treated by VA do not qualify. Generally, veterans who 

suffer from poor dental hygiene are not eligible for basic dental care through the 

VA. These veterans are often not able to afford the high cost associated with dental 

care, especially veterans who live on a fixed income. 

Further, the average age of a veteran in the United States is currently 58 years 

old; and The American Legion is concerned the demand for dental care will increase 

as the population ages.2 In addition to obvious ailments associated with oral care, 

dental care is a vital aspect of general healthcare. Diabetes 3 and Alzheimer’s,4 con- ditions commonly associated with veterans, have been linked to poor oral health. 

The need to take care of our Nation’s veterans dental needs should be apparent and 

a priority. 

The Veterans Dental Care Eligibility Expansion and Enhancement Act of 2018 is 

a comprehensive plan to provide needed dental care to veterans. This legislation, in 

addition to expanding needed dental services to veterans includes: carrying out pilot 

programs; acquiring new dental facilities; and hiring additional dental healthcare 

providers. 

Section 2 would provide discretionary authority to the Secretary to furnish restorative dental services to a veteran, as well as replace lost appliances and restore 

function loss suffered as a result of services or treatment furnished by the VA. 

Section 3 would require the Secretary to carry out a pilot program to assess the 

feasibility and advisability of furnishing dental services and treatment to all veterans enrolled in the VA healthcare system, even those not currently receiving dental healthcare. 

Section 5 would require the Secretary to carry out a program of education to promote dental health for veterans who are enrolled in VA healthcare system. 

The potential benefits to the veteran community from these expanded services is 

self-evident. The American Legion supports these sections through Resolution No. 

377: Support for Veteran Quality of Life 5 and No. 186: Department of Veterans Affairs Dental Care.6 The American Legion believes veterans should have access to 

timely and quality dental care and will support legislation to provide outpatient 

dental care to veterans. We also support legislation or programs within the VA that 

will enhance, promote, restore, or preserve benefits for veterans and their dependents with timely access to quality VA healthcare and receipt of earned benefits. 

In addition to expanding services, this draft bill is likely to improve the access 

and quality of care received by veterans through sections 4 and 7. These sections 

have the ability to greatly expand access to dental healthcare to veterans. Section 

4 of the act would require the Secretary to construct or lease a VA dental clinic in 

any State that does not have a VA facility offering onsite dental services. Additionally, section 7 provides discretionary authority for the Secretary of VA to carry out 

a demonstration program to train and employ alternative dental healthcare providers in rural areas. These sections would provide dental healthcare where none 

currently exists and provide healthcare professionals that are not currently 

available. 

Similarly increasing flexibility and access for veterans receiving dental care 

through VA, section 6 requires VA to expand the VA Dental Insurance Program 

(VADIP) Electronic Health Record capabilities. Section 6 would establish a mechanism by which private sector dental care providers could forward the VA information on dental care provided to individuals under the pilot program for inclusion in 

the VA’s electronic medical records. Increased access to medical information ultimately translates into better care for veterans. 
58 

7The American Legion Resolution No. 83 (2016): Virtual Lifetime Electronic Record 

8Government Accountability Office: Transitioning Veterans https://www.gao.gov/assets/690/ 

688203.pdf 

Through our Support for Veteran Quality of Life resolution, we support enhancing 

service to veterans by creating services for veterans not currently being provided 

vital health services. The American Legion has also long recommended VA’s electronic medical records be revised to read DOD’s electronic health records. Similarly, 

The American Legion believes ensuring VA has the ability to share electronic health 

records with private sector dental care providers is common sense and should be a 

priority for the VA. The American Legion through Resolution No. 83: Virtual Lifetime Electronic Record, supports any legislation that would allow the electronic 

sharing of medical record information.7

The American Legion supports this Draft Bill. 

S. 3184

To amend title 38, United States Code, to modify the requirements for applications 

for construction of State home facilities to increase the maximum percentage of 

nonveterans allowed to be treated at such facilities, and for other purposes. 

The provisions of this bill fall outside the scope of established resolutions of The 

American Legion. As a large, grassroots organization, The American Legion takes 

positions on legislation based on resolutions passed by the membership or in meetings of the National Executive Committee. With no resolutions addressing the provisions of the legislation, The American Legion is researching the material and working with our membership to determine the course of action which best serves 

veterans. 

The American Legion has no current position on S. 3184. 

DISCUSSION DRAFT BILL: TRANSITION ASSISTANCE PROGRAM

To amend title 10, United States Code, to improve the Transition Assistance Program 

for members of the Armed Forces, and for other purposes. 

The American Legion supports Congress’ continued attention and efforts in ensuring that Federal agencies and their valued partners properly identify and implement necessary changes/improvements to the Transition Assistance Program (TAP). 

We understand that in order for a servicemember to transition seamlessly, and successfully, it requires the collaboration between all agencies including Department of 

Defense (DOD), Department of Labor (DOL), Department of Veteran Affairs (VA), 

etc., along with congressional oversight. The key is to combine the talents, expertise, 

and innovations of Veterans Service Organizations, non-governmental organizations, 

and private sector organizations in bringing solutions forward to champion initiatives with the Federal Government for the purpose of improving opportunities of 

transitioning servicemembers. 

Improving employment opportunities for transitioning servicemembers includes 

introducing both service delivery, business process, and technology innovations in 

support of TAP and credentialing of servicemembers. Further, this includes examining all aspects of TAP and credentialing from re ́sume ́ writing, financial planning, 

goal setting, job search, interviewing, networking, peer-to-peer support, family transition support, higher education, individual career development plans, entrepreneurship, VA benefits, and other elements of holistic support of veterans ‘‘for life’’ and 

transitioning servicemembers. Finally, Congress holding all stakeholders accountable is vital; from garrison commanders and Federal officials to partnering organizations, there must be metrics regarding efficiency and effectiveness in TAP with capable managers implementing policy. The primary objective must always be to provide a seamless transition from military service to the private sector for our Nation’s warfighters leaving the Armed Forces, along with their families. 

Sec. 2. Recodification, consolidation, and improvement of certain transition-related counseling and assistance authorities. 

TAP is now mandated for all servicemembers and optional for their spouses. TAP 

is presently five-days long with optional two-day classes. The Department of Labor 

and Veterans’ Employment and Training Service (DOL-VETS) portion, which is 

three-days long, is responsible for most of the information in TAP. Despite the appearance of TAP being widely accessible there are still some concerns. First, according to the Government Accountability Office report, Transitioning Veterans, less 

than 15 percent of transitioning servicemembers have attended the two-day classes.8

Second, TAP provides a tremendous amount information that at times can be ex-
59 

9The American Legion Resolution No. 70 (2016): Improve Transition Assistance 

10The American Legion Resolution No. 70 (2016): Improve Transition Assistance 11The American Legion Resolution No. 70 (2016): Improve Transition Assistance 

tremely intricate and overwhelming in a stressful time for transitioning servicemembers. 

To help alleviate these two issues, The American Legion first recommends that 

TAP be mandated for servicemembers at different intervals of their careers prior to 

separation or transitioning into the civilian sector along with pre-counseling for 

those servicemembers intending to leave military service. Second, we stress the importance of the continued evaluation and revamping of TAP to ensure transitioning 

servicemembers are up-to-date on new trends in the civilian marketplace. Last, we 

look to lead by example, by offering The American Legion Job Fairs and other related activities with TAP personnel in order for them to promote and publicize these 

activities that may benefit transitioning servicemembers. 

Through American Legion Resolution No. 70: Improve Transition Assistance Program, we recommend that the DOD expand and standardize their existing pre-separation counseling policies to ensure that separating servicemembers receive information regarding Federal and private sector employment opportunities, GI Bill, and vocational rehabilitation and employment programs.9

The American Legion supports Section 2. 

Sec. 3. Personnel matters in connection with Transition Assistance Program. 

Section 3 adds full-time personnel to the TAP program with real world experience 

in making the transition to civilian life. 

The American Legion believes adding full-time personnel, with experience transitioning to the civilian workforce, to the DOD for the purposes of TAP counseling is 

constructive for transitioning servicemembers on their own quest to obtain gainful 

employment. DOD personnel with relevant experience in the civilian workforce will 

provide the necessary information for servicemembers and their spouses to make 

quality decisions on careers, education, and training. TAP is vital to assisting servicemembers in mapping out employment opportunities and benefits through their 

honorable military service. 

Through American Legion Resolution No. 70: Improve Transition Assistance Program, we recommend that the DOD expand and standardize their existing pre-separation counseling policies to ensure that separating servicemembers receive information regarding Federal and private sector employment opportunities, GI Bill, and vocational rehabilitation and employment programs.10

The American Legion supports Section 3. 

Sec. 4. Tracking of participation in Transition Assistance Program and related 

programs. 

Section 4 requires the Secretary of Defense to establish and maintain an electronic tracking system and database applicable across the Armed Forces. 

The American Legion believes an electronic data system and database would be 

useful in determining participation, access, progress, and overall performance of 

TAP. This database may be utilized by Federal agencies to improve, adapt, or 

change the information shared with servicemembers. We believe this section supports The American Legion’s goal for transitioning servicemembers to view TAP as 

a high quality, engaging, and relevant experience, which leads to opportunities in 

the civilian sector. 

Through American Legion Resolution No. 70: Improve Transition Assistance Program, we recommend that the DOD expand and standardize their existing pre-separation counseling policies to ensure that separating servicemembers receive information regarding Federal and private sector employment opportunities, GI Bill, and vocational rehabilitation and employment programs.11

The American Legion supports Section 4. 

Sec. 5. Information on members of the Armed Forces participating in pre-separation counseling and surveys on member experiences with Transition Assistance Program counseling and services and in transition to civilian life. 

Section 5 requires the collection of basic information from transitioning servicemembers. 

The American Legion believes the accumulation of data for transitioning servicemembers is critical in properly evaluating the different needs of this community. 

For example, National Guardsmen and Reservists have unique challenges differing 

from those servicemembers transitioning from active duty. Other variables of transi-
60 

12The American Legion Resolution No. 12 (2018): Accountability and Enhancements of Transition Assistance Program; Outcomes and Delivery for Today’s Digital Transitioning Servicemembers 13The American Legion Resolution No. 12 (2018): Accountability and Enhancements of Transition Assistance Program; Outcomes and Delivery for Today’s Digital Transitioning Servicemembers 14The American Legion Resolution No. 70 (2016): Improve Transition Assistance 

tioning servicemembers include rank, age, marital status, dependents, and time in 

service. 

Additionally, we would implore Congress to require DOD to submit a report of 

servicemembers who have attended TAP, broken down in three areas: 1) those attending TAP counseling under their chosen track; 2) those attending the other two 

optional tracks; and 3) those who have not attended TAP counseling. The American 

Legion supports legislation that requires conducting an independent assessment of 

the effectiveness of TAP. The purpose of this assessment would be to ensure that 

transitioning servicemembers are receiving the right skills and training needed to 

complete a seamless transition from the military to the private sector. The need for 

verifiable outcomes will aid in allocating resources to the appropriate areas of TAP. 

Through American Legion Resolution No. 12: Accountability and Enhancements 

of Transition Assistance Program; Outcomes and Delivery for Today’s Digital 

Transitioning Servicemembers, we urge Congress to mandate Federal agencies to 

conduct a survey and assessment of the efficacy and efficiency of delivering ‘‘for life’’ 

support to veterans and transitioning servicemembers in the digital era; innovations 

responsive to the digital age warrior and digital era employer in the TAP.12

The American Legion supports Section 5 with amendments. 

Sec. 6. E-mailing transition assistance materials to supporters of members of 

the Armed Forces transitioning to civilian life. 

Section 6 requires the DOD to solicit, from each member of the Armed Forces 

transitioning from military life to civilian life, an e-mail address of a supporter of 

the departing member to whom they can send transition assistance materials. 

Transitioning from military life to civilian life can be a stressful time for servicemembers; therefore, it is encouraged that servicemembers have a support system. 

In most cases, servicemembers are encouraged to bring their spouses to TAP; however, this may not always be feasible. The American Legion believes emailing transition assistance materials to servicemembers and their spouses (or caregiver) can 

be the missing link that would assist servicemembers in attaining gainful employment and financial stability. 

Through American Legion Resolution No. 12: Accountability and Enhancements 

of Transition Assistance Program; Outcomes and Delivery for Today’s Digital 

Transitioning Servicemembers, we urge Congress to mandate Federal agencies to 

conduct a survey and assessment of the efficacy and efficiency of delivering ‘‘for life’’ 

support to veterans and transitioning servicemembers in the digital era; innovations 

responsive to the digital age warrior and digital era employer in the TAP.13

The American Legion supports Section 6. 

Sec. 7. Command matters in connection with transition assistance programs. 

Section 7 requires each command climate assessment to include information about 

TAP participation. 

The American Legion believes the importance of the Transition Assistance Program cannot be overstated. Not only is it essential that commands ensure all servicemembers are given the opportunity to attend TAP, but it is also vital that servicemembers are authorized the appropriate time to participate, at minimum, in one 

of the optional tracks in the allotted time specified. In the event that a servicemember is unable to attend TAP due to unforeseen reasons deemed mission critical, 

both the Commander and servicemember would need to submit in writing with justification as to why the servicemember was unable to attend TAP. Further, The 

American Legion, recommends commanding officers be mandated to attend a condensed version of TAP as a requirement to assuming command at least once every 

three years. 

Through American Legion Resolution No. 70: Improve Transition Assistance Program, we recommend that the DOD expand and standardize their existing pre-separation counseling policies to ensure that separating servicemembers receive information regarding Federal and private sector employment opportunities, GI Bill, and vocational rehabilitation and employment programs.14

The American Legion supports Section 7 with amendments. 
61 

15The American Legion Resolution No. 12 (2016): Transition Assistance Program Employment 

Workshops for National Guard and Reserve Members 17The American Legion Resolution No. 70 (2016): Improve Transition Assistance 

Sec. 8. Comptroller General of the United States report on participation in 

transition assistance programs at small and remote military installations. 

Section 8 requires the Comptroller General of the United States to submit a report on the participation in covered transition assistance programs of members of 

the Armed Forces assigned to small military installations and remote military 

installations. 

All transitioning servicemembers should attend TAP without regard to command 

size or remoteness. According to the Transition Assistance Program Lead, there are 

206 installations DOD-wide that conduct TAP.15 The American Legion recommends 

that Commanders ensure that transitioning servicemembers be given temporary 

duty orders to the nearest military installation that offers TAP. 

Through American Legion Resolution No. 81: Transition Assistance Program Employment Workshops for National Guard and Reserve Members, we support legislation that will provide every member of the Armed Forces (including those in the National Guard and Reserves) who are activated for 12 months or longer, an adequate 

amount of time to attend the TAP workshop in entirety, within 90 days of 

separation.16

The American Legion supports Section 8. 

Sec. 9. Education of members of the Armed Forces on career readiness and 

professional development. 

This section requires the DOD to carry out a program to provide education on career readiness and professional development. 

The American Legion believes experience differences between separating servicemembers should be considered during their pre-separation counseling. There are notable differences between a transitioning servicemember who served one enlistment 

in contrast to one who is retiring after 20-plus years of service. Similarly, we recognize servicemembers who are being separated for medical reasons and/or other unexpected reasons may present different issues. Therefore, The American Legion believes pre-separation counseling should begin at the time of their first and subsequent duty stations with follow-on counseling conducted at different intervals of 

military careers. 

Through American Legion Resolution No. 70: Improve Transition Assistance Program, we recommend that the DOD expand and standardize their existing pre-separation counseling policies to ensure that separating servicemembers receive information regarding Federal and private sector employment opportunities, GI Bill, and vocational rehabilitation and employment programs.17

The American Legion supports Section 9. 

Sec. 10. Employment skills training—by amending striking ‘‘The Secretary of 

a military department may’’ and inserting ‘‘The Secretary of Defense 

shall.’’ Expansion of Eligible Participants, such as a spouse of a member 

of the Armed Forces. 

Section 10 states the DOD should now be responsible for ensuring that priority 

service training is provided to ‘‘covered individuals’’ and not just ‘‘eligible members’’ 

which includes spouses. 

In a recent Chamber of Commerce survey over 44% of military spouses reported 

that they are living paycheck to paycheck or struggling financially, with 80% reporting that the employment search process created stress between them and their active duty spouses. The anxiety that this induces in families already struggling with 

the challenges of potential deployments and family responsibilities presents a clear 

threat to military readiness. 

The American Legion supports legislation that will afford spouses the same level 

of job training and employment skills training that would otherwise have be given 

to only eligible members only. Spouses of an active-duty member are considered a 

‘‘dislocated worker’’ and should be afforded the opportunity to receive priority service within the DOL, just as their military spouse. 

Through American Legion Resolution No. 70: Improve Transition Assistance Program, we recommend that the DOD expand and standardize their existing pre-separation counseling policies to ensure that separating servicemembers receive informa-
62 

18The American Legion Resolution No. 70 (2016): Improve Transition Assistance 19 Report on job training, employment skills training, apprenticeships, and internships & 

skillbridge initiatives for members of the Armed Forces who are being separated 20The American Legion Resolution No. 79 (2017): Expanding Department of Veterans Affairs 

Employment Pathways 21https://www.gao.gov/assets/690/688203.pdf 22The American Legion Resolution No. 12 (2018): Accountability and Enhancements of Transition Assistance Program; Outcomes and Delivery for Today’s Digital Transitioning Servicemembers 

tion regarding Federal and private sector employment opportunities, GI Bill, and vocational rehabilitation and employment programs.18

The American Legion supports Section 10. 

Sec. 11. Identification of opportunities for Job training and employment skills 

training for employment with the Department of Veterans Affairs in 

SkillBridge programs of the Department of Defense. 

Section 11 requires the Secretaries of the military departments to identify opportunities where the VA can provide training. 

Since 2014, the DOD’s ‘‘Skillbridge Initiative’’ has authorized transitioning servicemembers to participate in employer-driven job skills training, apprenticeships 

and internships that provide industry-recognized skills needed to move into highdemand jobs and careers. Since its inception, more than 5,500 servicemembers have 

graduated from 135 Skillbridge-authorized programs according to an August 2017 

DOD report to Congress.19 VA has utilized this authority to launch the ‘‘Warrior 

Training Advancement Course (WARTAC),’’ which trains transitioning servicemembers to become a Veterans Service Representatives (VSRs) at the VA. 

The American Legion is encouraged by the success of the WARTAC program. Additionally, The American Legion believes that transitioning servicemembers can 

serve the VA in a myriad of capacities beyond processing veterans’ claims. This section will mandate that the VA learn from the success of this inaugural program, 

and identify further internal employment needs that can be fulfilled utilizing DOD’s 

Skillbridge authority. 

Through American Legion Resolution No. 79: Expanding Department of Veterans 

Affairs Employment Pathways, we support innovative retention practices that provide education and training incentives for VA veteran employees to achieve credentials and licenses to fill critical vacancies.20

The American Legion supports Section 11. 

Sec. 12. Evaluation of transition training and counseling relating to postsecondary education and use of educational assistance from the Department 

of Defense and Department of Veterans Affairs. 

Section 12 would establish standardized assessment criterion for evaluating the 

quality of training and counseling provided through TAP that has a focus on postsecondary education or the use of VA educational assistance programs. 

While The American Legion applauds efforts to increase quality assurance of education training, existing information on TAP education module participation indicates that significant restructuring is needed before proper evaluation can be applied. A 2017 Government Accountability Office study found that only 10.5 percent 

of all transitioning servicemembers receive any additional training on higher education.21 This level of participation suggests the central structure of the two-day ‘Accessing Higher Education’ module has proven inimical to widespread adaptation. 

Before focusing on assessing the quality of the existing TAP education syllabus, The 

American Legion urges that its contents be reorganized to increase participation. 

Through American Legion Resolution No. 12: Accountability and Enhancements 

of Transition Assistance Program; Outcomes and Delivery for Today’s Digital 

Transitioning Servicemembers, we urge Congress to mandate Federal agencies to 

conduct a survey and assessment of the efficacy and efficiency of delivering ‘‘for life’’ 

support to veterans and transitioning servicemembers in the digital era; innovations 

responsive to the digital age warrior and digital era employer in the TAP.22

The American Legion opposes Section 12. 

Sec. 13. Longitudinal Study on changes to Transition Assistance Program of 

Department of Defense. 

Section 13 requires the secretaries of VA, DOL, and DOD along with the Small 

Business Administration Administrator to conduct a five-year study on TAP. 

The American Legion believes the longitudinal study for the several different components would be valuable for the overall performance of TAP. This study would 

identify specific developments or changes in the characteristics of transitioning ser-
63 

23The American Legion Resolution No. 12 (2018): Accountability and Enhancements of Transition Assistance Program; Outcomes and Delivery for Today’s Digital Transitioning Servicemembers 24The American Legion Resolution No. 377 (2016): Support for Veteran Quality of Life 25The American Legion Resolution No. 132 (2016): Request Congress Provide the Department 

of Veterans Affairs Adequate Funding for Medical and Prosthetic Research 

vicemembers. Further, the research should drive the design of TAP, while providing 

confidence in servicemembers as they transition into the civilian workforce. 

Through American Legion Resolution No. 12: Accountability and Enhancements 

of Transition Assistance Program; Outcomes and Delivery for Today’s Digital 

Transitioning Servicemembers, we urge Congress to mandate Federal agencies to 

conduct a survey and assessment of the efficacy and efficiency of delivering ‘‘for life’’ 

support to veterans and transitioning servicemembers in the digital era; innovations 

responsive to the digital age warrior and digital era employer in the TAP.23

The American Legion supports Section 13. 

Sec. 14. Establishment of Governing Board to Support Prevention of Drug 

Overdoses, Death by Suicide, and Alcohol-Related Mortality. 

Section 14 directs VA to establish a governing board to support VA’s efforts to 

prevent suicide. The bill directs the board to exchange information and investigate 

impacts of financial insecurity, homelessness, and substance abuse contribute to 

suicide. 

In 2015, The American Legion supported H.R. 271: The COVER Act, also known 

as the Jason Simcakowski PROMISE Act, which established a commission to examine the evidence-based therapy treatment model used by the Secretary of Veterans 

Affairs for treating mental illnesses of veterans and the potential benefits of incorporating complementary alternative treatments available in non-VA medical 

facilities. 

Through American Legion Resolution No. 377: Support for Veteran Quality of 

Life, The American Legion urges Congress and the VA to enact legislation and programs within the VA that will enhance, promote, restore or preserve benefits for 

veterans and their dependents.24

The American Legion supports Section 14. 

Sec. 15. Review of economic risk factors in suicide prevention. 

Section 15 calls for two reports to be developed within 90 days of this bill becoming law. The first report would include how economic risk factors affect suicide prevention efforts. The second report topic is about the predictive analytics program 

Recovery Engagement and Coordination for Health—Veterans Enhanced Treatment 

(REACHVET) that utilizes economic risk factors in its algorithm to determine 

suicidality. 

Through American Legion Resolution No. 132: Request Congress Provide the Department of Veterans Affairs Adequate Funding for Medical and Prosthetic Research, The American Legion urges Congress and the Administration to encourage 

acceleration in the development and initiation of needed research on conditions that 

significantly affect veterans, as we firmly believe more research should be conducted 

on this very critical topic.25

The American Legion supports Section 15. 

Sec. 16. Grants for provisions of Transition Assistance to members of the 

Armed Forces after separation, retirement, or discharge. 

Section 16 requires DOL, in consultation with VA, to award grants to eligible organizations for TAP that include services like legal aid and financial services. 

The American Legion supports DOL and VA awarding grants to organizations assisting in transition services to servicemembers and veterans. In our daily work 

with veterans, we find many of them having difficulties with writing re ́sume ́s, interview skills and job searches. In addition, servicemembers need help with financial 

literacy and legal assistance. These grants would fill a need as servicemembers determine their next steps and career goals. We understand the value of these programs. In 2018, The American Legion has conducted more than 50 hiring events, 

re ́sume ́, interview workshops, education seminars, and small business development 

workshops. We’ve witnessed the positive impact of these activities on transitioning 

servicemembers and veterans in finding and maintaining suitable employment. 

Through American Legion Resolution No. 70: Improve Transition Assistance Program, we recommend that the DOD expand and standardize their existing pre-separation counseling policies to ensure that separating servicemembers receive informa-
64 

26The American Legion Resolution No. 70 (2016): Improve Transition Assistance 27The American Legion Resolution No. 115 (2016): Department of Veterans Affairs Recruitment and Retention 

tion regarding Federal and private sector employment opportunities, GI Bill, and vocational rehabilitation and employment programs.26

The American Legion supports Section 16. 

The American Legion supports this Draft Bill with the noted amendments and 

improvements. 

DRAFT BILL: VA HIRING ENHANCEMENT ACT

To amend title 38, United States Code, to provide for the non-applicability of nonDepartment of Veterans Affairs covenants not to compete to the appointment of 

physicians in the Veterans Health Administration, and for other purposes. 

The American Legion has long expressed concern about staffing shortages at Department of Veteran Affairs (VA) and the Veterans Health Administration (VHA) 

medical facilities to include physicians and medical specialist staffing. 

The VA Hiring Enhancement Act will help address the shortcomings in recruitment and retention of highly qualified physicians. The bill allows VA to make binding job offers up to two years prior to completion of medical residency, eliminating 

much of the bureaucratic red tape that slows the hiring of newly recruited individuals. This legislation allows physicians to complete their education then immediately begin treating veterans. By allowing VA to make binding offers, veterans 

will receive treatment by qualified physicians that have completed their medical 

residency. This bill aligns the hiring practices of VA to those of the private sector 

ensuring top quality healthcare is provided to our veterans. 

Further, this common-sense bill also releases physicians from ‘‘non-compete agreements’’ for the purpose of serving in the VHA. The American Legion believes enforcing non-compete agreements to VHA hires is overbroad and should be unenforceable 

under public policy. Traditional reasoning behind non-compete agreements is to bar 

competitive advantages or protect sensitive information, both of which simply do not 

exist in this context. 

Through American Legion Resolution No. 115, Department of Veterans Affairs Recruitment and Retention, we support legislation addressing the recruitment and retention challenges of the VA.27

The American Legion supports this Draft Bill. 

H.R. 5418

To direct the Secretary of Veterans Affairs to carry out the Medical Surgical Prime 

Vendor program using multiple prime vendors. 

In terms of contracting, private sector hospitals use multiple Group Purchasing 

Organizations (GPOs) who bid down the price of manufactured medical equipment. 

This practice forces the GPOs to compete among themselves, yielding the lowest 

possible prices, which benefits hospitals and the general market place. In summary, 

competition drives down prices. 

Utilizing Medical Surgical Prime Vendor (MSPV) Gen2, VA has proposed using 

only one large single vendor as opposed to the current model of using multiple vendors. When purchasing from only one vendor, prices may be inflated, simply because 

of the lack of competition. Ensuring there is competition, the VA, and the government as a whole, typically receives better pricing, which is ultimately a benefit to 

the U.S. taxpayer. 

The American Legion understands the simplification of utilizing only one vendor; 

however, this practice does not yield the best result for the veteran, agency, or the 

Federal Government. Using a singular vendor may be easier, but this procurement 

shortcut undermines the competitive system, and can result in VA overpaying for 

equipment, or not being able to obtain quality materials necessary to supply the 

largest medical network that treats veterans. 

In the current model that VA is employing, Service Disabled Veteran Owned 

Small Businesses (SDVOSBs), works with prime vendors, which not only assist and 

encourages veterans to work in this realm, but also allows for competition and to 

drives down costs. SDVOSBs add value to the procurement process by providing last 

mile delivery, customer care, and maintenance services for prime vendors. 

In short, The American Legion opposes the VA switching to a system that allows 

them to simply use one vendor, and urges Congress to force VA to allow for competitive bidding. 
65 

28The American Legion Resolution No. 154: Support Reasonable Set-Aside of Federal Procurements and Contracts for Businesses Owned and Operated by Veterans 29The American Legion Resolution No. 181 (2016): National Cemetery Administration 30 National Funeral Directors Association: Statistics http://www.nfda.org/news/statistics 31 National Funeral Directors Association: Statistics http://www.nfda.org/news/statistics 32The American Legion Resolution No. 181 (2016): National Cemetery Administration 33The American Legion Resolution No. 377 (2016): Support for Veteran Quality of Life 

Through American Legion Resolution No. 154, Support Reasonable Set-Aside of 

Federal Procurements and Contracts for Businesses Owned and Operated by Veterans, we support reasonable set-asides of Federal procurements and contracts for 

businesses owned and operated by veterans. Allowing the VA to essentially encourage a monopoly on medical supplies and equipment is not only wrong, but it could 

also decrease SDVOSB participation, potentially harming the quality care that veterans receive at VA, all while overspending taxpayer funding.28

The American Legion supports H.R. 5418. 

S. 1596

To amend title 38, United States Code, to increase certain funeral benefits for veterans, and for other purposes. 

The American Legion believes all veterans who have honorably served our Nation 

should be provided adequate funeral benefits and that those benefits should be indexed for inflation. It is our Nation’s responsibility to ensure the families and loved 

ones of our veterans are financially supported in their time of mourning. Further, 

our membership has, by resolution, committed to support increases to burial allowances for veterans who have died as a result of service-connected conditions and 

that those benefits be tied to the Consumer Pricing Index.29

According to the National Funeral Directors Association, the national median cost 

of a funeral in 2017 was $8,508.30 Over the past decade, the median cost of an adult 

funeral in the United States has increased 28.6 percent and Department of Veterans 

Affairs (VA) benefits have not kept up with the pace of inflation.31 For instance, in 

1973, the benefit for a veteran with no next-of-kin and a non-service-connected 

death would have been 22 percent of the national average, versus the 2 percent it 

covers today. 

Currently, VA burial benefit provides: $300 for non-service-connected deaths and 

for veterans who have passed without a next-of-kin; $749 if a veteran passes away 

in a VA facility, and; $2,000 if a veteran passes away from a service-connected disability. The Burial Rights for America’s Veterans’ Efforts (BRAVE) Act would update the current funeral and burial benefit system to ensure all non-service-connected deaths are treated equally, regardless of where the veteran passes away. Veterans with no next-of-kin that pass away in a VA facility are currently afforded 

greater funds to cover the costs of their funerals and burials than veterans who pass 

away in a private home or other facilities. 

The BRAVE Act will increase the $300 for non-service-connected deaths to $749 

to equal the benefit received if a veteran passes away in a VA facility. The BRAVE 

Act additionally indexes for inflation both the non-service and service-connected 

passing funeral benefits, thereby eliminating the need for Congress to make further 

readjustments. The American Legion supports these provisions recognizing existing 

non-service-connected and service-connected burial allowances benefits have been 

significantly eroded by inflation as they now only cover a small fraction of the actual 

cost of a burial. 

Additionally, The American Legion urges The BRAVE Act be amended to reflect 

the resolution passed by our membership, consisting solely of wartime veterans, to 

increase the burial allowance for service-connected causes from the current $2,000 

amount to $4,000. This will enhance the quality of life for veterans’ survivors to increase the value of these benefits, especially during their greatest hour of need. 

Through American Legion Resolutions No. 181: National Cemetery Administration32 and No. 377: Support for Veteran Quality of Life, 33 we support legislation 

increasing burial allowances and programs within the VA that will enhance, promote, restore or preserve benefits for veterans and their dependents. 

The American Legion supports S. 1596 with the noted amendments and 

improvements. 
66 

34The American Legion Resolution No. 181 (2016): National Cemetery Administration 

S. 2881

To direct the Secretary of Veterans Affairs to seek to enter into an agreement with 

the city of Vallejo, California, for the transfer of Mare Island Naval Cemetery 

in Vallejo, California, and for other purposes. 

The American Legion’s 100-year history is integrally intertwined with endeavors 

to preserve the legacy of this Nation’s servicemembers. With the creation of the 

Graves Registration and Memorial Affairs Committee in 1962 to the current National Cemetery Committee, The American Legion has maintained professional staff 

dedicated to formulate and recommend to our National Executive Committee, 

through the Veterans Affairs & Rehabilitation Commission, polices, plans and programs as they relate to the Department of Veterans Affairs (VA) national cemeteries, and the interment of veterans, servicemembers, and their dependents. The 

American Legion through its National Cemetery Committee believes that all veterans and their eligible dependents are entitled a final resting place to commemorate their service to the country to include perpetual care of the gravesite. 

Mare Island Naval Cemetery, the oldest military cemetery on the West Coast, was 

deeded to the city of Vallejo, California, under Base Realignment and Closure 

(BRAC) in 1996. Following BRAC, there was no mechanism to handle the financial 

responsibility for these hallowed grounds. Since then, the city of Vallejo has struggled financially and has not been able to provide for the maintenance and upkeep 

of the cemetery. Due to the lack of maintenance many of the headstones are broken, 

perimeter fences have collapsed, and the vegetation is overgrown. More than 800 

military veterans who served our country, including three Medal of Honor recipients 

eternally rest in the cemetery. Now the lack of upkeep is presenting problems for 

proud veterans. 

S. 2881, directs the Secretary of Veterans Affairs to seek out an agreement with 

the city of Vallejo, under which the city would transfer control of the Mare Island 

Naval Cemetery to the VA. The cemetery would specifically be placed under the purview of the National Cemetery Administration (NCA). The VA would pay no fee to 

acquire the land, but would assume the obligation of maintaining the cemetery in 

the future. The American Legion has full confidence that the NCA with its proven 

track record of maintaining over 135 cemeteries nationwide, will bring dignity and 

respect to the veterans buried at Mare Island Naval Cemetery. NCA’s mission is 

simple: to honor veterans and their families with final resting places in national 

shrines and with lasting tributes that commemorate their services and sacrifice to 

our Nation. 

Through American Legion Resolution No. 181, National Cemetery Administration, 

we support the establishment of additional national and state veterans cemeteries 

and columbaria wherever a need for them is apparent.34

The American Legion supports S. 2881. 

S. 1952

To improve oversight and accountability of the financial processes of the Department 

of Veterans Affairs, and for other purposes. 

The provisions of this bill fall outside the scope of established resolutions of The 

American Legion. As a large, grassroots organization, The American Legion takes 

positions on legislation based on resolutions passed by the membership or in meetings of the National Executive Committee. With no resolutions addressing the provisions of the legislation, The American Legion is researching the material and working with our membership to determine the course of action which best serves 

veterans. 

The American Legion has no current position on S. 1952. 

S. 1990

To amend title 38, United States Code, to increase amounts payable by the Department of Veterans Affairs for dependency and indemnity compensation, to modify 

the requirements for dependency and indemnity compensation for survivors of 

certain veterans rated totally disabled at the time of death, and for other 

purposes. 

The Department of Veterans Affairs (VA) Death and Indemnity Compensation 

(DIC) Benefit supports surviving family members of servicemembers who died in the 

line of duty, Gold Star families, and survivors of disabled veterans who died from 

a service-connected condition. DIC is paid to the widows and widowers of service- 
67 

35The American Legion Resolution No. 255 (2016): Reducing Eligibility for Dependency Indemnity Compensation (DIC) Payments for 100% Disabled Veterans from 10 Years to 5 Years 

connected disabled veterans who die as a result of their service-related condition or 

who at the time of death were rated 100% service-connected disabled for at least 

10 years. Currently, survivors are denied any benefit if a veteran passes away before the arbitrary 10-year threshold. 

Unfortunately and unfairly, many veterans do not reach the 100% level until they 

are much older because their condition has worsened with time. They often pass 

away before they have received their 100% rating for the required length of time. 

In many of these instances the spouse has been the primary caregiver and companion for these disabled veterans throughout their lifetime and the VA compensation has been their primary means of support. Consequently, the surviving spouse 

can no longer count on VA benefits for assistance due to a 100% rating for less than 

10 years. This causes a dramatic change in the quality of life of the surviving 

spouse. 

This detriment to their quality of life is something members of The American Legion recognized when we passed Resolution No. 255: Reducing Eligibility for Dependency Indemnity Compensation (DIC) Payments for 100% Disabled Veterans 

from 10 Years to 5 Years.35 Through this resolution, we commit to sponsor and support legislation to reduce the number of years a veteran must be rated 100% from 

10 years to 5 years for eligibility of DIC payments. Therefore, we support legislation 

reducing the eligibility requirement from 10 to 5 years, but OPPOSE the bill’s prorated reduction of DIC benefits if the veteran was rated 100% service-connected for 

a period less than 10 years. The American Legion would support a modified bill that 

reduces the eligibility requirements from 10 to 5 years, with NO reduction of benefits if the 5-year requirement is met. 

The American Legion supports S. 1990 with noted amendments and improvements. 

S. 2485

To amend title 38, United States Code, to provide payment of Medal of Honor special 

pension under such title to the surviving spouse of a deceased Medal of Honor 

recipient, and for other purposes. 

The provisions of this bill fall outside the scope of established resolutions of The 

American Legion. As a large, grassroots organization, The American Legion takes 

positions on legislation based on resolutions passed by the membership or in meetings of the National Executive Committee. With no resolutions addressing the provisions of the legislation, The American Legion is researching the material and working with our membership to determine the course of action which best serves 

veterans. 

The American Legion has no current position on S. 2485. 

S. 2748

To amend title 10, United States Code, to require members of the Armed Forces to 

receive additional training under the Transition Assistance Program, and for 

other purposes. 

The Better Access to Technical Training, Learning, and Entrepreneurship Act 

(BATTLE Act) seeks to ensure that servicemembers who leave the military receive 

the specific training they need to successfully transition to civilian life, whether they 

choose to pursue higher education, a career in a technical field, or entrepreneurship. 

An average of 200,000 servicemembers transition into the private sector annually. 

The American Legion’s National Veterans Employment and Education Division’s 

mission is to assist with the reintegration of all veterans returning to civilian life 

after service in the Armed Forces, to include when necessary, initiating actions concerning all matters affecting the economic well-being of veterans. We understand 

the value of additional training because through our programs we conduct hiring 

events, re ́sume ́ workshops, interview workshops, education seminars, and small 

business development workshops. Additional training helps veterans find jobs. 

Under current law, the Department of Defense (DOD) is required to ensure that 

eligible departing servicemembers participate in the Transition Assistance Program 

(TAP). In response to this statutory requirement, DOD has published regulations 

and issued instructions that require eligible servicemembers to complete TAP and 

require commanding officers to make certain that servicemembers complete TAP. 

Beyond the mandatory curriculum, departing servicemembers have the option to 

participate in a specialized two-day workshop in one of the following areas: higher 

education, conducted by DOD; technical and skills training, conducted by the De-
68 

36Transitioning Veterans: DOD Needs to Improve Performance Reporting and Monitoring for 

the Transition Assistance Program GAO–18–23: Published: Nov 8, 2017. Publicly Released: Nov 

8, 2017. Available at https://www.gao.gov/products/GAO–18–23 37The American Legion Resolution No. 70 (2016): Improve Transition Assistance 38The American Legion Resolution No. 83 (2016): Virtual Lifetime Electronic Record 

partment of Veterans Affairs; or, entrepreneurship, conducted by the Small Business Administration. 

While the core curriculum is mandatory (five days) for all servicemembers, the 

two-day workshops are less emphasized and therefore, sparsely attended. In a recent Government Accountability Office report, it was noted that less than 15 percent 

of transitioning servicemembers attend the two-day optional track for various reasons.36 This information can be vital for a seamless transition for a servicemember 

separating or retiring from the military. Therefore, The American Legion believes 

DOD’s TAP should require servicemembers to choose one of the specific career-oriented tracks that best suit their post-service plans and require servicemembers take 

part in one-on-one counseling a year prior to separation to evaluate which transition 

pathway suits them best. 

Through American Legion Resolution No. 70: Improve Transition Assistance Program, we recommend that the DOD expand and standardize their existing pre-separation counseling policies to ensure that separating servicemembers receive information regarding Federal and private sector employment opportunities, GI Bill, and vocational rehabilitation and employment programs.37

The American Legion supports S. 2748. 

DRAFT BILL: SUICIDE PREVENTION

To require the Secretary of Veterans Affairs to establish a program to award grants 

to persons to provide and coordinate the provision of suicide prevention services 

for veterans transitioning from service in the Armed Forces who are at risk of 

suicide and for their families, and for other purposes. 

The provisions of this bill fall outside the scope of established resolutions of The 

American Legion. As a large, grassroots organization, The American Legion takes 

positions on legislation based on resolutions passed by the membership or in meetings of the National Executive Committee. With no resolutions addressing the provisions of the legislation, The American Legion is researching the material and working with our membership to determine the course of action which best serves 

veterans. 

The American Legion has no current position on this Draft Bill. 

DRAFT BILL: MODERNIZATION OF MEDICAL RECORDS ACCESS FOR VETERANS ACT

To direct the Secretary of Veterans Affairs to carry out a pilot program establishing 

a secure, patient-centered, and portable medical records system that would allow 

veterans to have access to their personal health information. 

The American Legion, through Resolution No. 83: Virtual Lifetime Electronic 

Record, has long endorsed and supported the Department of Veterans Affairs (VA) 

in creating a Lifetime Electronic Health Records (EHR) system.38 Additionally, The 

American Legion has encouraged both the Department of Defense (DOD) and the 

VA to either use the same EHR system, or, at the very least, systems that were 

interoperable. 

In 2009, The American Legion was pleased when the Obama administration announced that the DOD and the VA would finally create a path to integrate the flow 

of patients’ information between DOD’s Armed Forces Health Longitudinal Technology Application (AHLTA) and VA’s Veterans Information System and Technology 

Architecture (VistA) EHR platforms. 

In 2015, DOD announced that Cerner was awarded a $4.3 billion, 10-year contract 

to overhaul the Pentagon’s electronic health records for millions of active military 

members and retirees. However, around the same time, VA announced it would 

maintain and modernize VistA. 

On June 6, 2017, VA Secretary David Shulkin announced that the VA would 

adopt the same Cerner EHR system as the DOD during a news briefing at VA’s 

headquarters in Washington, D.C. 

On May 18, 2018, Acting VA secretary Robert Wilkie announced that VA signed 

a 10-year contract with Cerner. 

This information sharing system will set the standard for record transferability 

and standardization in American medicine. This new national standard will increase 

patient access, decrease wait times, and enhance good medicine for all Americans, 
69 

39What is MeRT: https://www.braintreatmentcenter.com/mert 40The American Legion Resolution No. 377 (2016): Support for Veteran Quality of Life 

not just veterans. Congress should refrain from advancing any recommendation or 

legislation that does not directly support implementation of the VA EHR modernization effort. 

The American Legion opposes this Draft Bill. 

S. 514

To direct the Secretary of Veterans Affairs to carry out a pilot program to provide 

access to magnetic EEG/EKG-guided resonance therapy to veterans. 

In the wake of serious concerns about over prescription of medications by Department of Veteran Affairs (VA) physicians, The American Legion believes that VA can 

do more to ensure veterans and servicemembers have the most dependable and precise treatment available to alleviate their combat-related illnesses and injuries with 

the least amount of negative side effects. 

We have previously testified on the Veterans Health Administration (VHA) implementation of a pilot program at approximately 23 VA medical centers across the 

country using Electromagnetic Therapy to treat veterans with depression. VHA is 

using Repetitive Transcranial Magnetic Stimulation (RTMS) therapy, which involves up to 30 sessions over a six-week period. Recently we learned that VHA’s Repetitive Transcranial Magnetic Stimulation pilot program fell short in VA trials. The 

American Legion was hopeful the pilot program would conclude that this non-pharmaceutical noninvasive therapy would prove successful and provide VA with another tool to help deal with depression and Post Traumatic Stress Disorder (PTSD). 

The American Legion has long advocated for complementary and alternative 

medicines (CAM) to be further explored by VA and applauds this pilot. The American Legion’s PTSD/TBI (Traumatic Brain Injury) Committee has reviewed several 

promising CAM treatments that include using electroencephalogram (EEG) technology to help better determine the efficacy of certain medications on patients with 

correlating quantitative EEG neuroethics. We believe the EEG/EKG (electrocardiogram) pilot program will provide VA with additional information to determine 

whether veterans can benefit from this therapy. 

The American Legion has reservations due to VA’s March 29, 2017 testimony before the House of Representatives Subcommittee on Health. During that testimony 

VA stated there is no medical device using MeRT technology that has been cleared 

or approved by the Food and Drug Administration (FDA) for the uses described in 

this legislation.39 Providing non-approved FDA treatment to our Nation veterans is 

still a concern of The American Legion. With the assurance that the EEG/EKG pilot 

program meets FDA approval, The American Legion supports S. 514 and companion 

legislation in the House of Representatives, H.R. 1162. 

Through American Legion Resolution No. 377: Support for Veteran Quality of 

Life, we support legislation and programs within the VA that will enhance, promote, 

restore or preserve benefits for veterans and their dependents.40

The American Legion supports S. 514 with amendments as noted above. 

CONCLUSION

The American Legion thanks this Committee for the opportunity to elucidate the 

position of the 2 million veteran members of this organization. For additional information regarding this testimony, please contact the Assistant Director of the Legislative Division, Mr. Larry Lohmann Esq., at The American Legion’s Legislative 

Division. 

Chairman Isakson. Thank you for your testimony. 

Mr. Manar. 

STATEMENT OF GERALD T. MANAR, BLUE WATER NAVY VETERAN, FORMER DIRECTOR, NATIONAL VETERANS SERVICE, 

VETERANS OF FOREIGN WARS OF THE UNITED STATES 

Mr. MANAR. Chairman Isakson, Senator Sanders, Members of 

the Committee, on behalf of the men and women of the Veterans 

of Foreign Wars and its Auxiliary, thank you for the opportunity 

to testify today. 
70 

We talk in support of the Blue Water Navy Vietnam Veterans 

Act of 2017. I am a veteran of the Navy who served on a ship 

which participated in 11 campaigns during the Vietnam War. From 

1964 through 1972, the USS Whitfield County (LST 1169) was sent 

to Vietnam at least 31 times. During those deployments it landed 

Marines and army units in Vietnam. It patrolled endless days off 

the coast, supported riverine patrol boats on the rivers of Vietnam, 

and went up the river to Saigon. 

I served aboard from July 1971 until she was decommissioned in 

March 1973. During that time our ship went to Vietnam three 

times. 

During the Vietnam War, many hundreds of U.S. Navy ships 

spent weeks or longer off the coast, many of them not just once or 

twice, but repeatedly. 

On my first cruise to Vietnam in 1971, we patrolled up and down 

the coast. We were on the lookout for small boats trying to infiltrate supplies and personnel into South Vietnam—north and south, 

day after day, within sight of the shoreline. We were a floating 

warehouse, carrying hundreds of tons of supplies on our tank deck. 

We carried extra ammunition for patrol gunboats and other smaller 

ships which might need resupply. Whenever we went to Vietnam, 

we carried extra fuel for ships and JP–5 for helicopters. 

We anchored off the coast several times to conduct shore bombardment with our 3-inch/50 guns. We spent Christmas Day in 

1971 taking on supplies from a stores ship, then transferred some 

of those supplies and fuel to two patrol gunboats and a mine 

sweeper. We anchored off the coast 1 day, lowered the captain’s gig 

into the water, and went swimming. We followed that with a barbecue on the main deck. We did this all within sight of the beaches 

of Vietnam. 

I mention these events as an illustration of the kinds of activities 

we performed close to the shore of Vietnam. If there was dioxin in 

the water, we would have been exposed to it while swimming. 

Week after week, patrolling up and down the coast, we took in sea 

water and processed it through our fresh water evaporator system. 

We know from the Australian Navy study, validated by the National Academy of Medicine, that fresh water evaporator systems 

concentrated toxic material, including dioxin, which was then 

transmitted to sailors through drinking water. 

Absent the cleaning and sanitation of the entire fresh water 

evaporator system, it is conceivable that every person who ever 

served on board my ship could have been exposed to dioxin after 

its first visit to Vietnam. Further, by the time we completed our 

last deployment to Vietnam in 1972, the evaporator system would 

have accumulated concentrated dioxin from dozens of visits to Vietnam, not simply the final three that I experienced while on board. 

From 2015 through September 2017, I was a member of the 

Steering Committee for the Vietnam Era Health Retrospective Observational Study, abbreviated VE-HEROeS. The aim of the study 

was, in part, to obtain self-reported data on the health of Blue 

Water Navy veterans. Instead of the expected 200 respondents, a 

total of nearly 1,000 Blue Water Navy veterans answered the questionnaire. The raw data is currently under analysis and adjustment 
71 

to assure accurate comparisons between other Vietnam and Vietnam era veterans. 

While the results of this study will be published over the next 

few years, there is more than sufficient data, in our view, to show 

that Blue Water Navy veterans suffer from a higher incidence of 

cancers, hypertension, and ischemic heart disease than other populations of similar size and similar age. 

It has been 43 years since the war ended in 1975, and even the 

youngest of Blue Water Navy veterans are over 60 years old. Many 

thousands suffer from the same disabilities as do veterans who 

served in-country. Rather than continue studying the health of 

Blue Water Navy veterans for another 10 years while those veterans sicken and die from diseases related to exposure to herbicides, Congress must grant Agent Orange presumptions to the 

thousands of veterans who served their country off the shores of 

Vietnam. 

In addition, the VFW supports expansion of benefits to Korean 

DMZ veterans who suffer from diseases directly linked to exposure 

to herbicides without forcing them to prove individual exposure. 

We also support the expansion of benefits for children of Thailand veterans who were born with spina bifida. 

Finally, we believe the elimination of the distinction between the 

National Guard, Reservists, and active-duty servicemembers in requirements to pay certain home loan fees is an appropriate recognition of their service to our country. 

This concludes my testimony. I will be happy to answer any 

questions you may have for me. 

[The prepared statement of Mr. Manar follows:] 

PREPARED STATEMENT OF GERALD T. MANAR, BLUE WATER NAVY VETERAN, FORMER

DIRECTOR, NATIONAL VETERANS SERVICE, VETERANS OF FOREIGN WARS OF THE

UNITED STATES

CHAIRMAN ISAKSON, RANKING MEMBER TESTER, AND MEMBERS OF THE COMMITTEE, On behalf of the men and women of the Veterans of Foreign Wars of the 

United States (VFW) and its Auxiliary, thank you for the opportunity to offer our 

views on legislation pending before the committee. 

H.R. 299, BLUE WATER NAVY VIETNAM VETERANS ACT OF 2017

I am a veteran of the Navy who served on a ship that participated in 11 campaigns during the Vietnam War. From 1965 through 1972, the USS Whitfield County (LST 1169) was sent to Vietnam at least 31 times. During those deployments it 

patrolled endless days off the coast, supported riverine patrol boats on the rivers 

of Vietnam and went up the river to Saigon. I served aboard from July 1971 until 

she was decommissioned in March 1973. During that time our ship went to Vietnam 

three times. 

When you think of navies, you think of aircraft carriers, destroyers, submarines. 

If you are older, or a fan of WWII movies, cruisers and battleships figure into the 

equation as well. However, over its history, the United States Navy has had thousands of ships, many of which were not the fastest, stealthiest or biggest. Our fleets 

cannot stay at sea for extended periods without oilers, ammunition, and stores ships 

to support them. They cannot land Marines on distant beaches without amphibious 

ships of all sizes and descriptions. The job of our Navy is to project power, wherever 

and whenever that power is needed. To do that, dozens of different types of ships 

are needed to make that happen. 

The United States Navy was in Vietnam from start to finish. While the war did 

not start with the Gulf of Tonkin Incident in 1964, it was the catalyst for ramping 

up American participation to its peak in the late 1960s. It ended with the evacuation of American personnel and thousands of Vietnamese to ships off the coast in 

April 1975. In between, many hundreds of ships spent weeks or longer off the coast, 
72 

1 Blue Water Navy Vietnam Veterans and Agent Orange Exposure, Institute of Medicine, 

2011, pg 13, https://www.nap.edu/read/13026/chapter/2#13 2 Blue Water Navy Characteristics, Presentation to the Steering Committee Meeting, September 27, 2017. 

many of them not just once or twice, but over and over again. While many of those 

ships put into Vietnamese ports, many others did not. 

Forty years after I last saw the coast of Vietnam from the deck of the USS Whitfield County, I spent two days at the National Achives pouring over the deck logs, 

trying to find entries that supported my recollection of tying up to a pier in Cam 

Ranh Bay, beaching the ship on the LST ramp at Vung Tao, putting into port at 

Qui Nhon and sailing off the coast of Da Nang. My search revealed much more than 

I recalled. 

On my first cruise to Vietnam in 1971, we patrolled up and down the coast. We 

were on the lookout for small boats trying to infiltrate supplies and personnel into 

South Vietnam—north and south, day after day, within sight of the shoreline. This 

was not just a random assignment. Operation Market Time started in 1965 and continued through the end of American participation in 1973. We were a floating warehouse, carrying hundreds of tons of supplies on our tank deck. We carried extra ammunition for Patrol Gunboats and other smaller ships that might need resupply. 

Whenever we went to Vietnam, we carried extra fuel for ships and JP–5 for 

helicopters. 

We put into port as needed. We once picked up the pieces of a patrol boat that 

had been blown in half by a mine attached to its hull, and carried them to another 

port in Vietnam. We never knew why. We anchored off the coast to conduct shore 

bombardment with our 3’’/50 caliber guns. We spent Christmas Day in 1971 taking 

on supplies from a stores ship, then transferred some of those supplies and fuel to 

two Patrol Gunboats (USS Asheville and Tacoma) and a mine sweeper (USS Guide). 

We anchored off the coast one day, lowered the Captain’s gig into the water and 

went swimming. We followed that with a barbeque on the main deck. We did this 

within sight of the beaches. 

I mention these events as an illustration of the kinds of activities we performed 

close to the shore of Vietnam. If there was dioxin in the water, we would have been 

exposed to it while swimming. Week after week, patrolling up and down the coast, 

we took in sea water and processed it through our fresh water evaporator system. 

We know from the Australian Navy study, validated by the National Academy of 

Medicine (formerly the Institute of Medicine), that fresh water evaporator systems 

concentrated toxic material, including dioxin, which was then transmitted to sailors 

through drinking water.1

As a matter of observation, absent the cleaning and sanitation of the entire fresh 

water evaporator system, it is conceivable that every person who ever served on 

board my ship could have been exposed to dioxin after its first visit to Vietnam. Further, by the time we completed our last deployment to Vietnam in 1972, the evaporator system would have accumulated concentrated dioxin from dozens of visits to 

Vietnam, not simply the final three that I experienced while on board. 

From 2015 through September 2017, I was a member of the Steering Committee 

for the Vietnam Era Health Retrospective Observational Study (VE-HEROeS). The 

Committee had input into the study design, the questionnaires, communications, 

and types of analyses and order of analyses. The aim of the study was, in part, to 

see whether Blue Water Navy veterans would respond to the survey and describe 

their health. Based on the sample size of all Vietnam and Vietnam Era veterans, 

the researchers estimated that 200 Blue Water Navy veterans would respond. In 

fact, 987 Blue Water Navy veterans answered the questionnaire. As a result, the 

data gathered is more extensive and richer than anticipated. The raw data is currently under analysis and adjustment to assure accurate comparisons between other 

Vietnam and Vietnam Era veterans.2
73 

While results of this study will be published over the next few years, there is 

more than sufficient data to show that Blue Water Navy veterans suffer from a 

higher incidence of cancers, hypertension, and ischemic heart disease than other 

populations of similar age. 

It has been 43 years since the war ended in 1975. Even the youngest of Blue 

Water Navy veterans are over 60 years of age. Many thousands suffer from the 

same disabilities as do veterans who served in-country. Rather than continue studying the health of Blue Water Navy veterans for another 10 years while Blue Water 

Navy veterans sicken and die from diseases related to exposure to herbicides, Congress must grant Agent Orange presumptions to the thousands of sailors who served 

their country off the shores of Vietnam. 

The VFW supports expansion of benefits for Korean DMZ veterans who suffer 

from diseases and illnesses directly linked to Agent Orange. While many of these 

veterans receive presumptive disability compensation for their service-connected disabilities, hundreds of them are unjustly required to prove individual exposure. This 

legislation would provide them the benefits they have been unjustly denied. 

This legislation would also provide benefits to children suffering from spina bifida 

because of their parents’ exposure to Agent Orange while serving in Thailand during the Vietnam War. Spina bifida is a debilitating birth defect, which has been 

found to be more prevalent among children of veterans exposed to Agent Orange. 

This expansion would make equal the level of benefits that other children receive 

due to their parents’ exposure to Agent Orange. 

The VFW also supports the reporting and outreach requirements in this legislation. Research related to Gulf War Illness is vital to ensuring veterans receive the 

care and benefits they have earned as a result of illnesses and injuries caused by 

their service. The outreach and reporting components related to the Blue Water 

Navy portion of this bill would ensure veterans receive the retroactive payments 

they have earned, and allow Congress to oversee proper implementation of the legislation. On their behalf, the VFW urges you to approve this legislation so these veterans can receive the treatment and compensation they have earned through their 

service to our country. 

Ensuring equality between the active, Guard, and Reserve components of the military is a key goal of the VFW. For the past decade and a half, our country has been 

sending National Guardsmen and Reservists into harm’s way at an unprecedented 

level, and some of them have been wounded in the line of duty. The VFW is pleased 

that H.R. 299, would end arbitrary differences in home loan fees and show that 

service in uniform earns equal opportunity to be a homeowner. 

H.R. 5418, VETERANS AFFAIRS MEDICAL-SURGICAL PURCHASING STABILIZATION ACT

The VFW encourages the expansion of opportunities for veteran-owned small businesses to compete for Department of Veterans Affairs (VA) contracts, but we also 

see the value in having a single supplier if the situation is necessary. Mandating 

VA to use regional prime vendors could have a positive impact on competition in 

the market place, however, we would not want to see it negatively impact overall 

cost. The VFW does not have a position on this portion of this bill. 

We do, however, support prohibiting a single prime vendor from developing the 

formulary for medical surgical supplies. Allowing a single vendor to tailor the formulary to fit specific needs that only they could provide can lead to unfair advantages in competitive bidding. Creating a comprehensive formulary that is designed 

solely with the patients in mind is how they should be developed, and not in favor 

of a particular vendor. 
74 

S. 514, NO HERO LEFT UNTREATED ACT

The VFW opposes this legislation, which would require VA to carry out a pilot 

program to provide veterans Magnetic eResonance Therapy (MeRT) to treat Post 

Traumatic Stress Disorder (PTSD) and other mental health conditions. 

The VFW supports expanding access to integrated and complementary therapies 

that have proven to effectively treat veterans who have not responded to conventional or evidence-based mental health care. However, MeRT is not approved by the 

U.S. Food and Drug Administration (FDA) and has shown little to no evidence of 

effectiveness in treating PTSD or other behavioral health conditions. VA has a current pilot program studying Repetitive Transcranial Magnetic Stimulation, or rTMS. 

While this form of therapy is FDA approved, recent data from this research shows 

the therapy is successful on approximately 40 percent of patients, which is the same 

percentage of success in patients receiving sham treatments. 

There is currently no evidence that MeRT would outperform treatment for any 

disorders. Additionally, this legislation would not provide VA additional funding to 

test the efficacy of MeRT. The VFW believes that VA must spend its already scarce 

health care resources on therapies that have shown promise or have a proven track 

record. 

S. 1596, BRAVE ACT OF 2017

The VFW supports this important bill, which would increase the funeral and burial benefit for eligible veterans. Specifically, this important bill would also ensure 

all three benefits are indexed for inflation. 

The cost of funeral expenses in the private sector has increased nearly sevenfold 

since 2001, but VA benefits to cover such costs have failed to keep pace with inflation. The VFW urges Congress to ensure the loved ones of veterans who do not have 

access to a state or national veterans cemetery within 75 miles are not required to 

accumulate debt to provide their loved ones a final resting place that honors their 

sacrifice to our nation. 

S. 1952, DEPARTMENT OF VETERANS AFFAIRS FINANCIAL ACCOUNTABILITY ACT OF 2017

The VFW supports this bill, which would require a third-party review of VA’s financial projections. VA’s inability to accurately project its budgetary needs, or overestimating its medical collections, has impacted its ability to provide veterans timely 

access to high-quality care and benefits. 

When evaluating VA’s budget requests and financial projections, the VFW urges 

Congress to consider the impact outdated Budget Control Act discretionary budget 

caps have on the amount of resources VA is allowed to request. While VA budget 

requests should be based on need, they are often based on what VA is able to get 

approved by the Office of Management and Budget. For this reason, the VFW urges 

this Committee to include an analysis on the impact of sequestration on VA budget 

requests. 

S. 2881, MARE ISLAND NAVAL CEMETERY TRANSFER ACT

The VFW strongly supports this bill, which would transfer the Mare Island Naval 

Cemetery to the National Cemetery Administration (NCA) for management. The 

United States Navy used this cemetery as the final resting place of more than 800 

veterans. Concern that non-veterans had been buried there has been raised as a 

possible reason to prevent NCA from managing the cemetery. The VFW feels that 

the Navy made the decision to bury those people there, that the decision should be 

respected, and that this is not a reason to oppose the legislation. This cemetery is 

in disrepair and the VFW will never support allowing the final resting place of veterans to be forgotten. 

The lasting legacy of those who have served our country is on display in cemeteries and is a testament to the cost of freedom. While our Nation remembers the 

service of veterans who are no longer with us on Memorial Day, NCA, and the 

American Battle Monuments Commission ensure that a daily reminder withstands 

the test of time. 

S. 3184, TO MODIFY THE REQUIREMENTS FOR APPLICATIONS FOR CONSTRUCTION OF

STATE HOME FACILITIES TO INCREASE THE MAXIMUM PERCENTAGE OF NONVETERANS

ALLOWED TO BE TREATED AT SUCH FACILITIES. 

The VFW supports this legislation which would allow a small increase in non-veteran care at State Home Facilities. If certain facilities are not operating at full capacity and have the ability to treat non-veteran spouses, the facilities should be allowed to do so. The VFW believes these decisions should be driven by compassion 
75 

and respect for the aging veterans and their loved ones. If there are open bed spaces 

in State Home Facilities that could be occupied by veterans’ spouses, we should 

make that happen. 

TRANSITION ASSISTANCE LEGISLATION

The period of moving from active duty to civilian life can be challenging for many 

transitioning servicemembers (TSMs). Leaving a structured life in the military and 

moving to an entirely different atmosphere brings with it many difficulties. Finding 

a new job, moving away from base, going to school, or leaving friends and comrades 

are just some of the issues servicemembers face with transition. 

The Transition Assistance Program (TAP) is the Department of Defense’s (DOD) 

program in cooperation with the Department of Labor, VA, and the Small Business 

Administration to ensure a seamless path for servicemembers to civilian life. TAP 

has improved drastically over the past few years, but there are still many changes 

that need to be made to this vital program. 

The VFW supports the discussion legislation on transition assistance reform, 

which would consolidate and streamline the TAP overview process. This bill would 

provide insight and proper reporting of the entire TAP curriculum that would provide accurate information regarding which parts of TAP are working and which 

parts need improvement. However, there are items we feel should be included in 

any transition legislation in order to improve the entire process. 

The VOW to Hire Heroes Act of 2011 requires TSMs to attend TAP class prior 

to 90 days before leaving active duty service. Currently, less than half are attending 

by the required date. Additionally, less than 15 percent are attending the supplemental classes for education, entrepreneurship, or career technical training. Late attendance can lead to TSMs not having certain VA benefits available as soon as they 

leave active duty service. The VFW supports early participation in TAP classes for 

all servicemembers. We feel beginning TAP 12 months before leaving the service 

will set up TSMs for success better than the current three month path. 

The VFW supports S. 2748, BATTLE for Servicemembers Act, and the effort to 

make the supplemental TAP classes mandatory. More than half of TSMs utilize 

their GI Bill benefits after leaving the service, but nowhere nearly that many attend 

classes or briefings dedicated to education during their transition classes. Adding 

the supplemental classes to the main curriculum of TAP would expand the knowledge of TSMs and better prepare them for civilian life. 

The VFW also recognizes the value in connecting TSMs with the communities 

where they seek to reside. Having the TSMs connect with community groups or resources prior to separation could help mitigate various hardships as they transition 

to the civilian sector. There are many different organizations that help with education, employment, and financial management in communities across the country. 

Providing a connection to local resources during TAP classes is another tool for servicemembers to further their success. 

Expanding access for veterans to TAP-style information and resources after they 

leave military service is important for veterans. The VFW urges the Committee to 

revisit the pilot program to offer TAP in the community for veterans. Once veterans 

reintegrate into their communities, it is important for them to be able to access specific transition resources that apply strictly to their local communities. Veterans 

who participated in the original pilot program were able to access information and 

resources they may have missed during their initial TAP classes. 

Another key element the VFW would like to see added to any transition legislation is the removal of the 12-year expiration date for the Vocational Rehabilitation 

and Employment (VR&E) Program. Education and training are continuous efforts 

that do not end after 12 years. Many veterans seek to reeducate and retrain themselves later on in life, and removing the expiration date will eliminate an unnecessary barrier to do so. There are exemptions that will allow veterans to utilize VR&E 

after the expiration date, however, if a veteran does not meet at least one of the 

exceptions, the veteran is denied due to the arbitrary expiration date. Last year, the 

expiration date on the GI Bill was removed so veterans could engage in education 

and training later on in life. The VFW feels Congress must do the same for VR&E. 

VETERANS DENTAL CARE ELIGIBILITY EXPANSION AND

ENHANCEMENT ACT OF 2018

The VFW supports this draft legislation which would improve dental care provided to veterans by VA through a pilot program, as well as increase the ability for 

VA to construct and lease dental clinics. Though the VFW would prefer to see legislation that would expand eligibility for VA dental care to all veterans who are eligible for VA health care, the VFW supports this bill. 
76 

Dental care is a vital aspect of general health care. According to the Mayo Clinic 

and a myriad of peer-reviewed medical studies, oral health has a direct impact on 

severe diseases and conditions, such as heart disease and adverse birth conditions. 

Conversely, several health conditions that are prevalent among veterans, such as 

diabetes and Alzheimer’s disease, have been found to directly impact oral health. 

Until the VA Dental Insurance Program (DIP) was implemented in January 2014, 

veterans enrolled in VA health care had little to no options for receiving dental 

coverage. 

Additionally, there is a large disparity between VA and DOD dental coverage, 

which can have a significant impact on the health care and quality of life for veterans. While in uniform, veterans were required to maintain a high level of dental 

readiness, to the extent that they would be placed on a non-deployable status if they 

failed to receive a dental evaluation every year. However, only veterans who were 

100 percent service-connected disabled, certain homeless veterans, and those who 

had a service-connected dental condition were eligible for VA dental care. The majority of veterans enrolled in VA health care are unjustly denied access to VA dental 

care. Instead, they are offered the ability to purchase dental insurance through VA, 

which has high costs and poor coverage. VFW members who are asked for feedback 

on VADIP report that it is better than nothing. Those who have worn our Nation’s 

uniform deserve the best, not ‘‘better than nothing.’’ 

This draft legislation would create a pilot program to expand dental care services 

and treatment to veterans who are enrolled in VA at 16 locations across the country. These 16 locations would include four VA medical centers with an established 

dental clinic, four VA medical centers with a contract for dental care, four community-based outpatient clinics with available space, and four facilities from federally 

qualified health centers and Indian Health Service clinics. These pilot sites would 

assess the feasibility to furnish dental services and treatment to no more than 

100,000 veterans who volunteer to participate in the program. 

This draft legislation would also provide the Secretary with the authority to construct or lease a dental clinic for any state that does not currently have a VA facility 

that offers dental services. The VFW finds this to be incredibly important, as veterans must have access to dental care and they should not have to cross state lines 

to obtain that care. 

DRAFT LEGISLATION, MODERNIZATION OF MEDICAL RECORDS ACCESS FOR VETERANS ACT

This draft legislation would provide a portable ‘‘credit card sized’’ health record 

for veterans. The VFW understands the intent of this bill, but opposes its passage. 

Veterans already have easy access to their health care records. Veterans have the 

ability to get copies by using their My HealtheVet account. After logging into their 

account, the first page a veteran sees offers a selection of four large ‘‘buttons’’ and 

accessing their medical record is the fourth option. VFW staff tested the ability to 

download their records using this method, and in less than 90 seconds an electronic 

version had been downloaded. For those who do not use My HealtheVet, a compact 

disc copy can be obtained by veterans from their local VA medical centers. 

To ensure that the veteran’s medical record follows them after military service, 

VA has recently begun the process of adopting a commercial off-the-shelf system for 

the future electronic health record. The Electronic Health Record Modernization 

Program (EHRMP) will allow veterans to have more access to their medical records. 

This legislation allows the discharging servicemember to electronically ‘‘carry’’ their 

record to VA, and for various portions of VA to interact with itself and with community care providers while caring for the veteran. The VFW believes this bill could 

create a competing medical record that would prevent VA and the veteran from having all needed information on one platform, thus slowing the delivery of care. Because of a lack of vital information, this could lead to decisions being made that 

could harm the health of the veteran. 

In looking at our first two concerns together, the VFW worries about interoperability between the device that would be created and other VA systems, and security 

of the information stored on it. There is no requirement for the device to ever be 

connected to, or even interoperable with, the electronic health record that will result 

from EHRMP. A lost device could also lead to compromised information, and this 

is a real threat in the modern day. 

Finally, the VFW opposes this bill because it specifically bans new appropriations 

for implementation. Unfunded mandates harm other programs by forcing VA to take 

money from other parts of its IT budget. The VFW is already concerned about VA’s 

IT budget funding levels. This legislation would cause VA to divert precious and 

limited resources from other programs, thus hindering modernization of IT capabilities and implementation of EHRMP. 
77 

DRAFT LEGISLATION, TO REQUIRE THE SECRETARY OF VETERANS AFFAIRS TO ESTABLISH

A PROGRAM TO AWARD GRANTS TO PERSONS TO PROVIDE AND COORDINATE THE PROVISION OF SUICIDE PREVENTION SERVICES FOR VETERANS TRANSITIONING FROM

SERVICE IN THE ARMED FORCES WHO ARE AT RISK OF SUICIDE AND FOR THEIR

FAMILIES. 

The VFW supports this draft legislation, but has concerns the current language 

could provide grants to organizations that compete with, rather than complement, 

VA mental health care. 

This draft legislation would authorize VA to provide grants to organizations offering suicide prevention services ranging from outreach and education to peer support 

and referrals to care. While providing grants to organizations that complement the 

care being provided by VA is of benefit, Congress and VA must ensure grants will 

not be received by groups competing with VA’s suicide prevention treatments, or 

providers who should be enrolled in VA’s community care program. 

This draft legislation would require the Secretary to consult with organizations 

such as veterans service organizations (VSO’s) about recipients of these grants. The 

VFW is grateful to see this, as VSO’s have extensive background and understanding 

in programs such as this. For example, the VFW has its own mental wellness campaign. Through this campaign we have partnered with VA and other groups such 

as Change Direction, One Mind, PatientsLikeMe, Give an Hour, and the Elizabeth 

Dole Foundation. While the VFW does not provide clinical care, members work with 

our partners to provide outreach at home-grown levels to educate veterans and their 

families about recognizing emotional distress, as well as what benefits and programs are locally available. PatientsLikeMe provides peer support and Give an 

Hour provides clinical care for veterans in need of emergency counseling. 

The VFW also believes the reporting requirement stating the Secretary ‘‘may’’ require a grant recipient to report how the funding is used must be changed to ‘‘shall.’’ 

There are many honest programs which can benefit from grants. Still, Congress 

must work with VA to ensure these grants are not used to bankroll bad actors. 

I thank you for the opportunity to testify today and I will answer any questions 

you may have. 

Chairman ISAKSON. Thank you very much, Mr. Manar. 

Mr. Snee. 

STATEMENT OF THOMAS J. SNEE, NATIONAL EXECUTIVE 

DIRECTOR, FLEET RESERVE ASSOCIATION 

Mr. SNEE. Chairman Isakson, Senator Sanders, Committee Members, thank you and on behalf of the veterans for your leadership 

and caring spirit. I am Tom Snee, the national executive director 

for the Fleet Reserve Association, the oldest sea service association 

serving our men and women in the U.S. Navy, Marine Corps, and 

Coast Guard since 1924. We are most honored and pleased to have 

been asked to return again to express and share our viewpoints for 

the Senate’s favorable vote of H.R. 299 on behalf of the Blue Water 

Navies. 

I am also a retired Navy master chief petty officer, surface warfare, with over 30 years of active duty and a Vietnam veteran who 

probably served on a Blue Water Navy ship that was exposed to 

Agent Orange in the coastal waters off Vietnam. Like other ships, 

we, too, lost a great number of our crew due to Agent Orange. 

Today I am here to put a human face on Agent Orange victims and 

their families. Simply, H.R. 299 will protect and ensure the poignant care for all Blue Water Navy veterans and actions today. 

Mr. Chairman, allow me to read a quote from President George 

Washington: ‘‘The willingness with which our young people are 

likely to serve in any war, no matter how justified, shall be directly 

proportionate on how they perceive veterans of earlier wars and 

how they were treated and appreciated by our Nation.’’ 
78 

Mr. Chairman, every day we delay the well-being of earned benefits, quality treatments, and life’s sustainability for our Blue Water 

Navy veterans, we are losing their confidence and credibility as a 

Nation. Through despair, addictions, homelessness, and suicides, 

our aging Vietnam veteran population can only wonder and frequently ask, do they really care? 

For me, as that young 19-year-old from northeast Ohio, I never 

knew that the war was going on, never heard of Vietnam. Instead, 

I took my oath of enlistment seriously. I swore to protect and to 

defend the Constitution of the United States. We can all agree on 

one thing: that the Vietnam era was a very unpopular and emotional time back then. I, however, chose to serve toward a more deliberate and positive course for our country and invest in its national interests and securities. 

The House recently overwhelmingly voted 382–0 for H.R. 299. On 

that day veterans across the Nation lit up phone lines and social 

media that in hope and trust they were finally realized and valued 

for their service. Today this Committee and the Senate can further 

seal that confidence to secure those mandates for care and prevention. For those, we have been told no. For our Australian counterparts and allies, with the same at-sea lifestyles, experienced the 

same anguish, however, initiated the means to provide the needed 

care for their Vietnam sea service veterans. The VA Mission Act of 

2018, sponsored appreciatively by Chairman Roe, will ensure a continuity of care and services for our Blue Water Navy veterans. 

Please consider these points: 

• Measurable Blue Water Navy issues have been addressed to 

the House and to the Senate. An identifiable and affordable pay 

has been established. • The VA Mission Act provides the needed assurances of hope 

and promise of care and sustainability in their own personal lives. • The VA report of 2008 can be qualitatively referenced, ‘‘given 

the availability of evidence, the Committee recommends that members of the Blue Water Navy should not be excluded from the set 

of Vietnam era veterans with presumed herbicide exposures.’’ • A letter sent by 14 Senators in January 2016 stated, ‘‘There 

seems to be ample reason for you, the Secretary of VA, to make the 

policy decision in favor of many veterans who are suffering from 

painful and debilitating diseases for whom justice is long overdue.’’ • Even the statement on dioxin regarding Agent Orange brings 

the point home as requested. ‘‘Dioxins are in nature chemical residues from manufacturing processes and are often cancerous.’’ Typically, the side effects of dioxins in human exposures include sarcoma, lymphoma, blood diseases, and various birth anomalies and 

defects of varying magnitudes of seriousness. 

• And, recently, the VA established a qualitative framework to 

put into practice a positive stance and five courses of actions that 

would support and endorse and decrease in suicide instances to 

match the needs of our service. 

Mr. Chairman, Committee Members, now is the time. We must 

act to forge an informative action for our Blue Water Navy veterans. Every day we suspend its passage again, we further continue the loss of confidence and psychological setbacks for our veterans, including death itself. 
79 

I quote another instance of a widow of a Navy master chief who 

is buried at Arlington Cemetery, who said, ‘‘It is cheaper for the 

VA to bury our veterans than to take them and give them the 

treatment that they need.’’ She also said, ‘‘They should never have 

been excluded.’’ 

The making of fresh water is a universal process on every Navy 

ship. Admiral Zumwalt—I spoke with his daughter and his son, 

and the daughter said at a Navy memorial conference that if her 

Dad had known the following effects of Agent Orange, he would 

never have allowed it. 

In closing, Mr. Chairman, these are the faces and stories of the 

Blue Water Navy vets. We took an oath, we served, we made a 

commitment to the sea—breathing, bathing, drinking, cleaning, 

even brushing our teeth while absorbing Agent Orange. Our caretakers are suffering patiently as well and wondering just when will 

that day be. 

Sir, people are not science projects. We are the consequences of 

an era gone by. Vote for H.R. 299. 

Please remember my earlier quote from George Washington, because this could have a future impact, as I recently had down in 

Charleston, SC, by a 19-year-old who said, ‘‘Sir, is the Government 

and VA going to take care of me if I should get ill?’’ just before he 

went to boot camp. 

Remembering the Vietnam veteran, our resistance will long be 

painful. Sir, we have the means. Let us make sure it does not happen to us. 

Mr. Chairman, I thank you and the Ranking Member and the 

Committee and all the members here today, and I respectfully request that my statement be placed in the record. I await your 

questions. 

[The prepared statement of Mr. Snee follows:] 

PREPARED STATEMENT OF THE THOMAS J. SNEE, USN (RET), M.ED, MCPOC (SW), 

NATIONAL EXECUTIVE DIRECTOR, FLEET RESERVE ASSOCIATION

INTRODUCTION

DISTINGUISH CHAIRMAN JOHNNY ISAKSON, RANKING MEMBER JON TESTER, AND

MEMBERS OF THE VETERANS COMMITTEE, We thank you, for the opportunity to 

present the FRA’s views on, The ‘‘Blue Water Navy Vietnam Veterans Act of 2018,’’ 

sponsored by Rep. David Valadao (R-CA) and other legislation listed on the agenda. 

We would like to recognize and thank Rep Valadao for his leadership and direction 

in the recent House passage of this Bill, (382–0) on June 25, 2018. FRA also thanks 

Senator Kirsten Gillibrand (D-NY) for her companion legislation (S. 422), to 

(H.R. 299) as it was introduced in the House. The House bill has 330 co-sponsors 

and the Senate bill has 51 co-sponsors. FRA also thanks House Veterans’ Affairs 

Committee Chairman Dr. Phil Roe (Tenn.) and Ranking Member Tim Walz (Minn.) 

for working in a bi-partisan manner to pass the legislation out of committee and 

that recently passed in the House. 

AGENT ORANGE/BLUE WATER NAVY REFORM

The ‘‘Blue Water Navy Vietnam Veterans Act’’ (H.R. 299) not only clarifies, but 

further defines eligibilities for sea service personnel that served on ships in the 

coastal waters off the coast of the Republic of Vietnam. This bill also provides a presumptive eligibility statute for disability claims submission to the VA for disease 
80 

and ailments from the toxic exposures of the Agent Orange herbicide. FRA requests 

that Congress recognize all ‘‘Blue Water’’ veterans who were exposed to the Agent 

Orange herbicide and to authorize immediate and presumptive status for VA disability claims submissions. Current presumption of service connection only exists for 

Vietnam veterans who served in-country, on land and inland waterways, but limited 

to those who served off its coastal waters. Enactment of H.R. 299/S. 422 will ensure 

a well justified and earned treatments and benefits to the thousands of Navy/ 

Marine Corps/Coast Guard personnel who may have been denied service-connected 

claims by the VA since 2002. 

Upon passage of this bill, these servicemembers will no longer have to continually 

prove direct exposures from Agent Orange, and be eligible to receive the consideration from the VA for benefits associated from presumptive and known associated 

health conditions incurred from exposure from this defoliant while serving on these 

ships. From 1964–1975 more than 500,000 deployed servicemembers serving off the 

coastal waters of Vietnam may have likely been openly exposed to the chemical herbicide Agent Orange in the daily performance of their shipboard duties. In response 

to this concern, Congress passed the Agent Orange Act of 1991, (P.L. 102–4) under 

President George H.W. Bush. 

Based upon the 1991 Agent Orange Act, the VA policy (1991–2001) only recognized servicemember file claims if they received the Vietnam Service Medal/Vietnam 

Campaign Medal with a ‘‘boots on the ground’’ status. These restrictions of service 

were not applicable to sea service personnel on ships in the coastal waters. Agent 

Orange presumption connections were never extended for those shipboard personnel 

in the performance of their daily duties. The herbicide’s primary use was to destroy 

foliage on river banks and shores where the Viet Cong hid, in order to fire upon 

passing ships and small vessels. The chemical sprayed found in those rivers, eventually had a ‘‘natural’’ runoff into the coastal waters off Vietnam. As a result, shipboard desalination processing, as used daily for bathing, drinking, laundering, dish 

washing, and other onboard daily use were never considered from this contamination. It was later determined, that the onboard desalinization process for water intensified the toxicity in the amounts used in the daily use from these herbicide exposures. In addition, consideration must be taken into account from these same 

sprayings, the atmospheric surroundings that were affected on these ships. 

FRA is grateful to the 14 Senators, who in joint 2016 letter to the Secretary of 

Veterans Affairs, requested that the VA reconsider its ban on presumption for those 

who served on ships off the coastal waters as well as to those who had ‘‘boots on 

the ground.’’ The FRA strongly endorsed this letter with its reassurances in the lifting of those restrictions. This same letter referenced the recent Gray v McDonald 

decision by the Court of Appeals for Veterans Claims that found that VA’s exclusion 

of Da Nang Harbor from the definition of ‘‘inland waterways’’ to be ‘‘arbitrary and 

capricious.’’ FRA was disappointed that the VA issued a court-ordered and ‘‘clarified’’ definition of inland waterways for the purpose of determining presumption for 

coverage that still maintained its exclusion of the ‘‘Blue Water’’ Vietnam veterans. 

For the VA, to state with such confidence that the toxin, Agent Orange, could not 

cross from inland water ways and harbors into open coastal waters is a total ‘rejection in itself to the laws of nature’. It was as if some imaginary line drawn across 

the mouth of any river or bay had the ability to stop the herbicide from entering 

into coast waters and currents from flowing. 

HOUSE AMENDMENTS TO AGENT ORANGE LEGISLATION

This current legislation, as amended in the House Veterans’ Affairs Committee, 

now extends the presumption of herbicide exposure for veterans who served on or 

near the Korean DMZ between September 1, 1967 and August 31, 1971. This legislation will now permit and allow extended health care, vocational training & rehabilitation and monetary allowances to children born with spina bifida, provided that at 

least one parent of the affected child served in Thailand between January 9, 1962 

and May 7, 1975 as determined by the VA Secretary and had been exposed to the 

herbicide Agent Orange during that period. 

This bill also will allow improvements to the VA’s home loan program. Currently, 

VA-designated appraisers rely solely on information from approved third parties, 

who, for an example, would use a desktop appraisal, when determining a home’s 

value for a VA home loan. This new method would combine traditional appraisal 

methods with modern data analytics and market data to expedite and improve VA’s 

appraisal process. This bill also eliminates the current conforming loan limit on the 

price of a loan that VA can guarantee. This rate is set by Freddie Mac and the 

amount of the current cap varies depending on the cost of living in a particular 

area. Any veteran who chooses to their benefit to purchase a home above the cur-
81 

rent cap would be required to pay a funding fee unless they were rated at the 100 

percent service-connected level. 

OTHER LEGISLATIONS

FRA would like to briefly indicate its position on the other legislative proposals 

being reviewed at this hearing. The FRA’s position on the other legislative proposals 

is as follows: 

• FRA supports the draft legislation sponsored by Senator Bernie Sanders (VT) 

to authorize a pilot program for expanded dental services for certain veterans; 

• FRA has no position on Senator Michael Bennet’s (CO) legislation (S. 3184); 

• FRA supports the draft legislation sponsored by Senator Michael Crapo (ID) 

that addresses the streamlining the Transition Assistance Program (TAP). 

• FRA has no position on Senator John Boozman’s ‘‘VA Hiring Enhancement Act;’’ 

• FRA has no position on Rep. Jack Bergman’s (MI) ‘‘Veterans Affairs MedicalSurgical Purchasing Stabilization Act’’ (H.R. 5418); 

• FRA strongly supports Senator Gary Peters (MI) the ‘‘BRAVE Act,’’ (S. 1596) 

that increase benefits for burial, funeral and other death related expenses; 

• FRA strongly supports Senator Diane Feinstein’s (CA) ‘‘Mare Island Naval 

Cemetery Transfer Act,’’ (S. 2881); 

• FRA supports Senator Jon Tester’s (MT) ‘‘VA Financial Accountability Act’’ 

(S. 1952); 

• FRA strongly supports Senator Jon Tester’s (MT) ‘‘Dependency and Indemnity 

Compensation Improvement Act’’ (S. 1990); 

• FRA strongly supports Senator Dan Sullivan’s (AK) ‘‘Medal of Honor Surviving 

Spouse Act’’ (S. 2185); 

• FRA supports the draft legislation, sponsored by Senator Bill Cassidy (LA), to 

require the VA to create a program to provide grants for persons to provide and coordinate provisions of the suicide prevention services for certain veterans; 

• FRA strongly supports Senator Bill Cassidy’s draft bill ‘‘Modernization of Medical Records Access for Veterans Act;’’ and 

• FRA supports Senator David Perdue’s ‘‘No Hero Left Untreated Act’’ (S. 514). 

CONCLUSION

In closing, please allow me again, to express our sincere appreciation on behalf 

of the Association in allowing FRA to express its views on legislation at this 

hearing. 

Chairman Isakson. Your statement will be placed in the record, 

as will the statements of all the members of the panel. Thank you, 

Mr. Snee. 

Mr. Weidman, you are recognized. 

STATEMENT OF RICK WEIDMAN, EXECUTIVE DIRECTOR FOR 

POLICY AND GOVERNMENT AFFAIRS, VIETNAM VETERANS 

OF AMERICA 

Mr. WEIDMAN. Thank you, Mr. Chairman. I appreciate it. 

There are a number of bills that are really worthy bills and discussion drafts for consideration today, but I am not going to comment on all of them. I will just concentrate on two. 

First, H.R. 299 with the amendments is a bill that deserves passage. One of the statements by the VA panel—the Under Secretary 

can certainly be forgiven because he is brand-new—but when that 

Blue Water Navy special study was released by the Institute of 

Medicine, I was there, one of Mr. Snee’s colleagues who was also 

present in the room was there, and about six VSOs. It did not say 

that people were not exposed. What the report said was that, yes, 

it was biologically plausible and that probably some were exposed. 

We said, ‘‘So, why aren’t you recommending upping among the categories that the National Academy of Medicine,’’ as it is now called, 

‘‘has the opportunity to do under the 1991 law?’’ 
82 

The response back to that was, ‘‘We do not know how much you 

were exposed.’’ To which I said, ‘‘So what? You do not know how 

much I was exposed versus my friends who is down in I Corps who 

served on the ground?’’ 

Then we asked a key question: ‘‘What is a safe dose of dioxin?’’ 

Of course, her eyes got as big as dinner plates, because there is no 

such thing as a safe dose of dioxin. 

We believe that the report itself has been misinterpreted by the 

so-called public health and toxic exposure section of VA, because if 

you go back and read the actual report, it says that, in fact, people 

who served in the Blue Water Navy were exposed. How much 

makes no difference. You do not know how much different folks 

who served in the delta versus the central highlands where I 

served. Who knows? And, you cannot put it together 40 years later. 

I do want to comment and save my remaining time for the Veterans Dental Eligibility Expansion and Enhancement Act of 2018. 

How in the world dental care and periodontal care got separated 

from the rest of physiological care in our society is one of those 

things that you really have to scratch your head about. What do 

we know about people who use VA? They are older, they are sicker, 

and they have multiple and complex interactions of physical conditions. Some of that is due to poor nutrition. Some of it is due to 

bad teeth and other dental diseases that make it hard for people 

to eat real food, and so they go for processed foods. It is way past 

time for the VA to do this pilot study. Frankly, we believe that 

there is enough evidence in the general literature about overall 

health in general in regard to dental care, good dental care, that 

you cannot do good overall care, physiological care, unless you have 

good dental care. 

Because of the vagaries of the C&P system, there are a lot of 

people—if you served and applied in one regional office, you would 

have ended up 100 percent. If you apply at another regional office, 

you end up being 60 or 70 percent. Whether or not you have dental 

care, which is absolutely necessary to good health, should not depend on where you live and the vagaries of even adjudicator to adjudicator within the same office. 

So, we urge early passage of both of these bills and that science 

and justice demand early passage of both, because you cannot take 

care of people’s health if you ignore the dental, and because what 

the IOM report really said was that, yes, it was plausible that people were exposed. That was what we needed. 

One last point about the VA. They were under pressure to make 

a definitive statement about who was in the river and who was in 

the harbor. If you were in the harbor, you, ‘‘were not exposed.’’ But, 

if you sit where Senator Sanders and the Chairman are sitting and 

the people behind them, you were exposed. They literally drew a 

line on a map across the mouth of the river. I mean, you do not 

have to be an ocean hydrologist to know how stupid that is. The 

Tombigbee River and other rivers in Georgia empty into the ocean. 

How do you say whether if you threw orange dye upstream it is 

going to end up in the harbor? Same with the Lamoille River 

dumping into Lake Champlain. While you can say, ‘‘Yes, that is the 

mouth of the river,’’ but anything that is in the water that is coming down is going to go out into the larger body of water. 
83 

So, I thank you for your indulgence. I know I am over time, Mr. 

Chairman, and thank you so much for this hearing. I look forward 

to discussing these issues, of each one of these discussion drafts 

and bills, with your staff. Thank you. 

[The prepared statement of Mr. Weidman follows:] 

PREPARED STATEMENT OF RICK WEIDMAN, EXECUTIVE DIRECTOR FOR POLICY & 

GOVERNMENT AFFAIRS, VIETNAM VETERANS OF AMERICA

CHAIRMAN ISAKSON, RANKING MEMBER TESTER, AND YOUR DISTINGUISHED COLLEAGUES OF THE SENATE VETERANS’ AFFAIRS COMMITTEE, Vietnam Veterans of 

America (VVA) wants to thank you for your stellar efforts on behalf of veterans of 

all eras. And we appreciate the opportunity to offer for your consideration our testimony regarding legislation pending before this distinguished committee. 

H.R. 299, the Blue Water Navy Vietnam Veterans Act of 2018, introduced by Congressman David Valadao (R-CA). VVA, along with just about every other VSO and 

MSO, has pressed for the passage of legislation that will right a long-standing 

wrong for veterans of the so-called Blue Water Navy during the years of the Vietnam War. Its fate now rests in this Committee, at this time. We hope you will see 

the wisdom in bringing, at long last, a measure of justice to these worthy veterans, 

men who did the Nation’s bidding during that difficult and turbulent time. 

BACKGROUND

During the war in Vietnam, from the early 1960s through the first years of the 

1970s, some 20 million gallons of Agent Orange and other toxic chemicals were 

sprayed to defoliate jungle flora for two important reasons: to kill foliage surrounding fire bases that would otherwise provide cover for enemy forces, and to 

deny the enemy the ability to grow crops. Toxic chemicals in the herbicide, have 

been associated with serious, life-threatening health conditions, e.g., non-Hodgkin’s 

Lymphoma, various cancers, Type II diabetes, and Parkinson’s disease. 

Agent Orange was sprayed across the former South Vietnam, including coastal 

areas and along the banks of rivers and streams that empty into the South China 

Sea. The dioxin in this defoliant wound up in harbors and coastal byways heavily 

trafficked by military as well as civilian vessels. It is virtually certain that this contaminated seawater was taken in by ships to be desalinated into potable water for 

drinking, cooking, and showering. Today, too many of the sailors and Marines 

aboard these vessels are afflicted with the same maladies as are so-called boots-onthe-ground Vietnam vets. 

We wonder how many in this hearing room remember the words of one veteran 

suffering from cancer who stated, ‘‘I died in Vietnam and didn’t even know it.’’ He 

was not alone. In 1991, Congress enacted the Agent Orange Act in an attempt to 

rectify what had become a persistent outcry from veterans suffering from diseases 

that peer-reviewed scientific studies have associated with exposure to dioxin, the 

toxic element in Agent Orange. 

There was a time when the Veterans Benefits Administration treated claims from 

sailors in the same manner as they did for claims by in-country veterans. This was 

ended, abruptly, in March 2002. The former Secretary who made that decision in 

2002, without any justification, scientifically or otherwise, published an Opinion 

piece last week urging that the Congress ‘‘not ignore science.’’ Between 2002 and 

2009, the VA denied some 32,880 claims, as the VA limited the scope of the Agent 

Orange Act to only those veterans who could provide proof of ‘‘boots on the ground’’ 

in Vietnam. Today, approximately 90,000 claims by ‘‘Blue Water’’ sailors are awaiting adjudication by the VBA. 

(The Department of Veterans Affairs has published on its website a listing of 

‘‘Navy and Coast Guard Ships Associated with Service in Vietnam and Exposure to 

Herbicide Agents.’’ Most of these vessels, dubbed ‘‘Brown Water Navy,’’ plied inland 

waterways in the former South Vietnam.) 

H.R. 299

On June 25, 2018, the House passed an amended version of H.R. 299, 382–0. The 

original bill clarified that servicemembers aboard vessels in Vietnamese territorial 

waters (for the most part up to 12 miles from shore) during the Vietnam War can 

claim service connection for ailments associated with exposure to Agent Orange 

when filing a disability claim. The House bill was amended to include certain veterans who served near the demilitarized zone in Korea and in Thailand. 
84 

Congress, we believe, should recognize that it is as likely as not that these veterans were in fact exposed to Agent Orange and should be accorded presumptive 

status for their disability claims citing such exposure. When signed into law, this 

bipartisan legislation would reverse the VA’s 2002 decision which prevented Blue 

Water Navy veterans—and those veterans who served near the DMZ in Korea and 

in bases in Thailand—from claiming presumptive status for the diseases associated 

with herbicide exposure. 

VVA supports passage of H.R. 299 as amended, and urges swift action by you and 

your colleagues in the Senate. 

S.____ THE VETERANS DENTAL CARE ELIGIBILITY EXPANSION AND ENHANCEMENT

ACT OF 2018, introduced by Senator Bernie Sanders (I-VT), calls for the VA to carry 

out a 3-year pilot program at no fewer than 16 VA healthcare facilities. The purpose 

of this program is to assess the feasibility and advisability of furnishing dental services and treatment, and related dental appliances, to enrolled veterans who are not 

deemed to be eligible for such services and treatment, who volunteer to participate 

in the program, and who agree to copayments for such treatment and services same 

as they would for medical care. This bill also calls for the VA to initiate a program 

to educate enrolled veterans on the importance of good dental health, a program that 

illustrates the association between dental health and overall health and well-being. 

VVA most definitely endorses and fully supports this pilot project, and Senator 

Sanders’ initiative. As he has noted, ‘‘Untreated oral health conditions can lead to 

tooth loss, pain and infection, and contribute to an increased risk for serious medical 

conditions such as diabetes and poor birth outcomes.’’ The bill requires, within a 

year and a half after this pilot program commences, that the VA submit a report 

to both SVAC and HVAC that describes the implementation and operation of the 

project and includes ‘‘an assessment of [its] impact on medical care, wellness, employability, and perceived quality of life.’’ 

VVA recommends that the VA be required, within six months of the date of enactment of this act, to submit an exhaustive study/literature review of all peer reviewed articles in reputable medical journals pertaining to the effect of dental/periodontal health on overall health of adult individuals. Further, that VA submit a 

complete and documented study of the effect of providing dental services to homeless veterans and other veterans who receive such services, by cohort group, at VA. 

If this pilot project proves successful, as we believe it will, the introduction of full 

dental services for veterans who have a disability rating of less than 100 percent 

will have a salutary effect on their overall wellness. 

The arbitrary division of health and dental health has never made any real sense 

to us at VVA, since the two are so inextricably intertwined. 

S. 2881, THE MARE ISLAND NAVAL CEMETERY TRANSFER ACT, introduced by Senator Diane Feinstein (D-CA), directs the VA to enter into an agreement with the city 

of Vallejo, California, for the transfer to the VA of the Mare Island Naval Cemetery 

in Vallejo, to be maintained as a national shrine. 

Because of persistent fiscal uncertainties, Vallejo has been, and will continue to 

be, unable to properly maintain this cemetery. It is certainly appropriate for the 

VA’s National Cemetery Administration to add this to its roster of national shrines. 

To not do so would be an abdication of presumed responsibility, because to honor 

the memory of those buried there, this final resting place must be accorded proper 

maintenance. The Navy should have properly transferred it to the National Cemetery Administration (NCA) when the Navy pulled out of Mare Island. 

VVA supports the passage of S. 2881 and would request that, if it cannot be enacted as a stand-alone bill, it should be added via amendment to the 2019 National 

Defense Authorization Act. 

S. 1596, THE BURIAL RIGHTS FOR AMERICA’S VETERANS’ EFFORTS (‘‘BRAVE’’) ACT

OF 2017, introduced by Senators Gary Peters (D-MI) and Marco Rubio (R-FL). This 

bill would increase the maximum amount payable by the Department of Veterans Affairs for the burial and funeral expenses of certain veterans, an amount that would 

increase each fiscal year by the percentage increase in the Consumer Price Index. 

The demise of thousands of veterans can be connected to health conditions connected to their military service. Just as the CPI fluctuates (usually upward) year 

to year, recompense for burial expenses also ought to be aligned with changes in 

the CPI. S. 1596 should achieve this. It makes sense, is logical, and we can see no 

reason not to urge Congress to embrace it. 

S. 3184, introduced by Senator Michael Bennet (D-CO), would modify the requirements for applications for construction of State home facilities to increase the maximum percentage of non-veterans allowed to be treated at such facilities. 
85 

The intent of this legislation is righteous. It would provide ‘‘care to spouses of veterans, during a period in which a facility is operating with a bed occupancy rate 

of 90 percent or less, not more than 40 percent of the bed occupancy at any one 

time will consist of patients who are not receiving such level of care as veterans.’’ 

While we have no qualms about the spouses of veterans to be admitted to these 

homes, the language of S. 3194 is ambiguous. It seems to us that with the aging 

of the Vietnam veteran cohort, more and more of us will need to avail ourselves of 

what State homes can provide. Just as VA healthcare facilities are for veterans of 

the Armed Forces, so too, we believe, should homes for veterans be just that: homes 

for veterans who can live in dignity at a place where they can bond with other veterans. This also avoids having different levels of care, which can result in conflict 

when non-vets feel discriminated against. S. 3184 needs to go back to the drawing 

board. 

DISCUSSION DRAFT ON TRANSITION ASSISTANCE REFORM, to be introduced by Senators Mike Crapo (R-ID), Jon Tester (D-MT), Bill Cassidy (R-LA), and Dan Sullivan 

(R-AK). 

This is an ambitious bill, one that seeks to improve DOD’s Transition Assistance 

Program, including pre-separation counseling and services on such areas as financial planning, transition and relocation, and programs and such benefits as health 

care; educational assistance; preparation and requirements for employment; small 

business ownership and entrepreneurship programs; employment and reemployment 

rights; veterans preference; vocational rehabilitation; home loan and housing assistance; support services for family caregivers; and survivor benefits. This is commendable, and an attempt to bring organization and context to an often haphazard conclusion of a servicemember’s time on a deployment overseas and/or an end to his/ 

her active duty. 

Of particular importance is that section of this bill that calls for establishing a 

governing board to support prevention of drug overdoses, deaths by suicide, and alcohol-related mortality. This is timely and necessary, and should lead to a more sensible allocation of resources Vis a Vis prevention activities involving overdoses, alcohol dependence, and suicides. Over the past several years, for instance, hundreds 

of millions of dollars have been appropriated in an attempt to better understand and 

hence be able to prevent active-duty troops and veterans from taking their life; very 

little seems to have been achieved that can be ascribed as having made a positive 

impact on cutting the numbers of suicides and overdoses. 

Of particular interest and relevance to VVA and other VSOs and MSOs is ‘‘a 

course of instruction, of at least one day, on the benefits and services available 

under the law administered by the Secretary of Veterans Affairs.’’ There is far too 

much ignorance by far too many veterans on the benefits and services which they 

have earned by virtue of their service in uniform. For this alone we would endorse 

this legislation. 

There are, however, elements of this extremely prescriptive bill that ought to be 

rethought, e.g., the requirement that while all members eligible for assistance must 

participate, no servicemember ‘‘shall be required to attend more than one class or 

counseling session in any one-year period.’’ This seems self-defeating. And the sheer 

amount of analysis and paperwork that this bill would mandate will provide reams 

of statistics that, we fear, accomplishes little. 

S. 2748, THE BETTER ACCESS TO TECHNICAL TRAINING, LEARNING, AND ENTREPRENEURSHIP FOR SERVICEMEMBERS—OR BATTLE—ACT, introduced by Senators 

Sherrod Brown (D-OH) and Mike Rounds (R-SD), would require members of the 

Armed Forces receive additional training under the Transition Assistance Program. 

It is a far more modest piece of legislation that attempts to improve DOD’s Transition Assistance Program. 

VVA has no objection to the enactment of this bill. 

S.____, to be introduced by Senator Bill Cassidy (R-LA), would require the Secretary of Veterans Affairs to establish a program to award grants to organizations 

(not ‘‘persons’’) to provide and coordinate the provision of suicide prevention services 

for eligible veterans transitioning from the Armed Forces who are at risk of suicide, 

and for their families. 

Suicide, it has been said, is a permanent solution to a temporary problem. Still, 

despite all manner of attempts by Congress, DOD, the VA, and communities to research the reasons why servicemembers and veterans attempt or succeed at suicide, 

and hence to devise initiatives and programs to steer them to sources of comfort and 

assistance, suicide still claims far too many of those who have served the Nation 

in uniform. 
86 

Despite the panoply of suicide prevention efforts, especially the VA’s well- disseminated call-in number which connects those contemplating taking their life with 

well-trained professionals who can help them, the VA still does not do consistent 

evaluations of all potential psycho-social, economic, and other material factors in 

suicides, both attempted and completed, in each and every instance. This gross failure on the part of VA after 15 plus years of this being a major public concern is 

simply inexcusable, and must be corrected prospectively as well as retrospectively 

before any more funding is just thrown at this problem. 

S.____, THE MODERNIZATION OF MEDICAL RECORDS ACCESS FOR VETERANS ACT, also to be introduced by Senator Cassidy, would direct the Secretary of Veterans Affairs to initiate a pilot program to establish ‘‘a secure, patient-centered, and portable 

medical records system that would allow veterans to have access to their personal 

health information.’’ 

It seems to us at VVA that any VA patient can request his/her medical records 

simply by asking, because of the VA’s pioneering electronic health record system, 

which should be made even more efficient as the $16 billion IT modernization effort 

gets online. Certainly, the kernel of this bill can, and should, be incorporated into 

this effort. And implementation of the pilot program called for in this bill ought to 

help in the re-design of the VA’s IT. However, this needs to be coordinated with 

DOD’s upgrade of its IT system. With this caveat, VVA supports enactment of this 

legislation. 

S.____, THE VA HIRING ENHANCEMENT ACT, introduced by Senator John Boozman 

(R-AR), would ‘‘provide for the non-applicability of non-Department of Veterans Affairs covenants not to compete to the appointment of physicians in the Veterans 

Health Administration.’’ 

It appears that the goal of this bill is to make it somewhat easier for the VHA 

to hire medical professionals, to unencumber them from a covenant they may have 

entered into that could conceivably be used by a soon-to-be ex-employer to thwart 

their hiring by the VA. Inasmuch as there is a crying need in the VHA for more 

clinicians, so long as this bill is on solid legal footing, VVA fully supports its enactment, and thanks Senator Boozman for his leadership. 

H.R. 5418, THE VETERANS AFFAIRS MEDICAL-SURGICAL PURCHASING STABILIZATION

ACT, introduced by Congressman Jack Bergman (R-MI), would require the VA, in 

procuring medical, surgical, dental, or laboratory items for its medical facilities 

through the Medical Surgical Prime Vendor (MSPV) program, to award contracts to 

multiple regional prime vendors instead of a single nationwide prime vendor. It 

would prohibit a prime vendor from solely designing the formulary of items available 

for MSPV purchase. And it would mandate that the VA ensure that each employee 

who conducts formulary analyses or makes decisions about including items on the 

formulary has relevant medical expertise; and that the VA provide Congress, on a 

quarterly basis, with periodic lists of these individuals and their medical expertise 

listed by categories of formulary items. 

VVA endorses the intent of this bill, but we balk at the requirement of naming 

individual employees as a matter of course, unless said individual is a SES or other 

senior VA manager. Certainly, if there is a question about a particular action by 

a specific employee, said employee needs to be named and called to task. The Accountability Act was supposed to make it easier to hold these senior managers accountable, not make it easier to scapegoat and fire those they manage. With this 

caveat, we endorse enactment of H.R. 5418. 

S. 1952, THE VA FINANCIAL ACCOUNTABILITY ACT OF 2017, introduced by Senators 

Jon Tester (D-MT), John McCain (R-AZ), Joe Manchin (D-WV), and Tim Kaine (DVA), would improve oversight and accountability of the financial processes of the Department of Veterans Affairs. 

We have no dispute with the statement that ‘‘the normal budget process for the 

VA should be grounded in sound actuarial analysis based on accurate demand forecasting,’’ or that ‘‘supplemental requests for appropriations should be used sparingly 

and for unforeseen demand or natural occurrences.’’ We do question, however, the 

underpinnings of this legislation. Certainly, the VA does not come up with its budgetary needs in a void, although VVA has long contended that the so-called ‘‘Millman 

formula’’ always underestimates the needs of every generation. And then...the Office of Management & Budget (OMB) gets ahold of the VA request, and shrinks an 

already underestimated set of figures. Ultimately it is up to Congress to determine 

how much is to be appropriated. 

The concern, however, seems to be the unanticipated costs of fulfilling Congress’ 

promise to give veterans Choice. And going to private doctors and hospitals is only 

going to cost more and more—with which both the VA and you in Congress have 
87 

to come to grips. If some ‘‘independent third party’’ can be contracted with to review 

and audit the financial processes, and actuarial and estimation models of the VA, 

and make recommendations for improving the reporting structures, fine. 

Perhaps, however, Congress might first want to review the Final Report of the 

Commission on Care, which you created while initiating the Choice program back 

in 2014. Its estimates and forecasts seem pretty clear; the only issue is how much 

‘‘Choice’’ do you want to fund—without further undermining the current already inadequate organizational capacity at the service delivery point of VA medical centers. 

S. 1990, THE DEPENDENCY AND INDEMNITY COMPENSATION IMPROVEMENT ACT OF

2017, introduced by Senators Jon Tester (D-MT), Richard Blumenthal (D-CT), and 

Mazie Hirono (D-HI). This bill would increase amounts payable by the VA to modify 

the requirements for Dependency and Indemnity Compensation (DIC) for survivors 

of certain veterans who had been rated totally disabled at the time of their death. 

Although this bill does not attempt to correct the inequities inherent in the SBPDIC issue, it does seek to increase the amount of DIC compensation payable to surviving spouses. This is commendable. It should be of significant help to spouses in 

financial need. And we support its enactment into law. 

However, VVA must again state unequivocally that the gross injustice done to the 

widows ‘‘of those who have borne the battle’’ by deducting what is essentially an insurance program payout on which the soldier’s family paid into for years (SBP payments) from Death & Indemnity Compensation (DIC) is just wrong, both morally 

and in every other way. And all to save the Federal Government a few bucks on 

a dead GI, ignoring the survivors. 

S. 514, THE NO HERO LEFT UNTREATED ACT, introduced by Senators David Perdue 

(R-GA) and Gary Peters (D-MI), would require the VA to carry out a one-year pilot 

program to provide access to magnetic EEG/EKG-guided resonance therapy to treat 

veterans suffering from PTSD, TBI, MST, chronic pain, or opiate addiction. 

‘‘Congress recognizes the importance of initiating innovative pilot programs,’’ this 

bill asserts, ‘‘that demonstrate the use and effectiveness of new treatment options 

for Post Traumatic Stress Disorder, Traumatic Brain Injury, military sexual trauma, chronic pain, and opiate addiction.’’ If in a pilot project this therapy proves to 

be promising or effective, initiating the pilot will be well worth whatever it might 

cost. This program should be funded from Deployment Health and other virtually 

useless programs, including Research & Development programs that do not in any 

way contribute to understanding toxic or other wounds of servicemembers and veterans, or improving veteran health treatments. 

S. 2485, THE MEDAL OF HONOR SURVIVING SPOUSES RECOGNITION ACT OF 2018 , 

introduced by Senator Dan Sullivan (R-AK), would provide payment of the Medal 

of Honor special pension to the surviving spouse of a deceased Medal of Honor 

recipient. 

Bearing in mind that those who have been awarded the Medal of Honor are true 

heroes and not the ‘‘hero’’ appellation that so many in Congress feel compelled to 

honor all those who serve in uniform. To provide a modest—$1,329.58 a month— 

special pension to the surviving spouse of one of this Nation’s heroes should be a 

no-brainer, and VVA is on board for the swift passage of this bill. 

VVA thanks you for the opportunity to present our views on legislation pending 

before this Committee, and we look forward to passage of H.R. 499, the Blue Water 

Navy Vietnam Veterans Act, and will be happy to answer any question the Committee may have. 

Chairman ISAKSON. You may be over time, but you are always 

informative, and we appreciate it. [Laughter.] 

Mr. WEIDMAN. Thank you very much, Mr. Chairman. 

Chairman ISAKSON. Do you have a question, Senator Sanders? 

Senator SANDERS. I do. Let me start off by thanking The American Legion, the VFW, the Fleet Reserve Association, and the Vietnam Veterans for all supporting the dental legislation that we 

have. I appreciate that very much, and I think the time is long 

overdue, as Rick just mentioned, for us to pass that. 

I would appreciate from Mr. Weidman or any of the other distinguished panelists their thoughts about the need for the VA to begin 

a pilot project to take a look at the dental care needs of veterans. 

Rick, do you want to begin it? 
88 

Mr. WEIDMAN. I come back to what we know about the demographics of who uses VA, and the demographics are generally veterans who are poor. And what do we know about poor people? They 

do not eat as well as upper-middle-class or middle-class people. 

Some of that is because they cannot access it in the inner cities, 

but even in the countryside, what you have easy access to in a 

place like Vermont or rural Georgia or rural North Carolina is the 

little stores that are nearest you, which generally do not carry 

fresh produce. So, people eat stuff out of a can or they hit the fastfood joint. When you have got a number of kids, the easiest thing, 

if you are poor, is to take them to a fast-food joint because that will 

fill them up. It is not the right thing, and for the person to eat it, 

the veteran to eat it, they know very well it is not the right thing, 

but it is cheap and they are hungry. So, that is what poor people 

eat. 

Senator SANDERS. All right. Let me just jump in and ask anybody, are you aware of veterans who have serious dental needs? 

Mr. WEIDMAN. Yes. 

Senator SANDERS. OK. Mr. Manar? 

Mr. MANAR. Well, certainly, and it is really frustrating for veterans when they come to seek dental treatment at the VA and they 

are told they need to file a claim. Then, it can take months while 

they are suffering from their dental conditions. And, more often 

than not, they are going to get denied for treatment because the 

evidence is lacking that their condition started in service or whatever the reason may be. 

I think that if we looked hard enough at the history of why dental treatment got separated from health care, it is the same reason 

vision was separated. First, they are very common and, second, 

they are very expensive over the long run. And, they decided to 

save money, your predecessors decided to save money and focus on 

other things. 

I am really thankful, we are really thankful that you have presented this legislation, you are supporting it, and we hope that the 

Senate will move on it and grant the veterans this opportunity to 

participate in a test. 

Senator SANDERS. Good. Does The American Legion want to comment on that? 

Mr. NUNTAVONG. Senator, The American Legion believes in timely and quality dental care for veterans. I am a retired Marine, 22 

years. I was required to go to medical once a year, but I was required to go to dental twice a year. It is very important that our 

veterans receive the health care they need in the form of dental 

care. 

Senator SANDERS. Thank you. Fleet Reserve, Mr. Snee? 

Mr. SNEE. Yes, sir, the same. I agree with The American Legion’s 

statement. You have got to remember that when these individuals 

come out of the service, they are given their final dental care, their 

final check. Then, it comes down to where do they go when they 

get out? It is where they are settling down, then access to that dental care. And, of course, the availability of socioeconomics that 

plays on the family. That is very important. They have never had 

to do that, to go out to a civilian dentist, not because of disgust or 

anything else, but where do we go next? That is a factor also. Hav-
89 

ing that availability as a total medical picture for the entire body 

being taken care of, it is very important, yes, sir. 

Senator SANDERS. Well, let me thank all of the organizations 

here for their support. What we are proposing is nothing terribly 

radical. It is a pilot project to see what kind of need is out there, 

to see how the VA can best address that need. I suspect the pilot 

project will prove positive, and we will go from there. I do appreciate all of your support and will look forward to passing this legislation. 

Chairman, thank you very much. 

Chairman ISAKSON. Thank you, Senator Sanders. 

Senator Tillis? 

Senator TILLIS. Thank you, Mr. Chair. I will be very brief. 

First, I want to thank Matt sitting in the front row. Because you 

are in the office a lot, I have mistaken you for staff once or twice, 

so we really appreciate your advocacy on behalf of The American 

Legion. 

My wife’s uncle died of Agent Orange exposure, very personally 

important. I have worked on toxic burn pits to try and get ahead 

of what I think could be the next Agent Orange. I worked on the 

Camp Lejeune toxic substances. I want you to know that I am very 

sympathetic to what we are trying to do with the Blue Water Navy, 

and I would like to meet in my office so that we can have a more 

fulsome discussion than we can have here. I want to see how we 

can really move on track to where we can bring people together, 

address some of the concerns I have about the pay-for. I think 

when it was previously proposed, you all had some—or some of the 

VSOs, I will not speak for you, had concerns with the pay-for. So, 

it is important to get it right. I think we do need to get it right. 

With respect to science, I think on dental health—I have done a 

lot of work in State public policy; dental health and physical health 

are inextricably linked. We need to make progress on that. 

I just wanted to thank you all for your service and let you know 

that our office is willing to work with you. We all know that the 

hearings are important, but what happens in the offices every day 

in meetings where we can drill down and talk about how you take 

positive steps and gain support for the measures is the way we get 

things done. 

Thank you all for your past service and your continued service. 

Chairman ISAKSON. I am glad Senator Tillis wants to work on 

this Blue Water Navy because I had the privilege of working with 

him on the Camp Lejeune issues here a couple years ago. Many of 

those questions leading up to that were not any more difficult than 

the ones we are talking about trying to solve with the Blue Water 

Navy. So, I look forward to working with him on that and the 

others. 

I thank all the Members for being here. I ask unanimous consent 

that the testimony of Dianne Feinstein—which was to have been 

made orally at the first panel, but she could not be here. She later 

submitted it in writing to be submitted for the record of today’s 

hearing. Is there any objection? 

[No response.] 

Chairman ISAKSON. Hearing none, so ordered. 
90 

[The prepared statement of Senator Feinstein can be found in 

the Appendix.] 

Chairman ISAKSON. Second, we received testimony for a February 7, 2018, legislative hearing which we had to postpone at the 

last minute due to inclement weather. I ask unanimous consent 

that the testimony received for that hearing be added to today’s 

record for the purpose of making it public information. Any 

objection? 

[No response.] 

Chairman ISAKSON. Hearing none, so ordered. 

[The testimony submitted for February 7, 2018, for which an updated version was not received, is found in the Appendix.] 

Chairman ISAKSON. We thank you for your participation. We 

have more to do on these issues. This is not the end. This is the 

beginning. I appreciate you all being here very much. 

We stand adjourned. 

[Whereupon, at 4:19 p.m., the Committee was adjourned.] 
(91) 

A P P E N D I X 

PREPARED STATEMENT SUBMITTED BY HON. MARIA CANTWELL, U.S. SENATOR FROM WASHINGTON

(brought forward from February 7, 2018, postponed hearing) 

Thank you Chairman Isakson and Ranking Member Tester for moving this bill 

through your committee. 

I would also like to thank Senator Fischer for her co-sponsorship and support of 

servicemembers on this very important issue. 

Currently, the SCRA provides servicemembers the ability to get out of term contracts for wireline and wireless telephone service—without penalty—upon the servicemember’s deployment. 

This bill would extend the same relief for servicemembers that need to terminate 

term cable and Internet service contracts because of a deployment. By creating parity with other types of technology that servicemembers and their families regularly 

use we are protecting them from unfair termination fees and penalties that may 

arise when duty requires that they, and in some cases their families, move, in order 

to fulfill their duties. 

The text conforms to technical assistance we received from the FCC. We vetted 

with industry, veteran and armed services stakeholder groups. The broad support 

that the bill enjoys speaks to how timely and necessary these proposed changes are 

to bring the SCRA up to date so that servicemembers and their families can access 

the internet and cable services we all rely on to stay in touch with their friends and 

loved ones, stay informed about the news and remain connected around the world, 

no matter where they are deployed. 

PREPARED STATEMENT BY HON. DIANNE FEINSTEIN, U.S. SENATOR FROM CALIFORNIA

S. 2881—THE MARE ISLAND NAVAL CEMETERY TRANSFER ACT

CHAIRMAN ISAKSON, RANKING MEMBER TESTER AND MEMBERS OF THE COMMITTEE, Thank you very much for inviting me here today to discuss my legislation. 

S. 2881, the bill I have introduced with several of my colleagues, is straightforward and would transfer control of the Mare Island Naval Cemetery from the city 

of Vallejo to the Department of Veterans Affairs. 

I’d like to briefly provide some background on the history of this cemetery. The 

Mare Island Naval Cemetery is the oldest military cemetery on the West Coast. The 

cemetery was part of a U.S. Navy base that closed down in 1993. After the base 

closed, the nearby city of Vallejo assumed control of the property including the 

cemetery. 

The cemetery has over 900 graves, including over 800 veterans and three Medal 

of Honor Recipients. There are approximately 80 nonmilitary graves, the majority 

of which belong to military family members. 

Unfortunately, the city of Vallejo didn’t have the necessary funds to care for the 

cemetery, which has only been maintained by volunteers with limited resources. The 

cemetery is very damaged: gravestones are toppled over, broken or sinking into the 

ground, serious drainage issues exist, and plants and weeds are overgrown. The current state of the cemetery requires urgent action to restore these graves and the 

grounds to a respectable condition. 

The bill is a simple transfer of the cemetery from the city to the Department of 

Veterans Affairs. This means that the VA would have the responsibility to restore 

the cemetery and maintain the grounds in a respectable condition. 

I want to thank you all for considering this bill and I want to thank Senators Harris, Markey, Menendez, Warren, Cardin and Booker for cosponsoring this legislation. 
92 

We owe our veterans a great deal. By passing this bill we can ensure that the 

Mare Island Naval Cemetery is restored and maintained to honor our veterans who 

are buried there. For those veterans and their family members who sacrificed so 

much for our Nation, it is fitting that we do so. 

Thank you. 

PREPARED STATEMENT FROM THE ADVANCED MEDICAL TECHNOLOGY ASSOCIATION

(ADVAMED) 

AdvaMed is the leading trade association representing medical technology manufacturers and suppliers that operate in the United States. Our members range from 

the largest to the smallest medical technology innovators and companies. Collectively, we are committed to ensuring patient access to life-saving and life-enhancing 

devices and other advanced medical technologies. 

The sacrifice our Nation’s veterans and their families make on our behalf cannot 

be overstated. We all have an obligation to ensure they receive the highest quality 

care and have access to the best medical technology available. AdvaMed and its 

member companies believe strongly in our collective relationship with the U.S. Department of Veterans’ Affairs (VA) and share the Department’s goal of providing our 

veterans with the highest quality health care possible. 

There are approximately 8 million U.S. veterans of the armed services accessing 

the VA health care system, with another nearly 2.3 million currently serving in the 

military on active duty that may do so in the future. Through earlier diagnosis and 

intervention, less invasive procedures and more effective treatments, medical technology is revolutionizing health care across the continuum of service and enhancing 

the lives of America’s troops in the field and beyond. Technologies include: spinal 

cord stimulation; joint/limb replacements; wound care products; neurological devices; 

cardiac technologies; and many others. Through these technologies, our companies 

can help provide the standard of care reflective of the respect and commitment we 

owe to our Nation’s veterans. 

One person’s experience exemplifies our industry’s mission when it comes to our 

Nation’s veterans. Justin Minyard’s story reflects the kind of people we are working 

every day to help—a combat veteran injured at the Pentagon while lifting and moving rubble in the search for survivors, who has found relief from his chronic back 

pain thanks to Boston Scientific’s spinal cord stimulator. 

However, recent changes in VA’s procurement of these critical medical technologies have created new barriers within the veteran health care system. These 

changes have resulted in significant inefficiencies in veterans obtaining access to 

care and reductions in the quality of health care accessible to veterans. In the long 

term, these changes risk pushing high caliber providers and suppliers of innovative 

products out of the VA system. 

Our overarching concern is that, collectively, these problems will severely restrict 

timely patient access to critical technologies and quality care, delay access to the 

right product at the right time and in the right setting for veterans and their providers, and possibly impact the ability of VA to attract and retain medical 

professionals. 

Thankfully, Congress has begun to address some of these issues and work with 

both the VA and industry on constructive solutions. H.R. 5418, the Veterans Affairs 

Medical-Surgical Purchasing Stabilization Act authored by Rep. Bergman, is an important step in improving one component of the VA’s procurement process. This legislation would place procurement decisionmaking for the Medical-Surgical Prime 

Vendor (MSPV) in the hands of clinical experts who are best equipped to advise the 

VA on the most appropriate medical technology to meet the health care needs of 

our Nation’s veterans. At the same time, it would preserve the ability of the VA to 

obtain a range of products at a competitive price from multiple suppliers. AdvaMed 

supports the Committee’s review of this legislation today and looks forward to working further with Congress on its adoption into law. 

A well-managed MSPV program would have significant benefits, make the VA a 

more efficient medical system, and reduce overall costs. More specifically, a well-run 

MSPV will give the VA: 1) a full spectrum of critical medical products for clinicians 
93 

to be able to meet every veteran’s needs that does not exist in today’s MSPV program, 2) reduce the instances of procedure delays and cancellations at Veterans’ Affairs Medical Centers (VAMCs) due to lack of needed devices in the current MSPV 

program, 3) reduce excessive and costly medical supply inventory levels that currently exist at VAMCs, 4) reduce costs to procure products, especially the rampant 

government purchase card use that exists today in VA medical centers due to a 

poorly run MSPV program, 5) reduces the time that VHA physicians and nurses are 

now required to spend away from veteran medical care in order to perform medical 

logistics functions, and 6) reduce the risk of gray market medical devices being procured by VA when products re not available in the MSPV. 

It is important for the VA to have an efficient procurement system across the 

board that allows for faster adoption of new medical technologies and standards of 

care, while also ensuring appropriate reimbursement times for those critical products. Improvements to the MSPV program are just one aspect of ensuring veterans 

have access to these life-saving and life-enhancing technologies. It is just as important to consider similar improvements to the implant procurement program, which 

includes permanently implantable products not available through the MSPV program, like joint replacement technologies, stents, etc. 

We welcome today’s hearing as another opportunity to understand on how the VA, 

Congress, and industry can take a solutions-oriented approach to these issues and 

work together on the most effective resolution. We support efforts to ensure the VA, 

Congress, and industry to work together to review and seek ways to better implement processes and to ensure that all procurement policies evaluate technologies 

based on the value to patients. Ultimately, the most important measure of the success of the VA’s new procurement policies is whether the veterans that they serve 

are getting access to the best medical care in a cost-effective manner. 

Again, we are grateful for the Committee’s leadership on this issue and especially 

appreciate the work of Chairman Isakson, Ranking Member Tester, and their staff. 
94 

Appraisal 

Institute• /'rqfoss/ona/s Prodding 

Ileal l';sJtde SolutilifU 

August 1, 2018 

The Honorable Johnny Isakson 

Chairman 

United States Senate Committee on Veterans' Affairs 

412 Russell Senate Office Building 

Washington, DC 20510 

The Honorable Jon Tester 

Ranking Member 

United States Senate Committee on Veterans' Affairs 

412 Russell Senate Office Building 

Washington, DC 20510 

Dear Chairman Isakson and Ranking Member Tester, 

On behalf of more than 19,000 members of the largest organization of professional real property 

appraisers, thank you for the opportunity to provide written testimony for the August 1" Senate Veterans' 

Affairs Committee hearing on pending legislation, and more specifically our thoughts on H.R. 299, the 

Blue Water Navy Vietnam Veterans Act of 2017" ("Blue Water Act"). The Appraisal Institute supports the 

overall aim of the legislation to aid Vietnam Veterans who had their disability eligibility taken away due to 

regulatory changes, but believes Section 7, which makes changes to how appraisals are procured for the 

VA home loan program, is unnecessary and ultimately could put veterans at risk. 

The intent of the appraisal provision was to address a problem with slow turnaround times for VA loan 

appraisals in some rural markets due to a shortage of appraisers, by allowing VA appraisers to engage a 

third party to perform property inspections on their behalf. Some are referring to this as a "hybrid" 

appraisal. In the end, The Appraisal Institute believes the issues relating to VA appraisal turnaround times 

have already largely resolved themselves. Since the introduction of H.R. 3561 , the original legislation 

containing this provision, the VA has become more competitive with the conventional market in terms of 

appraisal fees.: and have added more than 1,000 appraisers to the VA Fee Panel. As a result, the 

number of outstanding appraisal requests has declined dramatically over the past 18 months. 

We share Congress' desire to help veterans wherever we can, but the Appraisal Institute feels the best 

way to protect a veteran in their home buying process is through the preparation of a robust appraisal. 

Bifurcating the appraisal process by allowing for a third-party inspection decreases the reliability and 

credibility of the appraisal and increases risk to the VA loan program. Our nation's Veterans deserve a 

robust appraisal completed by highly qualified individuals. 

There are ways to improve andlor create more efficiencies within the VA appraisal process than by 

bifurcating the appraisal process. Specifically, with the concerns of the rural shortage of 2016 in mind, it 

would behoove the VA to develop a "stand-by" list of approved VA appraisers to serve as a "buffer" 

against surges In loan demand. The VA recruits appraisers on an ongoing basis to the Fee Panel, and the 

Appraisal Institute even has assisted the agency in marketing the opportunity to the appraisal community. 

But some of our members report an uneven response from the VA regarding their applications. While 

those appraisers who currently are on the VA Fee Panel generally give it high marks, those who are not 
95 

PREPARED STATEMENT OF AMY WEBB, NATIONAL LEGISLATIVE POLICY ADVISOR, 

AMVETS 

Executive Summary 

H.R. 299—Blue Water Navy Vietnam Veterans Act of 2018 Support 

S. 514—No Hero Left Untreated Act Support 

S. 1596—BRAVE Act of 2017 Support 

S. 1952—VA Financial Accountability Act of 2017 Support 

S. 1990—Dependency and Indemnity Compensation Improvement Act of 2017 Support 

S. 2485—Medal of Honor Surviving Spouses Recognition Act of 2018 Support 

S. 2748—BATTLE for Servicemembers Act Support 
96 

Executive Summary—Continued 

S. 2881—Mare Island Naval Cemetery Transfer Act Support 

H.R. 5418—Veterans Affairs Medical-Surgical Purchasing Stabilization Act Support 

DISCUSSION DRAFT on Transition Assistances Reform Support 

DRAFT Veterans Dental Care Eligibility Expansion and Enhancement Act of 2018 Support 

DRAFT VA Hiring Enhancement Act Support 

DRAFT bill to require the Secretary of Veterans Affairs to establish a program to award 

grants to person to provide and coordinate the provision of suicide prevention services 

for veterans transitioning from service in the Armed Forces who are at risk of suicide 

and for their families and other purposes Support 

DRAFT Modernization of Medical Records Access for Veterans Act Oppose 

CHAIRMAN ISAKSON, RANKING MEMBER TESTER, AND ALL MEMBERS OF THE COMMITTEE; Thank you for the opportunity to provide a statement for the record on behalf of AMVETS’ 250,000 members. We are particularly thankful for your efforts to 

address some of the most challenging and longstanding veteran policy issues and 

appreciate the dedication of your staff members who listen to us and work tirelessly 

to formulate policies intended to ensure our Nation’s veterans and their families are 

properly cared for. 

H.R. 299—BLUE WATER NAVY VIETNAM VETERANS ACT OF 2018

AMVETS supports H.R. 299 

This bill proposes to slightly raise Department of Veterans Affairs (VA) home loan 

fees to fund Agent Orange benefits for the estimated 90,000 Blue Water Veterans 

who served during the Vietnam War. AMVETS supports this as the fees are minimally raised, and there hasn’t been an increase in some time. Blue Water Veterans 

have advocated staunchly for this measure, and it is time that they are finally made 

whole after suffering the toxic wounds they incurred during their service to this Nation. 

AMVETS is also pleased that this bill allows for a presumption of herbicide exposure to certain veterans who served in or near the Korean Demilitarized Zone any 

time from September 1, 1967 to August 31, 1971 who have conditions covered under 

section 1116 of title 38. 

Additionally, this measure recognizes the children of veterans who served in Thailand between January 9, 1962 and May 7, 1975 who were born with spina bifida. 

Those now adult children will be provided benefits including health care, vocational 

training and rehabilitation and a monetary allowance matching the same benefits 

provided to children of Vietnam Veterans who were born with spina bifida. 

AMVETS looks forward to the reporting requirement in this measure requiring 

the Secretary of Veterans Affairs to provide an update report on the most recent 

findings of the Follow-up Study of a National Cohort of Gulf War and Gulf Era Veterans to the House and Senate Committees on Veterans Affairs. 

While slightly increasing VA home loan fees as a source of revenue, we are 

pleased that Purple Heart recipients and those veterans with a service-connected 

disability rated as permanent and total will have said fees waived. 

S. 514—NO HERO LEFT UNTREATED ACT

AMVETS supports S. 514 

AMVETS is pleased to support the No Hero Left Untreated Act, which seeks to 

establish a pilot program for two Department of Veterans Affairs (VA) medical centers to treat fifty veterans using magnetic EEG/EKG-guided resonance therapy. 

Magnetic EEG/EKG-guided resonance therapy has successfully treated more than 

400 veterans with Post Traumatic Stress Disorder, Traumatic Brain Injury, military 

sexual trauma, chronic pain, and opiate addiction. This small pilot would be instructive to VA in understanding the benefits and deciding whether to offer this promising therapy to those receiving VA health care. 

AMVETS is encouraged by the initial results of those treated with magnetic EEG/ 

EKG-guided resonance therapy and supports the pilot which would allow VA to see 

the results first-hand, with the eventual goal of supporting this alternative therapy. 
97 

If it were fully understood how to treat these nuanced disorders and health issues, 

VA would already be doing so—and suffice it to say—the veteran suicide rate would 

most assuredly be lower than it is now. It is imperative that we study new ways 

to help those who have stood up and walked the walk and suffer the consequences 

day after day. 

S. 1596—BURIAL RIGHTS FOR AMERICA’S VETERANS EFFORTS (BRAVE) ACT OF 2017

AMVETS supports S. 1596 

AMVETS has a National Resolution, voted on by our membership, which advocates for the Department of Veterans Affairs to increase burial benefits. This measure seeks modest increases with built-in future increases related to the Consumer 

Price Index for funeral expenses for veterans receiving, or eligible to receive compensation who have no next of kin or other person claiming the body of the deceased 

veteran, and when there are not available sufficient resources to cover burial and 

funeral expenses. It also increases funeral expenses for those veterans who died as 

a result of a service-connected disability, which we wholly support. 

S. 1952—DEPARTMENT OF VETERANS AFFAIRS FINANCIAL ACCOUNTABILITY ACT OF 2017

AMVETS supports S. 1952 

This bill cuts to the heart of what seems to have become regular emergency appropriations requests from the Department of Veterans Affairs (VA) to Congress. 

Often, this includes an appeal that if Congress fails to act then veterans will suffer. 

The processes put in place with the passage of this bill would indeed create VA financial accountability, and a system of checks and balances that can prevent needless emergency appropriation requests. The end result of implementation would be 

a more fiscally sound Department, that would have knowledge of every avenue of 

spending, how to forecast needed funds in advance, and how to stop ‘‘living paycheck 

to paycheck’’ where one emergency, or the inability to forecast necessary funding, 

cleans out the account. Our veterans and taxpayers deserve better, and we applaud 

the bipartisan leadership that introduced this bill. 

S. 1990—DEPENDENCY AND INDEMNITY COMPENSATION IMPROVEMENT ACT OF 2017

AMVETS supports S. 1990 

AMVETS supports the long overdue increase in dependency and indemnity payments made to survivors of eligible servicemembers or veterans, and the modifications in the measure which eliminates the 10-year rule for veterans rated at 100 

percent disability and creates a five-year rule where eligible survivors can receive 

a payment prorated relative to a percentage of the full 10-year amount of compensation. 

S. 2485—MEDAL OF HONOR SURVIVING SPOUSES RECOGNITION ACT OF 2018

AMVETS supports S. 2485 

AMVETS supports honoring Medal of Honor survivors with this modest increase 

to their special pension. 

S. 2748—BETTER ACCESS TO TECHNICAL TRAINING, LEARNING AND ENTREPRENEURSHIP

(BATTLE) FOR SERVICEMEMBERS ACT

AMVETS supports S. 2748 

This measure takes a common-sense approach by allowing groups or classifications of those under the purview of the Secretaries of Defense or Homeland Security 

to obtain a waiver to opt out of additional training. This would be permitted after 

consultation with the Secretaries of Labor and Veterans Affairs who would need to 

agree that the members in question would not benefit from additional training and 

present a strong reason to believe that they are unlikely to face major readjustment, 

health care, employment and other transition challenges that some face. The member may also elect not to receive additional training by requesting so in writing, or 

because they are needed to support the imminent deployment of a unit. AMVETS 

believes this could be a cost and time-saving policy, while recognizing that many do 

benefit from such training. 

S. 2881—MARE ISLAND NAVAL CEMETERY TRANSFER ACT

AMVETS supports S. 2881 

S. 2881 directs the Secretary of Veterans Affairs to seek out an agreement with 

the city of Vallejo in California, under which the city would transfer control of the 
98 

Mare Island Naval Cemetery to the Department of Veterans Affairs (VA) National 

Cemetery Administration. The VA would pay nothing to acquire the land, and would 

assume the obligation of maintaining the cemetery in the future. 

The cemetery, which dates back 160 years as part of the oldest West Coast military base, is the final resting place of 800 veterans, including three Medal of Honor 

recipients. The Federal Government closed the Mare Island Naval Base in 1996 

without allotting funds for the care and maintenance of the cemetery. After more 

than twenty years of neglect, the state of disrepair at the Mare Island Naval Cemetery is a national embarrassment, and a disgrace. 

Congress must move swiftly to enact this measure to repair and maintain the 

Mare Island Naval Cemetery. 

H.R. 5418—VETERANS AFFAIRS MEDICAL-SURGICAL PURCHASING STABILIZATION ACT

AMVETS supports H.R. 5418 

This measure adds a needed level of accountability to the Department of Veterans 

Affairs (VA) Medical Surgical Prime Vendor-Next Generation (MSPV-NG) program. 

One vendor should not be permitted to be the sole, uncontested provider of medical 

surgical supplies in a certain region, and this would require that multiple contracts 

be awarded while prohibiting a prime vendor from solely designing the formulary 

of supplies. 

It also ensures that VA employees in charge of formulary analyses or who makes 

decisions regarding to including items on the formulary have relevant medical expertise. GAO issued a report at the end of 2017 outlining the improvements needed 

in purchasing medical and surgical supplies and noted how implementing the improvements could yield cost savings and efficiency. AMVETS agrees with the GAO 

recommendations and believes passage of this bill can assist in implementing needed change. 

DISCUSSION DRAFT ON TRANSITION ASSISTANCES REFORM

AMVETS supports this Discussion Draft 

AMVETS supports this Discussion Draft which consolidates sections 1142 and 

1144 of Chapter 58 of title 10 into one cohesive section, with large expansions 

geared toward improving the Transition Assistance Program for members of the 

Armed Forces. 

Some highlights from the draft include that it allows the natiSecretary of Defense 

to not require attendance in more than one class or counseling session per year, yet 

strengthens the accountability of reporting attendance for covered counseling, information, and services and rates of attendance in-person, online, and the number of 

waivers granted when the mission prevented attendance by a member of the Armed 

Forces. This is information will be part of a new reporting requirement to Congress. 

The discussion draft also would require surveys of those in the Armed Forces to 

assess their experiences with the TAP counseling, information and services provided 

to include quality of instruction and courses and their opinion on if their transition 

needs were adequately met. The survey will also seek to identify barriers or obstacles of members in accessing the services or counseling. There will be a second survey undertaken after transition has fully taken place which will ask about their employment history since separation or retirement, if they have been in receipt of unemployment benefits, if they pursued further education, have joined a Veterans 

Service Organization or other veterans support group, and will seek details on the 

satisfaction of their separation, and any challenges they may have faced. If married 

during separation some of the survey questions would include the spouse experiences. The survey will also request recommendations for improvement in the counseling and assistance provided in connection with transition. 

AMVETS is excited about the provisions which focus on career readiness and professional development to include resume assistance, interview and job recruitment 

training, behavioral, educational and financial services, legal and benefits assistance, and non-clinical case management. 

We are also pleased that the measure would establish a governing board to support prevention of drug overdoses, suicides, alcohol-related deaths and homelessness 

among veterans through strategic partnerships with a vast array of established Federal and community entities. The board would also track substance abuse and suicide rates in addition to its outreach and support. Economic risk factors which may 

affect suicide prevention efforts will also be reported on. 

AMVETS believes this is a strong discussion draft, and that if the new measures 

are added to enhance the current Transition Assistance Program are implemented 

correctly, that it will go a long way toward not only encouraging post-transition employment but will address risk factors that can lead to feelings of desperation and 
99 

sometimes suicide. We applaud the work of the Senators Crapo, Tester, Cassidy and 

Sullivan on this in-depth, well thought out reform plan. 

DRAFT VETERANS DENTAL CARE ELIGIBILITY EXPANSION AND ENHANCEMENT

ACT OF 2018

AMVETS supports this Draft measure 

AMVETS supports Section 2 of this measure and amending Section 1710(c) of title 

38 to ensure that eligible veterans may be provided dental services and treatment 

and dental applications needed to restore functioning that was lost due to the hospital care, medical services or nursing home care the veteran received under Section 

1710. 

Section 3 would initiate a three-year pilot program that would provide dental 

services and treatments to veterans currently enrolled as a patient in the Department of Veterans Affairs (VA) who are not eligible for dental services, treatment 

and related appliances. The services provided would be consistent with those currently provided to veterans who are 100% service-connected, and applicable co-pays 

would be collected commensurate to current copays authorized for medical care 

under chapter 17 of title 38. 

The pilot would take place in at least 16 locations and serve up to 100,000 veterans and there would be a reporting requirement to include assessments and cost 

analysis of the pilot. 

Sections 4 and 5 would allow the VA to lease a dental clinic in states where VA 

does not have a facility that offers onsite dental services along with an appropriation of $10,000,000 to carry this out; and would develop a dental health education 

program for enrolled veterans. 

Section 6 expands the dental insurance pilot established by section 17.169 of title 

38 to allow private sector dental care providers information to VA on dental care 

furnished to veterans within the pilot and extend the pilot for two years. 

Section 7 would establish a VA demonstration program to establish programs to 

train and employ alternative dental health care providers to increase access to dental care for veterans who are eligible to receive dental services from VA. The full amount of appropriations for this Act, if implemented is $500,000,000, 

over a five-year period not including section 4. 

AMVETS understands that dental care is vital to the overall health of an individual, and a common complaint we hear from our members is their inability to either access affordable dentistry or that a dental procedure was delayed to the point 

that something small turned into an incredibly expensive procedure. Sometimes due 

to delays they have to have teeth pulled. AMVETS supports the proposed pilot and 

the positive health outcomes it can provide veterans. 

DRAFT VA HIRING ENHANCEMENT ACT

AMVETS supports this Draft measure 

AMVETS supports the intention of this draft, which seeks to allow the Department of Veterans Affairs the ability to waive non-compete covenants made with a 

non-VA facility when aiming to hire a VA physician. This step can assist in widening the pool of those eligible to apply to become a physician at the VA, and lead 

to filling vacancies in a more effective manner. 

DRAFT BILL TO REQUIRE THE SECRETARY OF VETERANS AFFAIRS TO ESTABLISH A PROGRAM TO AWARD GRANTS TO PERSON TO PROVIDE AND COORDINATE THE PROVISION

OF SUICIDE PREVENTION SERVICES FOR VETERANS TRANSITIONING FROM SERVICE IN

THE ARMED FORCES WHO ARE AT RISK OF SUICIDE AND FOR THEIR FAMILIES AND

OTHER PURPOSES

AMVETS supports this Draft measure 

AMVETS strongly supports this draft, and is pleased that it seeks to reach our 

most vulnerable transitioning veterans at the highest risk of suicide by not only 

working with people who are trained in understanding when someone is at high 

risk, but who have developed strategies to meet them where they are an assist in 

multiple levels including mental health, peer support, financial planning, temporary 

transportation if needed, and child care. 

We think the establishment of a VA Program that offers grants to persons/groups 

to coordinate suicide prevention services to veterans who would be eligible for 3 

years after separating. It gives priority to veterans who are currently not being seen 

within VHA, but the veteran must be notified that the Department is funding the 

care. It also prioritizes rural areas, those areas that have experienced a high rate 

of veteran suicide, and places where no health care is furnished by VA. 
100 

DRAFT MODERNIZATION OF MEDICAL RECORDS ACCESS FOR VETERANS ACT

AMVETS opposes this Draft measure 

We owe it to our veterans to protect them and sensitive information regarding 

their health care. HIPPA laws exist for a reason and we are concerned that, 

encrypted or not, a portable credit card device could easily be lost, or tampered with, 

or could put sensitive information in the wrong hands. We also owe it to our veterans, as more and more are being seen in the private sector, to have the Department of Veterans Affairs devise a secure information sharing framework where a 

patient’s information can be shared with private sector medical providers with the 

approval of the patient. This bill relieves VA of that responsibility and at what cost? 

At some point, we have faith that CERNER will have developed just this capability, 

but in the meantime this type of measure can easily go down a dangerous road, especially with no authorization of appropriations. We have seen all too much recently, the proposals to cut one form of veterans’ benefits in order to fund another. 

In this situation we have faith that record sharing can be made amenable for the 

veterans of all populations, some of whom are homeless, and that the burden will 

not be placed on them to protect their own information, but that the system designed to care for them will figure out a way to do just that. The private sector has 

figured it out and there is no reason to complicate this. 

Thank you for the opportunity to provide a statement for the record for this legislative hearing. 

Please do not hesitate to reach out to AMVETS with any follow up questions or 

concerns. 

JOINT WRITTEN TESTIMONY OF HON. TIM S. MCCLAIN, CHAIRMAN, BOARD OF DIRECTORS AND MR. JAMES LORRAINE, PRESIDENT & CEO, AMERICA’S WARRIOR PARTNERSHIP, AUGUSTA, GA 

Testimony in Support of: 

• ‘‘Discussion Draft on Transition Assistance reform’’ 

• S.lll(Cassidy), An Act to establish a program to award grants to coordinate 

the provision of suicide prevention 

• S. 1990 (Tester/Blumenthal/Hirono), Dependency and Indemnity Compensation 

Improvement Action of 2017 

• S. 2485 (Sullivan), Medal of Honor Surviving Spouses Recognition Act of 2018 

CHAIRMAN ISAKSON, RANKING MEMBER TESTER, AND MEMBERS OF THE COMMITTEE: Thank you for the opportunity to provide testimony today on several pieces 

of proposed legislation that offer the potential to have tremendous impact on our 

Nation’s veterans. I am Tim McClain and have had the honor of serving our country 

on active duty for more than 20 years as a Navy Surface Warfare Officer and JAG 

Corps Officer, and the privilege of serving as a former General Counsel for the U.S. 

Department of Veterans Affairs (VA). 

I am currently the Chairman of the Board of Directors of America’s Warrior Partnership, a nonprofit organization serving veterans and their families. Our mission 

at America’s Warrior Partnership is to empower communities to empower veterans. 

Our approach to the mission takes many forms, but it starts with connecting community organizations with local veterans to understand their unique needs and situations. After gaining this knowledge, we connect local veteran-serving organizations 

with the appropriate resources, services and partners that the veteran requires. Our 

ultimate goal is to create a better quality of life for all veterans. 

Our Community Integration model provides the framework for organizations to 

conduct proactive outreach to veterans and holistically serve all of their needs. We 

have seen incredible results from this model, which has established relationships 

with more than 42,000 veterans since February 2014 in our eight Affiliate Communities across the country. Proactive outreach is having a tremendous impact on 

these veterans. More than 90% of our veterans self-report that America’s Warrior 

Partnership’s proactive engagement and support give them a greater level of overall 
101 

satisfaction, and they believe their community really cares about their well-being. 

America’s Warrior Partnership’s Community Integration model works. 

Providing testimony with me today is the president and CEO of America’s Warrior 

Partnership, Mr. Jim Lorraine, who is also a veteran of our great country having 

served for 22 years as an Air Force Officer and Flight Nurse. Prior to founding 

America’s Warrior Partnership, Mr. Lorraine served as the founding director of the 

United States Special Operations Command Care Coalition, a wounded warrior advocacy organization recognized as the gold standard in supporting more than 4,000 

special operations force wounded, ill, or injured and their families. He has also 

served as Special Assistant for Warrior and Family Support to the Chairman, Joint 

Chiefs of Staff, during which time he transformed the Chairman’s ‘‘Sea of Goodwill’’ 

concept into a strategy. Mr. Lorraine will provide America’s Warrior Partnership’s 

testimony regarding four pieces of proposed legislation. 

MR. LORRAINE. Thank you, Mr. McClain. In my testimony today, I will first address the draft of the proposed legislation on Transition Assistance Program reform. 

We believe this reform establishes a very important goal for improving services 

to our Nation’s warriors and that, in theory, it could have a very positive impact 

on veterans and the community. We fully support and embrace a holistic approach 

to serving veterans’ needs, as evidenced by our mission and work at America’s Warrior Partnership. We have seen first-hand the positive effects that proactive outreach has on veterans, and we are pleased that this reform both acknowledges this 

fact and empowers organizations to conduct this outreach. Specifically, including 

communities in the Transition Assistance Program reform through the proposed 

grant program will be revolutionary in the ability to locally transition veterans and 

measure long-term outcomes. The draft legislation is the first comprehensive legislative approach to assisting military members in their transition to civilian life. All 

of the requirements in the draft are sorely needed. However, we would like to state 

how important collaboration among the Department of Defense (DOD), Department 

of Labor (DoL) and the VA is to the success of this reform. Each department brings 

their strength to transition, but we strongly feel DoL is in the best position to administer the community interface since the path to success is employment. With 

greater DoL emphasis during pre-transition training, the end result will prove 

measurable and impactful. 

Additionally, the notion of these departments working together to implement the 

Transition Assistance Program has been the mission for many years, but it has not 

proven as effective as intended. Strong engagement and support from the DOD, DoL 

and the VA collectively is essential to achieving the goal of real and lasting reform 

in warrior transition. I want to reiterate that we at America’s Warrior Partnership 

fully support the goal of this reform, and respectfully offer our constructive input 

based on experience in order to make this reform even stronger by stressing the importance of collaboration, a principle that also forms the foundation of our own organization’s work. 

The second piece of legislation I would like to comment on concerns the establishment of a grant program to support suicide prevention services. The VA reported 

earlier this year that, on average, 20 veterans die by suicide every day. This is an 

alarming public health concern that affects every community in the country, and 

this legislation is a step in the right direction of ensuring veteran-serving professionals have the means to proactively help at-risk veterans. The financial support 

offered by this program will bolster the work of researchers who are currently 

studying the indicators and risk factors of suicide and self-harm among veterans. 

Our team at America’s Warrior Partnership is collaborating on one such study with 

University of Alabama researchers through funding from the Bristol-Myers Squibb 

Foundation. This project, called Operation Deep Dive, is the first of its kind to 

evaluate the role that community environments and less-than-honorable discharges 

may have in suicide among veterans, among other factors. The goal of the study is 

to provide actionable insights that can guide the development of effective programs 

for reducing self-harm among veterans. The findings provided by projects such as 

Operation Deep Dive, combined with the support of this grant program, are critical 

elements that will empower communities to help veterans live and thrive long after 

their service is complete. 

My third testimony addresses Senate Bill 1990, which would increase dependency 

and indemnity compensation to surviving family members of veterans who were 

rated totally disabled at time of death. Military families serve in their own way by 

supporting their loved ones both during active duty and in their transition to civilian life. The service and sacrifice of our veterans may at times result in a disability 

that puts significant strain on the veteran and their family members who care for 

them. Our team at America’s Warrior Partnership and the affiliate communities 

that we collaborate with understand these sacrifices, which is why our holistic ap-
102 

proach to serving veterans is always inclusive of their families as well. This bill has 

the potential to offer a lifeline to the families of disabled veterans who need it most. 

Finally, I would like to comment on Senate Bill 2485, which would provide payment of a special pension to the surviving spouse of a deceased Medal of Honor recipient. Our Nation’s Medal of Honor recipients go above and beyond the call of 

duty, and we as a nation owe them nothing less in return. America’s Warrior Partnership is honored to have two Medal of Honor recipients serve on our board of directors. Their integrity and example continue to guide our mission of empowering 

communities to empower veterans, and the support provided by this legislation can 

help the families of Medal of Honor recipients continue their legacy long after their 

service is complete. 

I appreciate the opportunity to comment on these critical areas and will now let 

Mr. McClain conclude our testimony. 

MR. MCCLAIN. Thank you, Mr. Lorraine. 

Chairman Isakson, thank you for inviting us to provide testimony today. We are 

both honored and pleased to have this opportunity. Our mission is the same as the 

mission of this Committee: to ensure that all veterans are taken care of and provided the benefits that they have rightfully earned through their service to our 

country. There is much work to be done, and we look forward to continue collaborating with the Department of Veterans Affairs and our partners across the country 

to empower veterans from all walks of life as they transition to civilian life. 

Thank you again for the invitation to share our testimony today. 
103 

PREPARED STATEMENT SUBMITTED BY CINTHIA JOHNSON, INTERIM EXECUTIVE

DIRECTOR, CONNECTICUT VETERANS LEGAL CENTER
104 

disorder and other mental health issues, along with increased income. The study, which was 

funded by Bristol Myers-Squibb Foundation, enrolled 950 veterans between 2014 and 2016 

across two states. The typical legal intervention studied only cost between $207 and $405- a 

small amount relative to the annual costs of providing medical care for the chronically homeless 

and mentally ill. 

The legal community has responded to the legal needs of veterans by opening over 140 clinics in 

VA facilities. VA leadership nationally and locally has embraced the mission of these clinics 

resulting in continued demand and growth. VA visibility and interest in these innovative, 

public/private strategies have led to the establishment of a VA working group focused on 

building medical-legal partnerships, as well as an internal blog post by the VA Secretary in 

support of this work. 

Unfortunately, the capacity of existing legal aid programs, including CVLC, pales in comparison 

to the scope of the problem. Many legal programs serving veterans are volunteer-only, providing 

advice once a month on a limited number oflegal topics. Most importantly, few if any veterans 

in rural areas have any access to legal help at all. Given that the number of homeless veterans has 

recently increased after years of significant decline, Section 3 of the Homeless Veterans 

Prevention Act of2017 provides an urgently needed, cost-effective way to reduce homelessness 

and improve mental health for veterans everywhere. 

CVLC applauds the Committee's leadership in considering this important legislation to address 

the legal needs of our nation's veterans. Again, thank you for the opportunity to share our views 

in support of S. I 072, and please do not hesitate to contact us if we may provide any additional 

information or assistance. 

Sincerely, 

Cinthia Johnson 

Interim Executive Director 

Connecticut Veterans Legal Center 

114 Boston Post Rd., 2"d Floor 

West Haven, CT 06516 

203-433-2852 

cjohnson(nctvetcranslegal.org 
105 

July 23, 2018 

The Honorable Johnny Isakson 

Chairman 

U.S. Senate Committee on Veterans Affairs 

Dear Chairman Isakson and Ranking Member Tester, 

The Honorable Jon Tester 

Ranking Member 

U.S. Senate Committee on Veterans Affairs 

We write collectively on behalf of the undersigned non-profit veterans legal clinics, including law 

school clinics, medical-legal partnerships, and others who provide legal aid to veterans on a wide range of 

matters. We respectfully urge you to ensure the VA provision of funding for veterans' legal services 

through the Homeless Veterans Prevention Act of2017. 

There is no question that the existing resources to support veteran access to legal resources are 

insufficient and leaves vulnerable veterans without critical legal resources to ensure their well-being. 

Indeed, the VA's annual survey of homeless veterans and service providers cites legal problems as a key 

factor in persistent homelessness for veterans. Public interest and pro bono attorneys assist veterans in a 

variety of ways to improve their mental and physical health and quality of life. We act to prevent 

unnecessary evictions that contribute to the crisis of veteran homelessness, and stabilize veterans' 

incomes through representation in VA benefits and other legal matters. Compared to the civilian 

population, veterans arc at increased risk of homclcssncss and arc more likcly to experience disabilities 

and poor health, and thousands of veterans have been victims of sexual assault. These complex chaJienges 

create legal problems that can be resolved with the help of a skiJied attorney. A recent study published in 

Health Affairs in December 2017 found that veterans who received legal representation showed 

significant reductions in homclessness, substance abuse, and symptoms of posttraumatic stress disorder 

and other mental health issues, along with increased income. Veterans, particularly those who face 

homelcssncss and challenges posed by service-connected disabilities, deserve high-quality, free legal 

representation that can improve their lives, and this committee is best equipped to ensure access to that 

critical resource. 

There could be no greater way to care for our veterans than enabling them access to legal services 

through the provision of VA funding for those services. W c commend the bipartisan efforts made in the 

creation of this Act, and urge you to ensure that the provision of quality care to veterans in crisis includes 

hclping with their legal problems. 

W c respectfully urge you to ensure the VA provision of funding for veterans' legal services 

through passage of S. I 072, the Homeless Veterans Prevention Act of 2017. 

Sincerely, 
106 

SIGN-ON LIST FOR VETERANS HOMELESSNESS PREVENTION ACT 

ALPHABETIZED BY SIGNATORY'S LAST NAME 

As of7/23/2018 

Antoinette Balta, Esq., LLM 

President and Co-Founder 

Veterans Legal Institute 

Debora J. Bell, PhD 

Director 

University of Missouri Psychological Services Clinic 

Steven Berenson 

Professor of Law 

Veterans Legal Assistance Clinic Thomas Jefferson 

School of Law 

Barbara Buckley, Esq. 

Executive Director 

Legal Aid Center of S outhem Nevada, Inc. 

Coco Culhane 

Director 

Veteran Advocacy Proj eel 

Angela K. Drake* 

Director 

University of Missouri School of Law Veterans Clinic 

*in her individual capaci~v only 

Bruce F. Fain 

Chair 

Veterans Law Section of the State Bar of Montana 

Ryan Foley 

Operation Sacred Trust Fellow 

Veterans Rights Project 

University of Miami School of Law-Health Rights 

Clinic 

Betsy Gwin* 

Associate Director 

Veterans Legal Clinic 

Legal Services Center of Harvard Law School 

*In her individual capacity 

James A. Ban·ett 

Executive Director 

Veterans Law Project 

Pisgah Legal Services 

Paul D. Bennett 

Former Director 

Veterans Advocacy Law Clinic 

University of Arizona 

James E. Rogers College of Law 

Michael Blecker 

Executive Director 

Swords to Plowshares 

Margaret A. Costello 

Assoc. Prof. and Director 

Veterans Law Clinic 

University of Detroit Mercy School of Law 

Robert R. Davis 

Senior Attomey 

Veterans Legal Services Proj eel, Charlotte Center 

for Legal Advocacy 

Y elena Duterte 

Director 

Wohl Family Veterans Legal Clinic 

Syracuse University College of Law 

Spencer Fair 

Coordinating Attorney 

Knoxville Veterans Legal Advice Clinic 

Beth Goldman 

President & Attorney-in-Charge New York Legal 

Assistance Group 

Hon. Leslie Halligan 

Montana District Judge and President of the 

State Bar of Montana 
107 

Sara Huffman 

Managing Attorney 

Medical-Legal Partnership for Seniors- Veterans 

Project (MLPS-V) 

University of California, Hastings College of the Law 

Cinthia Johnson 

Interim Executive Director 

Connecticut Veterans Legal Center 

Ellen Lawton, 10 

The National Center for Medical-Legal Partnership 

Department of Health Policy & Management 

The Mil ken Institute School of Public Health 

The George Washington University 

Jude Litzenberger 

Executive Director and Supervising Attorney 

California Veterans Legal Task Force 

Jason W. Manne, J.D., Dr.PH* 

Adjunct Professor of Law 

Pitt Law Veterans Practicum 

*signing in his individual capacity 

Hugh McClean 

Assistant Professor of Law 

Director 

V cterans Advocacy Clinic 

University of Baltimore School of Law 

Jennifer R. Monell 

Staff Attorney & Interim Director 

Veterans Law Clinic 

Widener University Delaware Law 

John Mudd 

Executive Director 

State Bar of Montana 

Jennifer D. Oliva 

Associate Professor of Law and Public Health 

Director 

WVU Veterans Advocacy Clinic 

West Virginia University College of Law 

Kristine A. Huskey 

Assistant Clinical Professor and Director 

Veterans'Advocacy Law Clinic 

James E. Rogers College of Law 

The University of Arizona 

Jon Killoran 

Senior Staff Attorney 

Inner City Law Center 

Robert J. LeClair 

Executive Director 

Hawaii Justice Foundation 

Timothy M. MacArthur 

Director & Clinical Professor 

Mason Veterans and Servicemembers Legal Clinic 

(M-VETS) 

Antonin Scalia Law School 

George Mason University 

Jessica Marsden* 

Equal Justice Works Fellow 

University of North Carolina School of Law 

*Affiliation listed for identification purposes only 

Robyn Mehlenbeck, PhD, ABPP 

Director 

GMU Center for Psychological Services 

George Mason University 

Margaret Morrow 

Executive Director & CEO 

Public Counsel 

JaNel Newman 

Clinical Professor 

Director 

Health Rights Clinic 

University of Miami School of Law 

Martin D. Parsons 

Director/ Adjunct Professor 

SIU School of Law 

Veterans' Legal Assistance Program 
108 

Raphael Podolsky 

Attorney 

Connecticut Legal Services, Inc. 

Patricia E. Roberts 

President of the Board 

National Law School Veterans Clinic Consortium 

And 

Lewis B. Puller, Jr. Veterans Benefits Clinic 

William & Mary Law School 

Stacey-Rae Simcox, Esq. 

Director 

Veterans Law Institute 

Stetson University College of Law 

Sarah R. Sullivan 

President and CEO 

Jericho Road Legal Service Ministry, Inc. 

lillian Tadrzynski, 

Military Assistance Project (MAP) 

Matt Thorn 

President & CEO 

OutServe-SLDN 

Ann S. Vessels 

Professor ofthe Practice 

Director 

Veterans Advocacy Project 

University of Denver Sturm College of Law 

Jo-Ann Wallace 

President & CEO 

National Legal Aid and Defender Association 

Will Watts 

Co-Director 

Veterans Legal Clinic 

UCLA School of Law 

Patricia A. Wrona 

Director of Legal Services 

CARPLS 

Member, Illinois Armed Forces Legal Aid Network 

James Preis 

Executive Director 

Mental Health Advocacy Services, Inc. 

Jeffrey Selbin 

Director 

Policy Advocacy Clinic 

UC Berkeley School of Law 

Sara Sommarstrom 

Vetlaw Director 

Minnesota Assistance Council for V cterans 

Melissa Swain 

Associate Director 

Health Rights Clinic 

University of Miami School of law 

Michael Taub, Esq. 

Director 

The Veterans Project 

The Homeless Advocacy Project 

John W. Thyden 

Senior Partner 

Thyden, Gross & Callahan, LLP 

Michele R. Vollmer 

Director 

Veterans and Servicemembers Legal Clinic 

Clinical Professor of Law 

Penn State Law 

The Pennsylvania State University, University Park 

Professor Hillary Wandler* 

Director 

Veterans Advocacy Clinic 

Alexander Blewett III School of Law at the 

University of Montana 

*not lobbying on behalf of the University of 

Montana. 

Matthew Wilcut 

Attorney 

Deuterman Law Group 
109 

PREPARED STATEMENT OF JEREMY M. VILLANUEVA, ASSOCIATE NATIONAL

LEGISLATIVE DIRECTOR, DISABLED AMERICAN VETERANS

MR. CHAIRMAN AND MEMBERS OF THE COMMITTEE: Thank you for inviting DAV 

(Disabled American Veterans) to submit testimony for the record of this legislative 

hearing of the Senate Veterans’ Affairs Committee. As you know, DAV is a non-profit veterans service organization comprised of more than one million wartime servicedisabled veterans that is dedicated to a single purpose: empowering veterans to lead 

high-quality lives with respect and dignity. DAV is pleased to offer our views on the 

bills under consideration by the Committee. 

H.R. 299, BLUE WATER NAVY VIETNAM VETERANS ACT OF 2018

H.R. 299 was passed by the House of Representatives with a vote of 382 to 0 on 

June 25, 2018. 

Section 2 (Clarification of Presumptions of Exposure for Veterans Who Served in 

Vicinity of Republic of Vietnam) would provide presumption of service connection for 

herbicide exposure for Vietnam era veterans with service in the waters offshore. The 

bill defines a location as being offshore of Vietnam if the location is not more than 

12 nautical miles seaward of a line commencing on the southwestern demarcation 

line of the waters of Vietnam and Cambodia and intersecting specific points as 

noted. 

The Agent Orange Act of 1991 required the Department of Veterans Affairs (VA) 

to provide presumptive service connection to Vietnam veterans with illnesses that 

the National Academy of Sciences directly linked to Agent Orange exposure. Yet, in 

2002, the VA decided to cover only veterans who could prove that they had ‘‘boots 

on the ground’’ during the Vietnam War. Because of this decision, thousands of 

Vietnam veterans were excluded from receiving benefits although these ‘‘Blue 

Water’’ Navy veterans had significant Agent Orange exposure from drinking and 

bathing in contaminated water just offshore. It is simply inequitable that veterans 

who served on ships no more distant from the spraying of herbicides than many who 

served on land have been arbitrarily and unjustly denied benefits because they are 

excluded from the presumption of service connection for herbicide-related disabilities. 

DAV strongly supports Section 2 (Clarification of Presumptions of Exposure for 

Veterans Who Served in Vicinity of Republic of Vietnam) based on DAV Resolution 

No. 033, which calls for legislation to expressly provide that the phrase ‘‘served in 

the Republic of Vietnam’’ include service in the territorial waters offshore. 

Enactment of this legislation would provide ‘‘Blue Water’’ Navy Vietnam veterans 

the disability and health care benefits they earned as a result of exposure to Agent 

Orange. Eligibility for VA benefits under this legislation would be retroactive to 

September 25, 1985, the date VA began providing disability compensation to veterans with medical disorders related to Agent Orange providing long overdue justice 

to thousands of veterans who were excluded by the VA in 2002. 

Section 3 (Presumption of Herbicide Exposure for Certain Veterans who served 

in Korea) would recognize September 1, 1967 as the earliest date for exposure to 

herbicides on the Korean demilitarized zone (DMZ). 

Currently, VA regulations provide that any veteran who, during active military, 

naval, or air service, served between April 1, 1968, and August 31, 1971, in a unit 

that, as determined by the Department of Defense, operated in or near the Korean 

DMZ in an area in which herbicides are known to have been applied during that 

period, shall be presumed to have been exposed during such service to an herbicide 

agent. Section 2 would define the exposure to herbicides as a veteran who, during 

active military, naval, or air service, served in or near the Korean DMZ, during the 

period beginning on September 1, 1967, and ending on August 31, 1971. 

In accordance with DAV Resolution No. 090, we also support Section 3, to recognize September 1, 1967, as the earliest date for exposure to herbicides on the Korean DMZ. This change will provide veterans exposed to herbicides on the Korean 

DMZ with greater equity with respect to herbicide exposure and the presumptive 

diseases associated therein. 
110 

Section 4 (Benefits for Children of Certain Thailand Service Veterans born with 

spina bifida) would provide children of veterans exposed to herbicides in Thailand, 

who are suffering from spina bifida, the health care, vocational training and rehabilitation, and monetary allowance required to be paid to the children of Vietnam 

veterans who are suffering from spina bifida. 

VA provides spina bifida-related benefits for the children of Vietnam veterans exposed to herbicides in Vietnam and on the DMZ in Korea. This bill would provide 

the same entitlements to the children of Vietnam era veterans exposed to herbicides 

while serving in Thailand. In accordance with DAV Resolution No. 090, we support 

Section 4, as it provides relief and equity to veterans’ children suffering from the 

devastating effects of spina bifida. 

Section 5 (Updated Report on certain Gulf War Illness study) would require the 

VA to submit to the Committees on Veterans’ Affairs of the House of Representatives and the Senate an updated report on the findings, as of the date of the updated report, of the Follow-up Study of a National Cohort of Gulf War and Gulf Era 

Veterans under the epidemiology program of the VA. 

The VA has recognized certain illnesses associated with Gulf War service in the 

Southwest Asia theater of military operations from August 2, 1990 to the present. 

These medically unexplained illnesses are long-term health problems with significant impairments. 

DAV has significant concern regarding the multitude of ailments reported by a 

growing number of Persian Gulf War veterans who were exposed to both identified 

and unknown health hazards. In accordance with DAV Resolution No. 261, we support Section 5, the requirement for the updated report of the Follow-up Study of a 

National Cohort of Gulf War and Gulf Era Veterans under the epidemiology program of the VA. 

Section 6 (Loans Guaranteed Under Home Loan Programs of Department of Veterans Affairs) would make several changes to the VA Home Loan Guaranty program. First, it would remove the current limit on maximum loan guaranties to align 

it with other Federal home loan programs that allow nonconforming, or ‘‘jumbo’’ 

loans. Second, it would increase the fees charged to veterans using the program by 

approximately .25 percent for nine years, thereafter reverting to the fee schedule as 

it currently exists. It is important to note that veterans with a service-connected disability are currently exempt from paying any home loan guaranty fees. Third, it 

would require that veterans with less than a total disability rating be required to 

pay fees for loan guaranties if they require a jumbo loan guaranty above the conforming limits. These fees would apply to the entire loan guaranty, not just the portion above the limit. 

DAV Resolution No. 002, adopted at our most recent National Convention this 

July in Reno, Nevada, ‘‘... vigorously opposes any recommendations made for the 

purpose of reducing, adding limitations on or eliminating benefits for service-connected disabled veterans and their families.’’ By imposing fees for the first time on 

VA home loan guaranties for service-disabled veterans, this Section would effectively reduce the value of benefits that have already been paid for through their 

service and sacrifice. DAV opposes Section 6 of the bill. 

DAV does not have a resolution specific to Section 7 (Information Gathering for 

Department of Veterans Affairs Home Loan Appraisals) and takes no position on 

this section. 

H.R. 5418, VETERANS AFFAIRS MEDICAL-SURGICAL PURCHASING STABILIZATION ACT

This measure would require the VA to use multiple vendors in procuring medical 

supplies and ensure that the employees responsible for selecting the supplies have 

medical expertise regarding those items. VA currently uses four vendors to purchase 

its medical supplies and employs clinicians on its integrated product teams to select 

those supplies. VA would also be required to submit quarterly reports to the Congress identifying the individual employees at VA who determine which items to purchase for VA’s formulary and describing their medical expertise. 

We urge the Committee ensure this bill requires VA support businesses controlled 

by service-disabled veterans in its medical surgical prime vendor program. DAV 

Resolution No. 306 calls for legislation requiring the Federal Government make 

mandatory set-asides of not less than 3 percent of the total value of all prime and 

subcontract awards to businesses controlled by service-disabled veterans each fiscal 

year. Additionally, it calls for effective monitoring and accountability for Federal 

agencies that are not meeting the set-aside goal of not less than three percent, and 

a mandate to list in their annual reports their prior fiscal year’s actual percentage 

of meeting this goal, the results of which would serve as an annual report card of 
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which agencies need the most assistance in the development and implementation of 

stronger contracting compliance. 

In addition, DAV Resolution No. 277 calls for the provision of all supplies, prosthetic devices and medications, including over-the-counter medication, necessary for 

the proper treatment of service-connected disabled veterans. This recognizes VA’s 

more recent efforts to aggressively standardize durable/disposable equipment, including prosthetics and similar items, to realize greater savings by buying fewer distinct items in greater quantity from fewer suppliers while minimizing the volume 

of government purchase card usage to the detriment to the veteran patient. We support the provision in this measure that would require clinically driven sourcing to 

ensure adequate input from frontline clinical providers with the expertise on the 

specific items within the formulary to ensure veterans receive the prosthetics and 

similar items that promote, preserve, and restore the veteran’s whole health and not 

merely for medical necessity. 

S. 514, NO HERO LEFT UNTREATED ACT

S. 514 would require the VA secretary to carry out a pilot program to provide veterans access to magnetic EEG/EKG-guided resonance therapy (also known as 

transcranial magnetic stimulation or TMS). The year-long pilot program would take 

place at not more than two VA facilities for not more than 50 veterans. VA would 

be required to submit a report about the pilot 90 days after the termination of the 

pilot. 

In 2008, the Food and Drug Administration (FDA) approved TMS for drug resistant major depression. Other applications of TMS to such conditions as to Post Traumatic Stress Disorder (PTSD), Traumatic Brain Injury, chronic pain, and opiate addiction (conditions targeted by this bill) are considered ‘‘off-label’’ meaning that doctors may employ them, but the therapy has not been approved for these purposes. 

Emerging research has shown that TMS does reduce symptoms of PTSD and 

helps with some other issues such as autism and Alzheimer’s although many questions remain about the duration of symptom relief, how to most appropriately administer the treatment and whether TMS is more effective for all conditions than 

more conventional treatments. 

As we understand it, VA does own a significant number of these machines. Some 

are being used in studies, but some are beginning to offer treatment for depression 

under the accepted FDA protocol. 

DAV Resolution No. 277 calls for VA to provide access to complementary and integrative medicine. Likewise, we have consistently called on VA to develop innovative 

approaches to manage and treat mental health conditions (Resolution No. 293). 

While the empirical evidence for TMS applications continue to emerge, DAV believes that veterans deserve access to the promising results of treatment claimed by 

veterans who have used TMS and hopes that additional studies using this technology will yield more information in support of the treatment for other conditions. 

For these reasons, DAV supports S. 514. 

S. 1596, THE BURIAL RIGHTS FOR AMERICAN VETERANS’ EFFORTS (BRAVE) ACT OF 2017

S. 1596 would increase the burial allowance payable to the veteran’s beneficiary 

regardless of whether the death occurs in a VA facility and provides for automatic 

annual adjustments to keep up with future inflation. 

The passage of Public Law 111–275, the Veterans Benefits Act of 2010, resulted 

in an increase in both plot and burial allowance from $300 to $700 for nonserviceconnected deaths in VA facilities. It is indexed to the Consumer Price Index for annual adjustments and currently pays $762. However, it did not address nonserviceconnected deaths that did not occur in VA facilities nor did it address service-connected death burial payments currently at $2000. 

The current $300 burial allowance for nonservice-connected deaths not in VA facilities was last increased in April 1988 and the current $2000 burial allowance for 

service-connected death was last increased in December 2001. 

In 1973, the burial allowance for veterans with no next of kin and non-serviceconnected death was 22 percent of funeral and burial costs. The current $300 burial 

allowance for nonservice-connected deaths not in VA facilities in comparison to the 

average cost of a funeral is about $9,000, decreasing the value of this allowance significantly to approximately 3 percent. 

Service-connected death burial allowance in December 2001 was $2,000 and the 

average funeral cost at that time was $6,000. The payment value was 33 percent 

of the cost. Today, the average funeral cost has increased to $9,000, decreasing the 

value down to 22 percent of the burial allowance benefit, a decrease of 11 percent. 
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We note that the median cost of funerals and burials is rising higher than the 

Consumer Price Index for all urban consumers (CPI-U). S. 1596 would tie the benefit to the CPI-U, providing some needed adjustment; however, in the long-term, the 

benefit will erode if this discrepancy continues. 

Notwithstanding, DAV strongly supports S. 1596, in accordance with DAV Resolution No. 054, adopted at our most recent national convention. Our resolution calls 

on Congress to support legislation to increase the burial allowance payable in the 

case of death due to service-connected disability regardless of whether the death occurs in a VA facility and provide for automatic annual adjustments indexed to the 

cost-of-living increases. 

S. 1952, VA FINANCIAL ACCOUNTABILITY ACT OF 2017

This bill would require VA to contract with a third-party to review and audit its 

financial processes and models for estimating veterans’ demand for services that inform its budget request. It would further require the contractor to make recommendations about improving such models within 180 days of being awarded the contract. VA would then be required to submit a plan for implementing these recommendations within 60 days of completion of the review. VA would appoint an individual to ensure that the third party recommendations are implemented along with 

those pertinent recommendations of the Government Accountability Office, the Special Counsel and VA’s Inspector General. The Secretary would have to justify, within 45 days, any requests for supplemental appropriations. The bill would also require VA’s Chief Financial Officer (CFO) to certify that the budget request is sufficient to provide benefits and services for veterans required by law, and that the 

CFO has made consultations with budget officers throughout the Department to estimate budgets. 

DAV has a long history of supporting predictability and transparency in VA’s 

budget process under DAV Resolution No. 112. We strongly advocated for the passage of Public Law 111–81 which required advanced appropriations for VA’s Medical 

Care account and has subsequently protected veterans from delayed or denied care 

due to government shutdowns. This same law required that GAO submit an analysis of VA’s actuarial models versus its actual obligations in fiscal years 2011, 2012, 

and 2013. We note that in recent years VHA has been compelled to deal with a series of major transitions in health care delivery such as the Veterans Choice Program, and now the VA MISSION Act of 2018 that have drastically changed how the 

Department estimates demand for services. These changes likely account for much 

of the lack of precision in recent budget requests and the subsequent need for supplemental funding. Yet it is important to ensure transparency in these efforts, which 

is why DAV opposed the proposal to consolidate Medical Services and Medical Community Care accounts. 

We believe as VA continues to evolve its practices such as recording community 

care obligations at the date of payment rather than at the date of authorization and 

gains experience with its new contracting authorities, its estimations will likely become more accurate. Nonetheless, DAV understands the importance of accurate 

budget models and processes and therefore are pleased to support S. 1952. 

S. 1990, DEPENDENCY AND INDEMNITY COMPENSATION IMPROVEMENT ACT OF 2017

S. 1990 would increase dependency and indemnity compensation (DIC) for surviving dependents and would lower the threshold of eligibility to allow certain survivors to receive this benefit who currently do not meet the requirements. 

Under title 38, United States Code, § 1318(b)(1), a survivor, is eligible for DIC if 

the veteran was 100 percent permanently and totally disabled for ten years prior 

to death. S. 1990 would ease the 10-year rule for eligibility and replace it with a 

graduated scale of benefits that begins after five years. If a veteran is rated as totally disabled for five years and dies as a result of a non-service-connected cause, 

a survivor would be entitled to 50 percent of total DIC benefits. This concept of the 

percentage of benefits payable based the number of years is applicable for payments 

at 60, 70, 80, 90, and then 100 percent of the DIC amount. 

This bill would increase the DIC base rate as equal to 55 percent of the rate of 

compensation paid to a totally disabled veteran, making it more equitable with rates 

provided to Federal civilian employee survivors, and it would reduce the age allowed 

for a surviving spouse to remarry and maintain their benefits from 57 to 55, consistent with other Federal survivor benefit programs. 

DAV’s Resolution No. 036, which was approved by our members during our most 

recent National Convention, supports legislation to reduce the 10-year rule for DIC 

qualification. 
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DAV strongly supports S. 1990. Not only would this bill reduce the threshold of 

eligibility for certain survivors, it would also create equitable relief in increasing the 

compensation rates paid, and reduce the age allowed for the surviving spouse to remarry and retain their benefits. 

S. 2485, MEDAL OF HONOR SURVIVING SPOUSES RECOGNITION ACT OF 2018

S. 2485 would increase the monthly special pension for Medal of Honor recipients 

and extend eligibility to surviving spouses. 

The bill would codify the increase in the monthly special payment from $1,000 to 

$1,329.58 under title 38, United States Code, § 1562. The bill would allow the special pension to be paid to a surviving spouse upon the veteran’s death. 

DAV does not have a resolution calling for an increase of the monthly special pension for Medal of Honor recipients or expanding eligibility to the pension benefit to 

the surviving spouse upon the death of the veteran. While we have no formal position on S. 2485, we have no objection to its favorable consideration by the 

Committee. 

S. 2748, BATTLE FOR SERVICEMEMBERS ACT

S. 2748 would encourage greater participation in the additional two day training 

program that occurs after the three day required portion of the Transition Assistance Program (TAP). Specifically, a servicemember could choose a two day training 

session on either higher education, technical training, or entrepreneurship. Instead 

of continuing with an opt-in option, the bill would make the training opt-out so that 

more transitioning servicemembers would utilize this important training. According 

to a 2017 GAO report (GAO–18–23), only 14 percent of separating servicemembers 

completed at least one additional two-day training program after completing the 

three day required portion of TAP. 

Mr. Chairman, DAV has no resolution on this particular issue, but believes the 

intent of this legislation is in keeping with the goal of ensuring that all servicemembers have the tools and information needed to successfully transition into civilian life. We therefore have no objection to this legislation’s favorable consideration. 

S. 2881, MARE ISLAND NAVAL CEMETERY TRANSFER ACT

S. 2881 would direct the Secretary of Veterans Affairs to seek to enter into an 

agreement with the city of Vallejo, California, to hand over ownership and care of 

the Mare Island Naval Cemetery to the National Cemetery Administration (NCA). 

Mare Island Naval Shipyard (MINS) was the first United States Navy base established on the Pacific Ocean in 1853. During its time of service, it served as the main 

shipyard for naval operations in the Pacific and housed the United States Marine 

Corps’ Recruit Depot from 1911 to 1923. The shipyard was identified for closure during the Base Realignment and Closure (BRAC) process of 1993 and was decommissioned in 1996. Since that time the city of Vallejo has owned the property. 

The Mare Island Naval Cemetery was established in 1854 and continued internments until 1921. Notable internments are the daughter of Star Spangled Banner 

composer Francis Scott Key and three Medal of Honor recipients. It currently is the 

final resting place for more than 800 individuals, most of them veterans. It was included in the National Register of Historic Places in 1975. 

After the closure in 1996, the cemetery fell into disrepair. Multiple structural 

issues have been noted—tombstones are crumbling, and most of the maintenance 

is done through volunteer efforts. The estimated cost for repairing the cemetery and 

future upkeep is currently at $15 million. 

DAV does not have a resolution that addresses this issue and takes no position 

on this bill; however, we understand that there are local options that could be pursued to resolve this issue that would not divert resources and funding from National 

Cemeteries that are still accepting new internments. 

S. 3184, TO MODIFY THE REQUIREMENTS FOR APPLICATIONS FOR CONSTRUCTION OF

STATE HOME FACILITIES TO INCREASE THE MAXIMUM PERCENTAGE OF NON-VETERANS

ALLOWED TO BE TREATED AT SUCH FACILITIES

State Veterans Homes are long term care facilities operated by states in partnership with the Federal Government. States receive matching grants from VA to construct, expand, rehabilitate and repair State Veterans Homes, with VA providing up 

to 65 percent and states providing at least 35 percent of the cost of the project. State 

Veterans Homes are constructed and operated principally to care for veterans, and 

current law requires that no more than 25 percent of occupied beds can be filled 

by non-veterans, such as spouses or parents as determined by individual states. 
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State Veterans Homes offer three levels of care: Nursing Home Care; Domiciliary 

Care; and Adult Day Health Care (ADHC), with VA providing per diem payments 

to states for the care of eligible veterans for each level of care. For nursing home 

care, the State Veterans Home receives a basic per diem payment for each eligible 

veteran, equal to approximately 30 percent of the total daily cost of care, with states 

required to cover the balance through other sources, including payments from veterans. Some veterans qualify for a higher per diem rate due to their service-connected disabilities, which is intended to cover the full cost of their care, and constitutes payment in full to the State Veterans Home. 

This bill would amend current law to allow spouses or parents of veterans to occupy up to 40 percent of the total occupied beds in a State Veteran Home if its occupancy rate is less than 90 percent. This legislation is intended to allow additional 

spouses or parents to occupy open beds, often joining their veteran spouse or child, 

when there are no eligible veterans seeking admission to the State Veterans Home. 

DAV is a strong supporter of State Veterans Homes. This bill intends to assist 

State Homes utilize available capacity, thereby increasing cost-effectiveness and financial viability, while also improving the quality of life for certain veterans and 

spouse by keeping couples together. DAV has no resolution on this specific issue and 

takes no formal position on the bill. Because we do not know how this proposed policy will affect State Veterans Homes across the country, we want to ensure serviceconnected veterans are not disadvantaged or otherwise delayed or denied placement. 

Accordingly, we recommend the Committee consider other reasonable options, such 

as adding reporting requirements to the bill to assess how it affects service-connected veterans’ admission to State Veterans Homes, using a waiver authority to 

the current occupancy rule, or a starting a pilot program in select locations. 

DRAFT BILL, VA HIRING ENHANCEMENT ACT

This draft bill would render ‘‘non-compete’’ agreements between an applicant for 

VA employment and a previous employer non-applicable with regard to VA employment. Employees appointed with this understanding would be required to serve out 

the length of their non-compete agreement within their VA position or serve in that 

position for at least one year (whichever is longer). The bill intends to allow VA, 

on a contingent basis, to begin recruiting and hiring physicians up to two years before they complete their residency, as well as physicians who have completed their 

residencies leading to board certification. These contingent appointed physicians 

must satisfy VA’s requirements to receive a permanent appointment. 

We appreciate the goal of this legislation aimed at creating as large an applicant 

pool for qualified medical professionals to treat our service-disabled veterans as possible in VA. DAV Resolution No. 129 calls for effective recruitment, retention and 

development of the VA health care workforce. Because this measure attempts to reduce barriers for employment at VA for physicians; we are pleased to support the 

bill’s passage. 

DRAFT BILL, VETERANS DENTAL CARE ELIGIBILITY EXPANSION AND

ENHANCEMENT ACT OF 2018

The ‘‘Veterans Dental Care Eligibility Expansion and Enhancement Act of 2018’’ 

would require VA to offer restorative dental services to those who lose functioning 

as a result of dental services or treatment rendered by VA. It would also require 

the Secretary to develop a pilot program to assess the feasibility and advisability 

of offering dental care to all enrolled veterans. 

The pilot program would begin 540 days after enactment and take place in at 

least 16 medical centers including: four centers with established dental clinics; four 

centers with a contract for dental services; four community-based outpatient clinics 

with space available to furnish care; and, four federally qualified health centers of 

which at least one must be a facility the Indian Health Service with established 

dental clinics. Not more than 100,000 veterans would participate in the program on 

a voluntary basis. Services would include those available to veterans with servicerelated disabilities rated by VA at 100 percent. Veterans must contribute to the cost 

of their dental care in a manner consistent with the copayments required of them 

for VA medical care and services. 

Site selection for the selected participating medical centers would consider rural 

facilities; facilities distant from military installations and would represent the various geographic locations (or census tracts) identified by the Bureau of the Census. 

VA would determine the appropriate performance standards and metrics for each 

contract entered under the pilot, as well as specifying how compliance is to be 

measured. 
115 

VA would be required to report 540 days after enactment and 3 years after the 

date the program commences about the implementation and operation of the pilot 

program in addition to the number of veterans receiving services, an analysis of the 

costs and benefits associated with the program as well as findings and conclusions. 

The bill would also require the Secretary to construct or lease dental clinics in 

states in which the Department does not have onsite dental services and would appropriate $10 million in emergency funding to support construction or lease of such 

facilities. 

The legislation further specifies an educational program VA would be required to 

operate. The program would promote dental health and include information about 

common dental conditions, treatment options and options for obtaining access to 

dental care including defining eligibility for VA services, options available through 

State or local governments or nonprofit agencies; purchasing private dental insurance or obtaining free or low cost care through federally qualified health centers or 

dental schools. It would also require VA to develop written material with this information, including for blind or visually impaired veterans. 

The bill would further require VA to develop a mechanism for private sector providers working with veterans under the dental insurance pilot program (established 

under § 17.169 of title 38, Code of Federal Regulations) to share information in VA 

electronic medical records. The bill would give the Secretary the discretion to continue the pilot for an additional two years after the termination date in order to 

assess the mechanism for sharing this information. Individual veterans would be 

given the option of participating in this part of the pilot. 

The draft legislation contains a demonstration program to train and employ alternative dental health care providers in rural and underserved areas to increase veterans’ access to dental care. 

Finally, the bill would authorize an additional $500 million in fiscal year 2020, 

to be available for five years, for the provisions of this act excluding the construction 

or major lease funding. 

DAV recognizes that oral health is integral to the general health and well-being 

of a patient and is part of comprehensive health care. According to a 2000 report 

by the Surgeon General of the United States, Oral Health in America, individuals 

who are medically compromised or who have disabilities are at greater risk for oral 

diseases, and, in turn, oral diseases further jeopardize their health. Likewise, such 

diseases are progressive, cumulative and become more complex over time, and can 

affect economic productivity and compromise the ability of someone to work, and 

often significantly diminish their quality of life. 

Irrespective of service-connected disability, section 1701(9), title 38, United States 

Code, defines ‘‘preventive health services’’ as a broad collection of VA health services 

that improve, protect and sustain the general health and well-being of veterans enrolled in VA health care, to include ‘‘such other health care services as the Secretary 

may determine to be necessary to provide effective and economical preventive health 

care’’ 

For these reasons, DAV supports a dental benefit for all enrolled service-connected veterans in accordance with DAV Resolution No. 018. 

DRAFT BILL, TO REQUIRE THE SECRETARY OF VETERANS AFFAIRS TO ESTABLISH A PROGRAM TO AWARD GRANTS TO PERSONS TO PROVIDE AND COORDINATE THE PROVISION

OF SUICIDE PREVENTION SERVICES FOR VETERANS TRANSITIONING FROM SERVICE IN

THE ARMED FORCES WHO ARE AT RISK OF SUICIDE AND FOR THEIR FAMILIES

This draft bill would authorize grants to individuals for the purpose of providing 

and coordinating suicide prevention services for eligible veterans or a family member of a veteran who is within 3 years of being discharged from military service and 

may be at risk of suicide. 

The grant applicant would be required to identify how they would deliver suicide 

prevention services and any previous experience with providing or coordinating such 

services with veterans and their family members including outreach to at risk veterans, screening, education about veterans at risk for families and communities, 

case management, peer support, and assistance with obtaining benefits, temporary 

assistance with transportation, personal financial planning, legal services, and other 

services, such as family support and child care. 

The Secretary would be required to give priority to applicants serving areas of the 

country that have experienced a high burden of veteran suicide, areas where no 

health care is furnished by the Department or rural and tribal areas of the country. 

DAV is extremely sensitive to the post-deployment mental health and readjustment needs of veterans and the challenges they often face during transition from 

military to civilian life. The intent of this draft legislation and its apparent goal of 
116 

utilizing individuals to help prevent veteran suicides in locations where services are 

limited or non-existent is notable. 

While we appreciate the intent of the bill, DAV is concerned about the quality of 

care that may be delivered by applicants and the difficulty in providing oversight 

for such an award program and individual grant recipients. DAV believes that the 

range and intensity of mental health programs VA and VA’s Readjustment Counseling Service offers and delivers—from peer-to-peer support, outpatient, in-patient 

and a compliment of specialized services for PTSD, substance use disorder and 

homelessness provide the depth, breath and quality of care necessary to meet the 

mental health care needs of veterans during their initial transition period. 

In addition, as VA grapples with establishing the new contract program combining existing contracting policies and programs into one under the VA MISSION 

Act of 2018, DAV has concerns about embracing a new grant program that would 

require VA to fund and monitor the provision of additional care in the private sector 

to individual persons. We also believe that, under the auspices of the VA MISSION 

Act, many of the goals of promoting access and availability to remote vulnerable veterans can be achieved with knowledgeable vetted providers. We, therefore, do not 

support this discussion draft bill. 

DRAFT BILL, MODERNIZATION OF MEDICAL RECORDS ACCESS FOR VETERANS ACT

VA is in the process of a sea change in managing its medical information. Last 

June, VA announced it would contract with Cerner to create a new platform for 

managing electronic health records. The goal of this contract is for VA to have information that is more interoperable with the Department of Defense, academic affiliates, and other community providers. This is a critical tool enabling providers to 

transfer information within the VA and with its partners—done correctly, it could 

assist in coordinating care, timely scheduling of appointments, eliminating duplicative services, ensuring patient safety, assessing organizational performance and easing administrative burdens, including quality assurance and billing. It is a massive 

undertaking that will likely take billions of dollars and staff and contractor hours 

to implement. 

This draft bill would require VA to develop a pilot program to assess the use of 

a portable medical records storage system to store patient information in order to 

share timely information between VA and community providers. The pilot program 

would run in one VISN for at least one year using a competitively awarded contract 

to develop a portable device no bigger than a credit card to allow veterans to carry 

at least 4 gigabytes of medical information between VA and non-VA providers. 

While some of the goals of this pilot may be similar to those being considered by 

Cerner, it is difficult to understand whether this undertaking would add or detract 

from the larger effort underway. Because the bill appears to approach personal storage of medical information using external hard drives and limits the use of cloud 

storage, we urge the Committee consider including provisions that require tracking 

and mitigation when the security of the portable device is compromised. DAV does 

not have a resolution on VA medical records management and therefore takes no 

position on this draft bill. 

TRANSITION ASSISTANCE REFORM (DISCUSSION DRAFT)

The discussion draft bill on Transition Assistance Reform would provide changes 

to the Transition Assistance Program (TAP) and specific requirements on the Departments of Defense (DOD) and Homeland Security (DHS), to include training requirements, reports to Congress, creation of a five year longitudinal study, inclusion 

of veteran service organizations in TAP, and establishment of a governing board to 

support suicide prevention and substance abuse prevention efforts. 

Section 2 (Recodification, Consolidation, And Improvement of Certain TransitionRelated Counseling and Assistance Authorities) would eliminate the existing title 

10, United States Code, §§ 1142 and 1144 and provide a new statue defining the 

Transition Assistance Program. The proposed new statute would incorporate all of 

the current language from both statutes and continue to address information on civilian employment including labor market information, instruction on resume preparation, job interview techniques and certification and licensure requirements in civilian occupations that correspond to military occupational specialties. 

DAV Resolution No. 298 urges Congress to establish a clear process for military 

training to meet civilian certification and licensure requirements. It is vital to break 

down employment barriers for transitioning servicemembers to successfully adapt to 

civilian life by obtaining the required certification and licensure based on their military occupational specialties. 
117 

The proposed statue would add very specific training requirements for conducting 

TAP. Those requirements would include at least a full day course on general professional development and employment assistance and a full day on the benefits and 

services available under the laws administered by the VA. TAP would also be required to include at least two consecutive days of training on post-service pathways. 

The servicemember would be able to choose from topics such as, employment, higher 

education, entrepreneurship, and career and technical training. 

Another major addition in the proposed new statute is a requirement of reports 

and notices from the Secretaries of Defense and Homeland Security to the Secretaries of Labor and Veterans Affairs, and the heads of any other departments and 

agencies of the Federal Government involved in the furnishing of counseling and 

other assistance under the program. The Secretaries of Defense and Homeland Security would be required to provide an annual report to Congress. The reporting 

would require information regarding the timeliness of receipt of covered counseling, 

information, and services, and rates of participation on an in-person basis and an 

online or other electronic basis. 

DOD has publicly reported 92 to 97 percent compliance rates with mandated TAP 

elements. However, a 2017 GAO report (GAO–18–23) found that actual TAP participation rates based on DOD internal monitoring reports for eligible servicemembers 

are lower, particularly for Reserve Component members (approximately 47 percent 

compliance). In the 2017 report, top reasons affecting TAP participation included instances where members were separated on short notice, and mission- or duty-related 

requirements that interfered with ability to attend the course. 

DAV Resolution No. 304 calls for expansion of the required training of TAP, 

standardization of all provided training, tracking of member participation, and monitoring and oversight of TAP. As noted in the above GAO report, there are inaccuracies in the current reporting mechanisms of the DOD, therefore, we support the additional requirements of training for TAP and the inclusion of reporting by the Secretary of Defense and Secretary of Homeland Security to the Secretary of Labor, the 

Secretary of Veterans Affairs, and the annual report to Congress. Reporting and 

oversight will lead to closer evaluations and determinations of the effectiveness of 

TAP for transitioning servicemembers. DAV strongly supports the provisions in Section 2 (Recodification, Consolidation, and Improvement of Certain Transition-Related Counseling and Assistance Authorities) based on DAV Resolutions No. 298 

and 304. 

Section 3 (Personnel Matters in Connection with Transition Assistance Program) 

provides the minimum number of DOD personnel dedicated to TAP, the designation 

of transition coordinators and an annual report to Congress. 

This provision notes the Secretary of Defense shall take appropriate actions to ensure that the minimum number of full-time personnel of the DOD dedicated to counseling and other activities under TAP at each military installation is not less than 

one for every 250 members of the Armed Forces currently eligible for participation 

in the TAP at such military installation. It further provides that the requirement 

for full-time personnel cannot be satisfied through the use of contractor personnel. 

Section 3 would further require the Secretary to designate at least one member 

of the Armed Forces in each field grade unit of the Armed Forces as a transition 

coordinator to support the transition of members in each such field grade unit to 

civilian life and to support completion of the requirements of the Transition Assistance Program. Included is a requirement to report annually to Congress on the action to implement Section 3. 

DAV Resolution No. 304 notes that it is essential for servicemembers to gain full 

understanding of entitlements and free assistance available to them. Mandatory 

TAP personnel requirements, at all grades, provide assurance of dedicated resources 

and manpower for TAP success. Reporting and oversight will lead to closer evaluations and determinations of the effectiveness of TAP for transitioning servicemembers. In accord with DAV Resolution No. 304, we support Section 3 (Personnel 

Matters in Connection with Transition Assistance Program). 

Section 4 (Tracking of Participation in Transition Assistance Program and Related 

Programs) would require the Secretary of Defense to establish and maintain and 

electronic database and tracking system. Section 5 (Information on Members of the 

Armed Forces Participating in Pre-separation Counseling and Surveys on Member 

Experiences with Transition Assistance Program Counseling and Services and in 

Transition to Civilian Life) would provide for tracking of members TAP experiences 

and TAP surveys. 

The database would track information on individual member participation in TAP, 

track member surveys and experiences, and notes form counselors in connection 

with TAP. This information would be available to the Secretaries of Labor, Veterans 

Affairs, and the heads of any other departments and agencies of the Federal Gov-
118 

ernment involved in the furnishing of counseling and other assistance under the 

program. Members of the Armed Forces and commanders will have access to the information as well. 

DAV Resolution No. 304 urges Congress to monitor and review TAP, its classes, 

training methodology, delivery of services, and collection and analysis of surveys 

and comments. As noted in the 2017 GAO study (GAO–18–23), it was determined 

that many servicemembers were not able to attend TAP or had experiences they felt 

were not effectively preparatory for a successful transition to civilian life. 

Our mission includes the principle that this Nation’s first duty to veterans is the 

rehabilitation and welfare of its wartime disabled. This principle envisions assisting 

disabled veterans to prepare for and obtain gainful employment and enhanced 

opportunities for employment and job placement. This includes providing servicemembers with the right resources and oversight to ensure successful transitions into 

civilian life. Based on DAV Resolution No. 304, we support Section 4 and Section 5. 

DAV does not have a position on Sections 6 through 12 of the discussion draft. 

Section 13 directs the Secretary of Veterans Affairs, in consultation with the Secretaries of Defense and Labor, and the Administrator of the Small Business Administration, to conduct a five-year longitudinal study regarding TAP that includes 

those servicemembers who have attended the program before the enactment of this 

bill, those who have attended after the implementation of the proposed changes, and 

those who have not attended the program. This study would note the percentage 

of those studied that received unemployment benefits, the number of months each 

member was employed, annual starting and ending salaries, suicide rates (to include attempts and substance abuse issues), and other pertinent info that occurred 

during the time studied. After the five year period, and every year thereafter, the 

Secretaries of Veterans Affairs, Defense and Labor, and the Administrator of the 

Small Business Administration shall report the findings to the House and Senate 

Veterans’ Affairs Committees. 

DAV supports the provisions of this section to monitor and report on the effectiveness of TAP. This coincides with the intent of DAV Resolution No. 304, which supports monitoring the success rates of TAP to ensure the program is meeting its objective and to follow up with participants to determine if they found gainful employment following training. According to a March 2016 RAND Corporation article, 

‘‘merely placing veterans in jobs is not enough: veteran employment efforts should 

also enable veterans to build successful careers over the long term. To reach this 

goal, research must provide evidence to inform these efforts and ensure their effectiveness.’’ 

Section 14 directs the Secretary of Veterans Affairs to establish a governing board 

within the Veterans Benefits Administration (VBA) that would partner with community and Federal entities whose mission would be to support the prevention of 

suicides, substance abuse, and homelessness amongst veterans. This board would 

consist of representatives from the Departments of Labor, Homeland Security, Defense, and various representatives from within the VA. The duties of this board 

would be to track suicide rates for each business line, dissemination of educational 

products to veterans participating in programs of the VBA, supporting communication between the Veterans Health Administration and the VBA to support suicide 

and substance abuse prevention efforts, and management of the VA’s Gun Safety 

Lock program in support of suicide prevention efforts. 

DAV Resolution No. 293 supports program improvements, data collection and reporting on suicide rates among servicemembers and veterans, improving outreach 

through general media for stigma reduction and suicide prevention, and enhanced 

resources for VA mental health programs. DAV appreciates the goal of this section 

of the bill, which would enhance the support between the various Federal entities 

to lower the rate of veteran suicides. This section of the draft measure coincides 

with the intent of our resolution. 

Section 17 states, in part, that the Departments of Defense, Labor, and Veterans 

Affairs should work together with veteran service organizations, such as the DAV, 

to establish points of contacts for relocating members of the Armed Forces and provide them employment, education, and other appropriate information about the 

State or locale to assist in relocation. 

The transition from military service to civilian life is very difficult for many veterans who must overcome obstacles to successful employments, such as relocation. 

TAP was created to help our separating servicemembers successfully transition to 

the civilian workforce, start a business, or pursue training or higher education. DAV 

Resolution No. 304 states, in part, that participation by DAV and other veterans 

service organizations in TAP is essential to servicemembers to gain a full understanding of the entitlements and free assistance available upon discharge from military service and the inclusion of DAV and other veterans service organizations in 
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the process. We are pleased to support this section of the draft bill aimed at addressing this need. 

This concludes my testimony, Mr. Chairman. DAV would be pleased to respond 

for the record to any questions from you or the Committee Members concerning our 

views on these bills. 

PREPARED STATEMENT OF THE DEPARTMENT OF DEFENSE

CHAIRMAN ISAKSON, RANKING MEMBER TESTER, AND MEMBERS OF THE COMMITTEE, The Department of Defense (DOD) appreciates the opportunity to provide 

this statement for the record addressing legislation pending before the Committee. 

This statement focuses on the S. 2748, ‘‘Better Access to Technical Training, Learning, and Entrepreneurship for Servicemember Act’’ or the ‘‘BATTLE for Servicemember Act,’’ and the Discussion Draft on Transition Assistance Reform. We defer 

to the Department of Veterans Affairs and the Department of Labor to provide responses on those bills and sections of pending legislation with no significant DOD 

impacts. 

S. 2748, ‘‘BETTER ACCESS TO TECHNICAL TRAINING, LEARNING AND ENTREPRENEURSHIP

FOR SERVICEMEMBER ACT’’ OR THE BATTLE FOR SERVICEMEMBERS ACT

DOD has no objections to H.R. 2748. This bill amends title 10, U.S.C., which requires members of the Armed Forces to receive additional training under the Transition Assistance Program (TAP), and for other purposes. In addition to ensuring 

members of the Armed Forces eligible for the TAP receive additional training in any 

of the supplemental subjects prescribed in section 1144(f) of title 10, U.S.C., the Secretary of Defense and the Secretary of Homeland Security will have the authority 

to waive the training for certain groups or classifications of members as the Secretaries determine, in consultation with the Secretaries of Labor and Veterans Affairs. 

A member may also elect in writing to not receive such additional training. 

S.____, DISCUSSION DRAFT REGARDING TRANSITION ASSISTANCE REFORM

This draft bill ‘‘amends title 10, U.S. Code to improve the Transition Assistance 

Program for members of the Armed Forces and for other purposes.’’ This draft legislation directs the Secretaries of Defense, the Department of Veterans Affairs, Department of Labor, and the Department for Homeland Security to take certain actions to improve transition assistance to members of the Armed Forces who separate, retire, or are discharged from the Armed Forces, and for other purposes. DOD 

objects to this proposed legislation due to significant concerns identified by our 

review. 

Servicemember feedback, as well as outside of government research indicate the 

Transition Assistance Program works well to meet the needs of our transitioning 

Servicemembers. Despite anecdotal comments, DOD has yet to see strong data or 

evidence that would indicate the need to revamp TAP with remedial legislation. Additionally, when Veterans Service Organizations were briefed on the updated TAP 

curriculum in June 2018, DOD received overwhelmingly favorable responses. Several interagency evaluation efforts currently underway will provide more robust evidence to determine what improvements should be made to the TAP. For example, 

a study led by the Department of Labor, a longitudinal study led by the Army, and 

a Post-Separation Assessment led by the Department of Veterans Affairs will help 

DOD identify and develop sound improvements. DOD assesses the proposed legislation as premature for improving Servicemember transition outcomes. While refinements and improvements can always be made to programs (we continue to update 

TAP annually), changes are most effective when made based on evidence-based program evaluations and best practices. 

DOD and its partners are extremely careful when implementing changes that impact approximately 308,000 transitioning Servicemembers and spouses each year. 

When changes are to be made to TAP, we prefer to experimentally evaluate such 

changes and their outcomes via a pilot study to closely analyze the impact of these 

changes on a smaller group of Servicemembers rather than proceeding immediately 

to full-scale implementation. If the pilot confirms that the proposed changes would 

result in a more positive outcome for transitioning Servicemembers, we would then 

implement the changes more broadly. We urge Congress to allow time for the TAP 

interagency governance team to continue to collect and analyze the data from our 

evaluation efforts in progress before legislating mandated changes to TAP. Each section of this draft bill is discussed in detail below. 
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Section 2. Recodification, Consolidation, and Improvement of Certain Transition-Related Counseling and Assistance Authorities 

The statute should align organizational authorities and responsibilities based on 

the missions, roles, and responsibilities of the Federal agencies and departments; 

thus, DOD has serious concerns about the elimination of section 1144, title 10, 

U.S.C. By striking section 1144, and consolidating it with section 1142, the proposed 

legislation assigns the authority and responsibilities from the Secretary of Labor to 

the Secretary of Defense for employment assistance, job training assistance, assistance in identifying employment, and training opportunities, and other information 

and services. As the Secretary of Labor is responsible for employment-related programs and services for transitioning Servicemembers and veterans, DOD requests 

that section 1144 remain. 

DOD supports eligible transitioning Servicemembers (including National Guard 

and Reserves) to receive resources, counseling, information, and services they need 

for their transition from the military to civilian life. The proposed legislation, however, lacks clarity about its applicability to members of the National Guard and Reserves. National Guard and Reserve Servicemembers eligible for TAP do not retire 

or separate upon demobilization or deactivation. They are ‘‘released from active 

duty’’ (REFRAD). Therefore, DOD recommends the phrase, ‘‘release from active duty’’ 

be inserted in paragraph (a) (1) to read as follows: ‘‘The Secretary of Defense and 

the Secretary of Homeland Security with respect to the Coast Guard when it is not 

operating as a service in the Navy shall, in cooperation with the Secretary of Labor 

and the Secretary of Veterans Affairs, carry out a program to furnish individual 

counseling, information, and services described in paragraph (2) to members of the 

Armed Forces under the jurisdiction of the Secretary of Defense or the Secretary 

of Homeland Security, as applicable, whose retirement, separation, or release from 

active duty is anticipated as of a specific date, and to the spouses of such members.’’ 

This recommended change will clarify in statute the applicability of TAP to the National Guard and Reserve members. 

DOD is also concerned about the lack of clarification as to when eligible members 

of the National Guard and Reserves shall commence and complete TAP. While the 

proposed legislation addresses when members of the National Guard and Reserves 

shall commence TAP, the proposed legislation falls short of addressing the completion date for TAP (to include all covered counseling, information, and services). The 

legislation does not state how and when members of the National Guard and Reserves will receive transition assistance. Given the unique operational requirements 

for demobilizing and deactivating Reserve Component Servicemembers and short 

notice separations, DOD recommends the proposed legislation provide the Secretary 

of Defense waiver authority to allow National Guard and Reserve members to complete any TAP requirements not accomplished prior to release from active duty, not 

later than 120 days from the date of release from active duty. 

DOD does not support the requirement for ‘‘Preliminary Assistance.’’ Not all Military Occupational Codes align with a credential. Not all Servicemembers wish to 

pursue employment in their same military occupation. Evidence-based research 

shows that more than half of our transitioning Servicemembers want to pursue a 

civilian occupation that is different from their military career. DOD effectively utilizes existing GAP Analysis Career Readiness Standard to accomplish the objective 

of ‘‘Preliminary Assistance.’’ We recommend the requirement for ‘‘Preliminary Assistance’’ be deleted from the proposed legislation. 

Practices for hiring counselors, vetting and establishing contracts, developing 

training curriculum, and testing information technology data fields do not allow 

DOD to meet the deadlines as written in the section of the proposed legislation titled ‘‘Commencement of Certain Instructions.’’ DOD requests the deadline be at 

least 18 but not later than 24 months after enactment. Additionally, DOD requests 

the Secretary of Defense be given two-year funding authority to implement requirements for this proposed legislation. 

Section 3. Personnel Matters in Connection with Transition Assistance Program 

DOD recommends synchronizing the staffing ratios to support approximately 

308,000 eligible Servicemembers and spouses transitioning annually because the 

language specified in § 1142, paragraph (a) (1) requires the Secretary of Defense to 

carry out a program to members of the Armed Forces and to the spouses of such 

members. The proposed legislation bases its ratio on military members at installations and does not take into account their spouses. We believe the Military Services 

are best positioned to determine the requirements for transition counselors. 
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Section 4. Tracking of Participation in Transition Assistance Program and Related 

Programs 

DOD’s primary concern is to protect Servicemember privacy, including each member’s Personally Identifiable Information (PII). The Military Services capture most, 

but not all of the data requirements as outlined in Section 4 (case work and other 

services). DOD’s existing system tracks transitioning Servicemembers. We support 

enhancing our existing TAP web service; however, the cost to develop the enhancements necessary to capture all the new data and information prescribed in the proposed legislation will require further review and study. DOD supports sharing specific data through approved data-sharing agreements that preserve the integrity of 

each individual’s PII. 

Section 5. Information on Members of the Armed Forces Participating in Pre-separation Counseling and Surveys on Member Experiences With Transition Assistance 

Program Counseling and Services and In Transition to Civilian Life 

DOD supports sections 5(a) and (b). We defer to the Department of Veterans Affairs regarding the provisions in section 5(c). 

Section 6. E-mailing Transition Assistance Materials to Supporters of Members of the 

Armed Forces Transitioning to Civilian Life 

DOD does not support this provision of the proposed legislation. Departmental 

policy gives Servicemembers the option to include their email address in the Remarks section of the DD Form 214, ‘‘Certificate of Release or Discharge from Active 

Duty.’’ Members may elect a State/Locality Veterans Affairs office to receive information. In addition, transition assistance materials, to include the Transition GPS 

(Goals, Plans, Success) curriculum, described in the proposed legislation, can be obtained through public web sites as presented during TAP. Transitioning Services 

members and their spouses can avail themselves of the websites and the materials 

at any time before, during and after transition. DOD does not support obtaining a 

third party email address to provide information readily available online. TAP materials, to include all TAP curricula, can be accessed free of charge through public web 

sites. 

Section 7. Command Matters in Connection with Transition Assistance Programs 

DOD accomplishes the requirements of section 7(a) through DOD policy, which requires the Inspectors General to assess TAP at military installations. The Military 

Services provide professional military education to inform Commanders, at all levels, about all aspects of command, including TAP. Therefore, DOD recommends Section (b) be deleted. 

Section 8. Comptroller General of the United States Report on Participation in Transition Assistance Programs at Small and remote Military Installations 

DOD supports Section 8 of the proposed legislation. 

Section 9. Education of Members of the Armed Forces on Career Readiness and Professional Development 

DOD recognizes the important role career readiness and professional development 

pursuits can play in professionalizing the Force and in enhancing the Servicemember’s ability to transition to the civilian workforce upon completion of military 

service. Providing opportunities, whether academic-or certification-related, is an investment in our people. Whether an individual is acquiring knowledge, skills, or 

abilities needed to perform mission functions or make a seamless transition to an 

industry profession, DOD supports education, certification, training, and employment assistance that maximize opportunities both in and out of service. DOD collaborates with the Departments of Labor and Veterans Affairs on a Servicemember 

outcomes initiative that aligns career readiness and professional development opportunities to better ensure Servicemembers are prepared to successfully enter the civilian workforce upon completion of service, and that veterans are able to capitalize 

on their Service training, education, and experiences in pursuit of civilian career 

opportunities. 

Although DOD is generally supportive of the proposed provisions of section 9, and 

has already aligned and coordinated appropriate assets to support Servicemember 

lifecycle development opportunities and career pathway programs, we recommend 

removal of the below listed provisions. 

Remove section 9(b)(1) as DOD already informs the transition plan required by 

section 1142(g)(1)(C) through various established tools including the Joint Services 

Transcript, the Community College of the Air Force Transcript, and the Verification 

of Military Experience & Training document. 
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Remove section 9(b)(2)(B), as DOD has no capability to collect, store, and update 

information provided by hundreds of local communities across the Nation. However, 

DOD is postured to support a trusted external data source that provides centralized 

insight into such civic programs and resources. 

Remove section 9(d), as DOD does not support mandating an Alumni Network 

Program. DOD would support language that encourages the Military Services to establish a Network Program; however, we recommend the decision be left to each 

Military Service’s discretion. Further, DOD recommends consideration of alternative 

terminology such as ‘‘Professional’’ or ‘‘Veteran’’ to describe the Network Program 

vice ‘‘Alumni.’’ Alumni historically refers to graduates or formal students of a particular school, college, or university, and such a naming convention might not properly convey the intent of Congress to focus on career mentoring, networking, and 

advice and not higher education solely. 

Last, DOD has significant concerns with section 9(c) as there is potential duplication between this effort, those under section 2 of this proposal, and numerous other 

personal and professional development authorities of DOD. Additionally, this provision mandates the provision of information beyond that available, yet provides no 

additional manpower or financial resources. DOD’s Voluntary Education enterprise 

employs approximately 500 professional guidance counselors. Each year, this workforce counsels more than 256K Tuition Assistance beneficiaries, as well as another 

350K Servicemembers participating in other Voluntary Education programs such as 

college-level examination and academic skills improvement. Increasing the requirement to provide information, without appropriate resources, would jeopardize the 

impact of such legislation. 

Section 10. Employment Skills Training 

DOD supports an expansion of eligible participants under the DOD SkillBridge 

authority with the below comments. Further clarify section 10(2)(A)(ii). Eligibility 

does not appear to be limited to spouses of transitioning Servicemembers for which 

10 U.S.C. 1143(e) was enacted. Recent statistics indicate that 54 percent of Servicemembers are married. This potential pool of participants far exceeds the roughly 

200K transitioning Servicemembers for which the program was intended each year. 

DOD is concerned that the new eligibility parameters drastically change the scope 

of the program and may have significant implications for program implementation. 

Further clarify section 10(2)(A)(iii). Eligibility does not appear to be limited to recently transitioned Servicemembers for which 10 U.S.C. 1143(e) was enacted. With 

roughly 200K transitioning Servicemembers each year becoming eligible in perpetuity, DOD is concerned that the new eligibility parameters drastically change the 

scope of the program and may have significant implications for program implementation. Additionally, DOD is concerned about the authority to expend its operations 

and maintenance appropriation in support of separated Servicemember participation. There is some precedent for this in the form of stipends and bonuses paid to 

veterans participating in the Troops-to-Teachers program. However, in this example, 

eligibility for the program expires 3 years after separation. 

The proposed legislation is unclear about whether spouses and Veterans may utilize base housing, receive compensation-type benefits, etc. For example, spouses and 

veterans would not be eligible for compensation while participating, to include housing and allowances funded by DOD. A policy review would need to be accomplished 

to determine whether unemployment compensation paid by DOD would be permissible in conjunction with participation in SkillBridge programs. 

Further clarify the intent of the $10M identified in section 4. The DOD 

SkillBridge is intended to be a low/no cost program whereby providers fund the necessary job training and employment skills training opportunities. 

Section 11. Identification of Opportunities for Job Training and Employment Skills 

Training for Members of the Armed Forces for Employment with the Department 

of Veterans Affairs in SkillBridge Programs of the Department of Defense 

DOD supports the proposed change of section 11 with two comments: (1) Replace 

‘‘the Secretaries of the military departments shall . . . ’’ with ‘‘the Secretary of Defense shall . . . ;’’ (2) Consider broadening the language, including authority to work 

with all Federal agencies in support of critically understaffed and high-skilled positions. While DOD is already working with the Department of Veterans Affairs to 

establish such opportunities, we have been approached by other Federal agencies requesting consideration as well (e.g., Department of Homeland Security for cybersecurity professionals). 
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Section 12. Evaluation of Transition Training and Counseling Relating to Post-secondary Education and Use of Educational Assistance from Department of Defense and Department of Veterans Affairs 

DOD supports the proposed evaluation of section 12, with one recommendation. 

Remove Section (d), contract organization. In accordance with the Code of Federal 

Regulations, DOD may leverage federally Funded Research and Development Centers (FFRDC) for the purpose of the proposed analysis. 

Section 13. Longitudinal Study on Changes to Transition Assistance Program of Department of Defense 

DOD defers to the Department of Veterans Affairs for comments on section 13. 

Section 14. Establishment of Governing Board to Support Prevention of Drug 

Overdoses, Deaths by Suicide, and Alcohol-related Mortality 

DOD defers to the Department of Veterans Affairs for comments on section 14. 

Section 15. Review of Economic Risk Factors in Suicide Prevention 

DOD defers to the Department of Veterans Affairs for comments on section 15. 

Section 16. Grants for Provision of Transition Assistance to Members of the Armed 

Forces After Separation, Retirement, or Discharge 

The DOD defers to the Department of Labor for comments on section 16. 

Section 17. Sense of Congress on Transition Assistance Program and Other Transition-related Assistance for Members of the Armed Forces 

DOD concurs with the provisions of section 17. 

This large and complex piece of proposed legislation brings potentially huge resource implications in the form of more counselors, Information Technology enhancements, veterans’ surveys, the creation of professional networks, opening counselor notes to other Federal agencies, and adding TAP to command climate assessments, with unintended consequences. This proposed legislation would move DOD 

to a TAP case management system and would require more resources to fulfill all 

the mandates outlined. Additionally, requirements that span the gap from Servicemember to veteran will require additional attention to data privacy, collection, and 

storage requirements, as well as increased public disclosures and opportunity for 

comment through the Federal Register process. 

The Department of Defense thanks the Committee for its outstanding and continuing support of our Servicemembers, veterans, and their families. 

PREPARED STATEMENT FROM IVAN DENTON, DIRECTOR, OFFICE OF NATIONAL PROGRAMS, VETERANS’ EMPLOYMENT AND TRAINING SERVICE, U.S. DEPARTMENT OF

LABOR

INTRODUCTION

Chairman Isakson, Ranking Member Tester, and Members of the Committee, 

thank you for the opportunity to submit a statement for the record of today’s hearing. I thank you all for your tireless efforts to ensure that America fulfills its obligations to our servicemembers, veterans, and their families. As the Director of the Office of National Programs in the Veterans’ Employment and Training Service 

(VETS) at the Department of Labor (DOL, or Department), my office is responsible 

for managing DOL’s Employment Workshop (DOLEW, or Workshop) and Career 

Technical Training Track (CTTT) courses, as part of the Transition Assistance Program (TAP). The move to a civilian career is critical for transitioning servicemembers (TSMs) and their entire families as they conclude their military service, 

and it can also prove to be stressful. More broadly speaking, successful career transition is vital to attracting an All-Volunteer Force, and to building the American 

economy. I appreciate the opportunity to discuss DOL’s collaborative work with the 

Department of Defense (DOD) and the Department of Veterans Affairs (VA) to administer the TAP and improvements that can be made to better assist servicemembers with employment preparation as they transition to civilian life. 

The Department stands firmly behind our Nation’s servicemembers, veterans, and 

their families. The Secretary has set several clear priorities to assist our veterans 

and military spouses. They include: (1) supporting America’s veterans by helping 

veterans, servicemembers, and their spouses find family-sustaining jobs; (2) expanding apprenticeships in America; and, (3) removing barriers to employment through 

occupational licensing reform. 
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1 BLS. (2018, July 10). Job Openings and Labor Turnover Summary. Retrieved from https:// 

www.bls.gov/news.release/jolts.nr0.htm. 

DOL is the Federal Government’s focal point for workforce development, employment services, and information related to the economic health of all Americans. The 

Department maintains the expertise and a nationwide network of American Job 

Centers (AJCs) to provide workforce education and employment opportunities for all 

Americans. Within this network, veterans receive priority of service. This integrated 

network and the programs DOL administers are best suited to continue generating 

positive employment outcomes for the men and women who serve our country. I am 

pleased to report the employment situation for veterans continues to improve. The 

unemployment rate for veterans was down to 3.7 percent in 2017, which is the lowest since 2001, and I continue to hear from employers who are hiring veterans because veterans provide the technical and leadership skills that businesses need. 

There are 6.6 million job openings in the United States.1 Transitioning servicemembers and veterans can help to fill these jobs, and employers are eager to hire 

them. 

While this hearing is focused on several bills under consideration by the Committee, I will focus my remarks on the two pieces of legislation that would directly 

impact the programs administered by DOL, specifically S.ll, ‘‘Improving Preparation and Resources for Occupational, Vocational, and Educational Transition,’’ or the 

‘‘IMPROVE Transition for Servicemembers Act, and S. 2748, ‘‘Better Access to Technical Training, Learning, and Entrepreneurship for Servicemembers Act,’’ or the 

‘‘BATTLE for Servicemembers Act.’’ 

S._____, ‘‘IMPROVING PREPARATION AND RESOURCES FOR OCCUPATIONAL, VOCATIONAL, 

AND EDUCATIONAL TRANSITION,’’ OR THE ‘‘IMPROVE TRANSITION FOR SERVICE- MEMBERS ACT’’ 

As a retired Infantry Officer with 35 years of total service, I was blessed with the 

opportunity to command both a battalion and a brigade in Iraq on two separate mobilizations. Sadly, I found these deployments to be, in total, less stressful than my 

transition off of active duty in 2016. I trained all of my adult life to lead soldiers; 

however, I only had a fraction of that time to make the transition to civilian life. 

I know firsthand the importance of TAP and fully understand the necessity of getting TAP right. 

The IMPROVE Transition for Servicemembers Act would amend title 10, U.S. 

Code, by striking sections 1142 and 1144 and inserting a new section 1142, which 

directs the Secretary of Defense and the Secretary of Homeland Security, with respect to the Coast Guard, in cooperation with the Secretaries of Labor and VA, to 

take certain actions intended to improve the transition assistance provided to members of the Armed Forces who separate, retire, or are discharged from military 

service. 

The Department opposes this bill as currently drafted, as we believe it would negatively impact the transition to civilian employment and successful careers for many 

transitioning servicemembers. 

The draft bill removes the Secretary of Labor’s statutory authority to establish 

and maintain an employment assistance program for transitioning servicemembers 

and their spouses. This authority and responsibility is rightly, and most appropriately, entrusted to DOL; however, this bill would place that authority, and concomitant burden, on the Secretary of Defense, whose essential and fundamental 

mission is to lead DOD in the defense of our Nation. This bill would unnecessarily 

disrupt an effective interagency Federal program that DOL has supported, without 

fail, for over 25 years. 

The bill would reduce the five-day combined employment-related curriculum that 

is currently available to TSMs to a three-day mandatory combined curriculum. For 

the majority of TSMs, it would also reduce the existing three-day mandatory employment workshop, administered by DOL/VETS, to a mandatory one-day workshop. 

This significant reduction may decrease the likelihood that our transitioning servicemembers will be able to secure meaningful, gainful employment that can lead to a 

successful family-sustaining career. Employment is arguably the most important 

factor in a successful transition, impacting all areas of the servicemember’s life. We 

owe it to our servicemembers and their spouses to thoroughly prepare them for a 

smooth transition into the next phase of their career. 

To inform any future discussion and collaboration with regard to TAP reform, I 

offer several observations on the contents of the draft bill for the Committee’s consideration and defer to our partners at DOD and VA to discuss other sections which 

are specific to their TAP responsibilities. 
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Sec. 2. Recodification, Consolidation, and Improvement of Certain Transition-Related 

Counseling and Assistance Authorities 

Section 2 of the bill would amend title 10 of the U.S. Code to make a number 

of changes to the structure and content of the existing TAP. In particular, section 

2 would require the Secretary of Defense, and the Secretary of Homeland Security 

with respect to the Coast Guard, in cooperation with the Secretary of Labor and the 

Secretary of VA, to carry out a program to furnish individual counseling, information, and services to retiring and separating servicemembers. Section 2 further requires the Secretaries to work together to: develop and revise necessary training 

documents, resources, and curriculum; use experience gained from implementation 

of the pilot program under section 408 of Pub. L. No. 101–237 in providing the preseparation counseling required under section (f)(4) of the bill; work with Military 

Service Organizations (MSOs), Veterans Service Organizations (VSOs), and other 

appropriate organizations to promote and publicize job fairs for TSMs; and, furnish 

covered counseling, information, and services to TSM spouses, when appropriate 

and at the discretion of the servicemember and the spouse, as well as job placement 

counseling for the spouse in connection with the transition of the servicemember to 

civilian life. Section 2 of the draft bill also: makes participation in TAP mandatory, 

unless the Secretary of Defense or Homeland Security waives the requirement, 

based upon delineated criteria; requires a servicemember to attend TAP no later 

than 120 days before retirement or 90 days prior to separation; establishes the parameters for pre-separation counseling, preliminary assistance, introduction of specific post-service pathways, instruction on professional development and employment assistance, and introduction to VA benefits; and, outlines the use of personnel 

and organizations. This section would also reduce the mandatory three-day employment workshop to only one day. 

The Administration believes that the three-day employment workshop conducted 

by the Department is contributing to reduced unemployment among TSMs and 

should continue to be mandatory. 

As the Department interprets this draft bill, the delivery of DOLEW and CTTT 

would no longer be the responsibility of DOL, but would instead become the responsibility of DOD and DHS. DOL has significant concerns with this fundamental programmatic change, as it fails to recognize the Department’s expertise and experience in employment and training. The draft bill states, ‘‘It is the sense of Congress 

to acknowledge that the Armed Forces face significant and often competing pressures in carrying out its essential and fundamental mission to defend the Nation.’’ 

However, this bill further adds to these competing pressures by dismantling an effective interagency program and placing the full responsibility for transition onto 

the DOD and DHS. Providing employment assistance to transitioning servicemembers and veterans is an integral program function that the Department has 

unfailingly supported for over 25 years. DOD and DHS should be assisting servicemembers in developing and documenting the skills that will make them successful 

both inside and outside of the military, and DOL is best equipped to assist them 

in transitioning to a civilian career. 

Since the Department began providing the Employment Workshop more than 25 

years ago, the number of workshops, participants, and locations has grown considerably and the quality and relevance of the course material improves each year. In 

2011, the VOW to Hire Heroes Act of 2011, Title II, Pub. L. No. 112—56 (the VOW 

Act) made participation in the DOLEW mandatory for most transitioning servicemembers, including those demobilizing from the National Guard and Reserve Components. Last year, DOL conducted more than 6,000 Workshops for over 164,000 

participants at 187 sites worldwide. Of the over 164,000 participants, more than 

4,800 were National Guard and Reserve. The three-day DOLEW is standardized so 

that all attending servicemembers and their spouses can receive the same high level 

of instruction. The current three-day employment workshop has contributed to: 

• The unemployment rate for veterans aged 18–24 decreasing from a high of 30.2 

percent in 2011 to 7.9 percent (2017); 

• Overall veteran unemployment being at its lowest rate of 3.7 percent (2017) 

since 2001; and 

• Unemployment Compensation paid to ex-servicemembers (UCX) being reduced 

by over 72 percent from $944 million to $258 million, lower than pre-recession 

levels. 

Employment is arguably the most important element of a successful transition to 

civilian life, and the existing DOLEW and CTTT are key elements of TAP. Removing the requirement for participation in the current DOLEW, or reducing by twothirds the required employment preparation instruction, would have a negative impact on a TSM’s readiness for civilian employment and career success. The vast ma-
126 

2 U.S. Government Accountability Office (2017, November). Transitioning Veterans: DOD 

Needs to Improve Performance Reporting and Monitoring for the Transition Assistance Program. (GAO–18–23). Retrieved from https://www.gao.gov/assets/690/688203.pdf. 3 Chamber of Commerce. (2016, November 02). Veterans in the Workplace: Understanding the 

Challenges and Creating Long-Term Opportunities for Veteran Employees. Retrieved from 

https://www.uschamberfoundation.org/reports/veterans-workplace. 4 BLS. (2018, April 13). Usual Weekly Earnings of Wage and Salary Workers Second Quarter 

2018. Retrieved from https://www.bls.gov/news.release/pdf/wkyeng.pdf. 

jority of the courageous men and women who serve our country will enter the workforce, whether immediately following their transition, or after pursuing additional 

education or training. The DOLEW provides them with employment preparation 

that is vital for a positive transition and a successful future. 

Moving forward, and as discussed in our November 2017 written testimony before 

the House Veterans’ Affairs Committee’s Subcommittee on Economic Opportunity, 

DOL is working to advance two primary goals for TAP. First, DOL will continue 

to work with our interagency partners to improve TAP’s timeliness of completion 

rates. Second, we will also work with interagency partners to increase the percentage of TSMs that participate in the two-day supplemental career tracks. 

All TSMs are eligible to begin TAP activities, which start with pre-separation 

counseling, as soon as 24 months prior to retirement or 12 months prior to separation. By law, TSMs are also required to complete TAP within 90 days of transition. 

However, based on statistics contained in the November 2017 U.S. Government Accountability Office report (GAO–18–23), Transitioning Veterans, DOD Needs to Improve Performance Reporting and Monitoring for the Transition Assistance Program,2 fewer than half of all TSMs actually complete TAP on time. DOL’s first goal 

is important because survey data from the November 2016 Hiring Our Heroes report 

from the U.S. Chamber of Commerce Foundation,3 indicates veterans continue to 

face challenges as they transition from the military, but the survey results show a 

clear relationship between a successful transition and when transitioning servicemembers start their job search. Those who begin to plan for transition early (more 

than six months before separation) fare better than those who wait. 

The GAO report also noted that only 22,468 (14.1%) of active duty TSMs, out of 

the 160,000 who were eligible, participated in the two-day supplemental career 

tracks. DOL believes that this number is far too low and that greater participation 

in these tracks would allow TSMs to identify career opportunities that could increase their long term earnings. 

According to the Bureau of Labor Statistics (BLS), the median wage for a U.S. worker with only a high school degree was about $37,000 per year in 2017. However, four-year degree wages are $60,000 per year.4 Graduates of Apprenticeship programs earn an average of $60,000 per year, and more than 8 in 10 graduates 

retain their employment nine months after exiting their apprenticeships. Although 

participation in the supplemental two-day tracks does not guarantee higher wages, 

our assessment shows that attendance metrics for each of the career tracks provide 

an indication of whether or not a TSM is selecting a career path that increases the 

chances of obtaining a meaningful career. 

Sec. 3. Personnel Matters in Connection with Transition Assistance Program 

Section 3 of the draft bill requires the Secretary of Defense to employ full-time 

DOD personnel dedicated to counseling and other TAP activities at each military 

installation (no less than one for every 250 members eligible for transition services 

in the Armed Forces), and prohibits the use of contractor personnel to satisfy this 

requirement. Section 3 also requires the Secretary of Defense to submit a report to 

Congress on the actions taken to implement this section. 

The Department is concerned with the long-term ramifications of administering 

TAP with Federal employees, when contract facilitators offer a flexible and cost effective way to provide workforce development services to transitioning servicemembers to meet the ever-changing needs of the civilian employment sector. The 

DOLEW and CTTT are currently administered by contract facilitators, as directed 

by the VOW Act. The use of contractors allows the Department to ensure that the 

instruction for DOLEW and CTTT is consistently of high quality. The use of contractor personnel also made the program more nimble to manage as we are able to 

rapidly schedule or reschedule classes as required by the military services. 

Sec. 4. Tracking of Participation in Transition Assistance Program and Related Programs 

Section 4 requires the Secretary of Defense to establish and maintain an electronic tracking system and database, applicable across the Armed Forces, to collect, 

assemble, and make available information on: the participation and progress of indi-
127 

viduals in TAP, data collected in surveys; resources available for members of the 

Armed Forces and their spouses; and, notes to TAP counselors in connection with 

the provision of casework and other programmatic services. Information collected in 

the tracking system and database is to be made available to members of the Armed 

Forces who are undergoing transition from military life, Commanders of the Armed 

Forces at all levels, the Secretaries of Labor, VA, and the heads of any other departments and agencies of the Federal Government involved in TAP. 

The Department does not oppose this section and believes that tracking information on the progress of TSMs is important. The Department continues to process 

data from the Defense Manpower Data Center (DMDC) for the Veterans’ Data Exchange Initiative (VDEI). As we work with DOD to improve data quality, information about TAP timeliness of completion metrics and career technical training track 

attendance metrics will be shared by DOD and DOL leaders at the national and 

local level. The Department will eventually establish a data dashboard that allows 

DOL to see performance metrics for each individual service and individual bases 

within each service branch. 

Sec. 5. Information on Members of the Armed Forces Participating in Pre-separation 

Counseling and Surveys on Member Experiences with Transition Assistance Program Counseling and Services and in Transition to Civilian Life 

Section 5 requires the Secretary of Defense to collect the demographic data on servicemembers entering into pre-separation counseling, requires the Secretaries concerned (as that phrase is defined in section 101 of title 10, U.S. Code) to conduct 

surveys of the members of the Armed Forces at the conclusion of the receipt of counseling, information, and services under section 1142, and requires the Secretary of 

VA, in consultation with the Secretaries of Defense, Homeland Security, Education, 

and Labor, to conduct surveys of veterans recently retired, discharged, or released 

from the Armed Forces, in order to assess the experiences of such veterans in the 

transition from military life to civilian life. 

DOL is generally supportive of section five. The Department recommends that 

language also be included to amend the Social Security Act to authorize the Secretaries of Labor and Veterans’ Affairs to access the National Directory of New Hires 

(NDNH) for purposes of tracking veterans’ employment. Like VA, DOL strongly supports this access to the NDNH, and believes that the information would provide the 

interagency TAP partners with a more complete understanding of post-transition 

employment outcomes and greatly assist us in evaluating the efficacy of our transition assistance efforts. 

Sec. 6. E-mailing Transition Assistance Materials to Supporters of Members of the 

Armed Forces Transitioning to Civilian Life 

Section 6 requires the Secretaries of Defense and Homeland Security to solicit an 

e-mail address from each TSM and the e-mail address of a supporter so that the 

Secretary concerned may send transition materials as set forth in section 1142(f) of 

title 10 and additional information as the Secretary concerned considers appropriate. 

The Department does not oppose this section. DOL currently receives email addresses from DOD via the eForm data. The Department sends emails to TSMs to 

highlight the importance of participating in the supplemental career tracks and 

DOLEW as early as possible. To date, DOL has sent nearly 290,000 messages to 

TSMs on these topics. 

Sec. 10. Employment Skills Training 

Section 10 amends section 1143(e) of Title 10, U.S. Code, by directing the Secretary of Defense, in consultation with the Secretary of Labor, to carry out job training and employment skills training, including pre-apprenticeship programs under 

the SkillBridge program, to transitioning servicemembers and their spouses who are 

within six months of their transition out of the military. Veterans, as defined in section 101 of title 38, U.S. Code, who have completed at least 180 days of active duty 

or have been awarded the Purple Heart are also eligible to receive services from this 

program, but at a lower level of priority than TSMs. Finally, this section authorizes 

$10 million to the Secretary of Defense to carry out this program. 

The Department is supportive of the concept as it would not require transitioning 

servicemembers and some veterans to be excluded from training programs like 

SkillBridge just because they will transition off of active duty before completing it. 

The Department notes that the required consultation between DOD and DOL will 

be necessary to ensure that these programs are integrated with and not duplicative 

of the training and employment services for veterans that are funded by DOL. 
128 

Sec. 13. Longitudinal Study on Changes to Transition Assistance Program of Department of Defense 

Section 13 tasks the Secretary of the VA, in consultation with the Secretaries of 

Defense, Labor, and the Small Business Administration, to conduct a five-year longitudinal study. 

DOL is generally supportive of section 13. Once again, DOL believes that access 

to NDNH would provide the interagency TAP partners with a more complete understanding of post-transition employment outcomes. 

Sec. 16. Grants for Provision of Transition Assistance to Members of the Armed 

Forces After Separation, Retirement, or Discharge 

Finally, section 16 requires the Secretary of Labor, in consultation with VA, to 

award grants to eligible organizations for the provision of transition assistance to 

members of the Armed Forces who are separated, retired, or discharged from the 

Armed Forces, and spouses of such members. 

The Department supports the intent of section 16, but believes it is duplicative 

of services that are already available through the DOL-funded State Workforce System and VA. The Department suggests that the grants emphasize case management 

and referral to Federal, state, and local resources that can meet the needs of transitioning servicemembers and their families. 

S. 2748, ‘‘BETTER ACCESS TO TECHNICAL TRAINING, LEARNING, AND ENTREPRENEURSHIP

FOR SERVICEMEMBERS ACT,’’ OR THE ‘‘BATTLE FOR SERVICEMEMBERS ACT’’ 

S. 2748 would amend section 1144(f) of title 10, U.S. Code, to require members 

of the Armed Forces to receive additional training under TAP. 

The Department supports S. 2748 because, if passed, it would increase the 

amount of days of employment-related curriculum for most servicemembers by making the attendance of TAP’s Optional tracks mandatory. Currently, TSMs have the 

option to participate in a series of two-day tailored tracks within the Transition GPS 

curriculum: (1) an Accessing High Education Track (provided by DOD), for those 

pursuing a higher education degree; (2) CTTT (provided by DOL), for those interested in obtaining job-ready skills through apprenticeship or other industry-recognized credentials; and (3) the ‘‘Boots to Business’’ Entrepreneurship Track (provided 

by Small Business Administration), for those wanting to start a business. CTTT is 

an additional two-day workshop focused on apprenticeships and industry-recognized 

credentials for transitioning servicemembers and their spouses. The CTTT provides 

these servicemembers with an opportunity to identify their relevant skills, increase 

their awareness of workforce development programs and apprenticeship programs 

that can lead to industry-recognized credentials and meaningful careers, and develop an action plan to achieve their career goals. DOL believes that the optional 

courses in TAP provide servicemembers with resources critical to their success in 

the civilian world. By making the attendance of an optional track mandatory, the 

Department expects the number of TSMs who would attend these courses, and obtain enhanced employment-related curriculum, would increase significantly. 

CONCLUSION

In conclusion, our long-term goal continues to be that military service is universally recognized as a path to high-quality civilian careers. The future of the Nation’s 

All-Volunteer Force depends upon this recognition, as does our economy. The Department views employment as a vital element of a successful transition to civilian 

life. The Department thanks the Congress for addressing TAP participation through 

the VOW Act, and for your continued partnership in removing barriers to employment. 

The Department remains committed to working with our interagency partners to 

continuously review and improve TAP curricula, including the DOLEW and CTTT, 

through our regular review cycle that incorporates input from employers and the 

public related to the best practices across the Nation. Moving ahead, we look forward to preparing transitioning servicemembers and their spouses even more effectively by improving the timeliness of DOLEW participation and increasing participation rates in the supplementary career-related tracks. 

The Department looks forward to working with the Committee to ensure that our 

separating servicemembers have the resources and training they need to successfully transition to the civilian workforce. The improving employment situation for 

veterans is a resounding testament to the nationwide recognition from stakeholders, 

both public and private, at the national level and within local communities, of the 

value veterans bring to the workforce. 
129 

Mr. Chairman, Ranking Member, and Members of the Committee, this concludes 

my statement for the record. Thank you for the opportunity to be a part of this 

hearing. 

PREPARED STATEMENT OF THE MORTGAGE BANKERS ASSOCIATION

CHAIRMAN ISAKSON AND RANKING MEMBER TESTER, The Mortgage Bankers Association (MBA) appreciates the opportunity to submit written testimony on the pending legislation being considered before the Senate Committee on Veterans’ Affairs. 

In particular we are pleased to share our views on H.R. 299, the Blue Water Navy 

Vietnam Veterans Act of 2017. 

MBA is the national association representing the real estate finance industry, an 

industry that employs more than 280,000 people in virtually every community in 

the country. The association works to ensure the continued strength of the Nation’s 

residential and commercial real estate markets, to expand homeownership, and to 

extend access to affordable housing to all Americans. MBA promotes fair and ethical 

lending practices and fosters professional excellence among real estate finance employees through a wide range of educational programs and a variety of publications. 

MBA’s membership of over 2,300 companies represents all elements of real estate 

finance, including firms serving both the single-family and commercial/multifamily 

markets. Our membership features commercial banks, community banks, credit 

unions, independent mortgage bankers, investors, brokers, and industry vendors, 

among others. 

We applaud the Committee for its efforts to provide adequate medical benefits for 

veterans who were exposed to dangerous chemicals in the course of their service. 

And while H.R. 299 contains a number of provisions relevant to such healthcarerelated concerns, MBA will limit its views to Sections 6 and 7 of the legislation, 

which address the U.S. Department of Veterans Affairs (VA) Home Loans program. 

We also wish to draw the Committee’s attention to another pressing problem in the 

market for VA-guaranteed refinances, which has prevented some loans from serving 

as collateral in Government National Mortgage Association (Ginnie Mae) pools. 

Section 6(a) 

Section 6(a) of H.R. 299 adjusts the size of the VA loan guaranty for a subset of 

loans. Under existing law, the VA guaranty on loans greater than $144,000 cannot 

exceed the lesser of: (1) 25 percent of the government-sponsored enterprise (GSE) 

conforming loan limit, reduced by the amount of entitlement previously used and 

not restored; or (2) 25 percent of the loan. The proposed changes in the legislation 

would adjust the VA guaranty on loans greater than $144,000 to 25 percent of the 

loan, reduced by the amount of entitlement previously used and not restored. 

For veterans who have not used their entitlement, or have had their entitlement 

fully restored, the new calculation would not change the VA guaranty on loans at 

or below the GSE conforming loan limit. It would, however, increase the VA guaranty on loans above the GSE conforming loan limit. We believe this adjustment is 

warranted, as it will promote access to credit for veterans living in higher-cost areas 

of the country. 

However, the proposed adjustment would have the effect of lowering the VA guaranty on second properties purchased by the veteran, in cases in which the second 

loan is at or below the GSE conforming loan limit. As such, this adjustment would 

make it more difficult for veterans to obtain zero-down payment financing for many 

second properties. Given the frequency with which veterans may be required to relocate due to a permanent change of station, it is common for veterans to purchase 

a second home in their new station, while continuing to own and rent their first 

home. In such a scenario, we believe it is appropriate to allow for zero-down payment financing for the second home, particularly if the loan is at or below the GSE 

conforming loan limit. 

In order to address this concern while maintaining the increased VA guaranty on 

more expensive properties, we recommend that the language in Section 6(a) be further amended so as to use the existing calculation for loans at or below the GSE 

conforming loan limit and the new calculation contained in Section 6(a) only for 

loans above the GSE conforming loan limit. This amendment would not change the 

VA guaranty for veterans who have not used their entitlement or have had their 

entitlement fully restored, relative to H.R. 299. It would, however, allow veterans 

greater opportunity to use zero-down payment financing for their second homes. We 

would also recommend that such amendments clarify the application of existing VA 

policies regarding restoration of entitlement, including any changes to this process. 
130 

1Fees are expressed as a percentage of the total amount of the loan guaranteed, insured, or 

made, or, in the case of a loan assumption, the unpaid principal balance of the loan on the date 

of the transfer of the property. Red cells indicate an increase in the fee. Green cells indicate 

a decrease in the fee. Yellow cells indicate no change in the fee. 

We therefore support this section of the legislation, provided that it is amended 

per the recommendations described above. 

Section 6(b) 

Section 6(b) of H.R. 299 changes the VA loan fee schedule. The changes to the 

schedule, which are summarized below, would increase the overall fees collected 

from veterans in association with VA-guaranteed loans. The changes would also 

equalize the fees paid by active duty veterans and reservists, as reservists often pay 

higher fees in the current system. 

It appears that these increased loan fees are serving to offset other expenditures 

contained in the legislation. And while we are not offering comments on the efficacy 

of the healthcare provisions of the legislation, we firmly believe that mortgage borrowing costs should not be increased to pay for non-housing-related expenditures. 

The loan fees charged to veterans should reflect the credit risk associated with the 

VA guaranty, and any fee increases that are unrelated to this risk unnecessarily 

raise the cost of mortgage credit for veterans. As such, we oppose any changes to 

VA loan fees that do not correspond to the credit risk associated with the VA 

guaranty. 

The table that follows displays the change in VA loan fees from the existing baseline for each loan type, borrower type, and closing date.1

Section 6(c) 

Section 6(c) of H.R. 299 requires VA loan fees to be collected from veterans with 

service-connected disabilities rated as less than total, surviving spouses of such veterans, or veterans that receive a loan in excess of the GSE conforming loan limit. 

This section also exempts veterans serving on active duty who were awarded the 

Purple Heart from paying VA loan fees. Under existing law, VA loan fees are not 

collected from veterans receiving compensation (or eligible to receive compensation) 

due to a service-connected disability or from surviving spouses of veterans who died 

due to a service-connected disability. 

As noted above with respect to Section 6(b), it is unclear that this provision, which 

would have the effect of increasing the overall fees collected through the VA Home 

Loans program, is being proposed due to a commensurate change in the credit risk 

profile or the financial health of the program. Veterans with service-connected disabilities have sacrificed for their country, and the existing waiver from paying VA 

loan fees is an appropriate benefit. We would strongly oppose removing this benefit 

for the purpose of raising funds to offset non-housing-related expenditures. 
131 

2 VA, ‘‘Clarification of Third-Party Verification Requirements,’’ Circular 26–17–43, December 

29, 2017. Available at: https://www.benefits.va.gov/homeloans/documents/circulars/26_17_43.pdf. 

Similarly, the purchase of a home with a loan that exceeds the GSE conforming 

loan limit is unrelated to the veteran’s service-connected disability. Because the VA 

loan fees are expressed as a percentage of the loan, veterans who purchase more 

expensive homes already pay higher absolute fees than comparable veterans who 

purchase homes using loans below the GSE conforming loan limit. The proposed legislation would prevent veterans with service-connected disabilities from utilizing 

their fee waiver if they purchase a more expensive home, but the purpose of the 

waiver is not influenced by the size of the loan. If Congress determines that veterans with such disabilities warrant a fee waiver, the size of the loan should not 

be a relevant factor in that determination. In other words, we believe that veterans 

with similar disabilities should be treated equally, regardless of the value of their 

home or the size of the loan that is used. As such, we oppose Section 6(c)(2) of the 

legislation. 

Section 7 

Section 7 of H.R. 299 allows VA-approved appraisers to conduct appraisals solely 

on the basis on information gathered and provided by a third party. Under existing 

law, VA maintains a list of approved appraisers who are selected on a rotating basis 

to conduct appraisals for properties to be financed with loans that will feature a VA 

guaranty. Such appraisers must meet minimum qualifications to obtain approved 

status, which are verified through written testing, sample appraisals, training experience, and recommendations from other appraisers. This process better ensures 

that the VA guaranty is properly protected from inflated or otherwise inaccurate 

valuations. 

In recent years, however, VA-guaranteed financing has been inhibited in certain 

parts of the country due to appraiser shortages or other difficulties in obtaining appraisals from approved individuals. This problem is often more acute in rural communities where it may take an approved appraiser many hours of travel to reach 

the property. In these situations, appraisal ‘‘turn times’’ can be lengthy, which can 

then delay closings, force extension of rate locks, or result in penalty fees or the loss 

of earnest money deposits should the borrower opt for a non-VA-guaranteed loan. 

Allowing appraisers the ability to receive property information from third parties 

could effectively address this problem by scaling back the travel time required of 

appraisers. This provision could also allow appraisers to make better use of the improved technology that is facilitating large-scale data collection by industry vendors. 

Importantly, while the appraiser is relying on information provided by a third party, 

the responsibility for conducting the appraisal remains with the approved 

individual. 

However, the legislation as currently drafted provides that VA ‘‘may’’ issue guidance prior to prescribing regulations to implement this change. We would recommend that VA instead be required to issue guidance ahead of any regulations 

that are prescribed. This guidance should include details regarding the standards 

that must be met in terms of the collection of property information by third parties. 

VA has already issued similar guidance with respect to third parties that provide 

loan underwriting services, such as verification of borrower income, employment, 

and assets.2 And while VA may clarify standards for the use of third parties in any 

implementing regulations, it is important that there be no confusion in the market 

prior to the issuance of these regulations, and therefore guidance should be required 

prior to the effective date of this section. 

Similarly, to allow for additional flexibility in VA’s implementation of this provision, we would recommend that the language be amended to clarify that VA may 

also enter into such agreements with third parties. 

We therefore support this section of the legislation, provided that it is amended 

per the recommendations described above. 

Further Improvements to the Seasoning Requirements for VA Refinances 

We also respectfully urge the Committee to support technical amendments to the 

recently passed S. 2155, the Economic Growth, Regulatory Relief, and Consumer 

Protection Act. In particular, Section 309 of the legislation, which provides enhanced 

requirements on VA refinances that we believe will effectively address the problem 

of loan churning, has caused inadvertent disruptions in this market and is in need 

of revision. 

We appreciate and endorse the urgent need to respond to the increased churning 

of veteran borrowers in recent years. In many situations, borrowers are the target 

of aggressive and potentially misleading advertising that encourages them to contin-
132 

3Ginnie Mae, ‘‘APM 17–06: Pooling Eligibility for Refinance Loans and Monitoring of Prepay 

Activity,’’ December 7, 2017. Available at: https://www.ginniemae.gov/issuers/program_ guidelines/Pages/mbsguideapmslibdisppage.aspx?Para mID=82. 4 VA, ‘‘Policy Guidance Update: VA Refinance Loans and the Economic Growth, Regulatory 

Relief, and Consumer Protection Act,’’ Circular 26–18–13, May 25, 2018. Available at: https:// 

www.benefits.va.gov/HOMELOANS/documents/circulars/26_18_13.pdf. 5 HUD, ‘‘Government National Mortgage Association: Loan Seasoning for Ginnie Mae Mortgage-Backed Securities—Interpretive Rule,’’ July 3, 2018. Available at: https://www. 

Federalregister.gov/documents/2018/07/03/2018–14354/government-national-mortgageassociation-loan-seasoning-for-ginnie-mae-mortgage-backed. 6MBA, ‘‘Re: Government National Mortgage Association: Loan Seasoning for Ginnie Mae 

Mortgage-Backed Securities—Interpretive Rule [Docket No. FR–6112-IA–01],’’ July 12, 2018. 

Available at: https://www.mba.org/Documents/MBA_HUD_Interpretive_Rule_Ginnie_Mae_Loan_ Seasoning(0).pdf. 

ually refinance their VA-guaranteed mortgage so as to lower their interest rate, 

even if only by a small amount. However, when fees are then added to the principal 

balance of the loan, the borrower may be put in a position in which there is no realistic possibility that the fees can be recouped through the lower monthly payments. 

This practice directly harms veterans and lowers demand for Ginnie Mae mortgagebacked securities (MBS), thereby raising borrowing costs for loans guaranteed or insured through a wider array of government mortgage programs. 

To address this problem, MBA supported Section 309 of S. 2155, which includes 

new requirements on refinanced loans to achieve eligibility for a VA guaranty and 

Ginnie Mae pooling. One such requirement is a minimum seasoning period for the 

prior loan. For both VA and Ginnie Mae eligibility, at least 210 days must have 

passed between the date of the first payment made by the borrower on the prior 

loan and the note date of the refinance. This seasoning period is intended to slow 

the pace of refinances, thereby deterring extreme cases of serial refinancing. 

While we support the use of a minimum seasoning requirement, the implementation of Section 309 has led to unexpected disruptions in the market. This result has 

occurred because the seasoning calculation described above differs from—and is 

longer than—that of the seasoning requirement instituted by Ginnie Mae through 

a prior All Participant Memorandum.3 Ginnie Mae’s existing standard requires 210 

days to pass between the first payment due date of the prior loan and the first payment due date of the refinance. The seasoning calculation in Section 309 differs in 

both the start point and end point for this timeline. 

Because there was no effective date provided in the legislation, the new requirements took effect immediately. Notably, VA implemented the requirements of Section 309 for all loans with applications taken on or after May 25, 2018.4 Ginnie Mae, 

however, has followed a Department of Housing and Urban Development (HUD) interpretive rule which states that, while Ginnie Mae securities issued in May 2018 

or earlier are unaffected, no VA refinances can be included in issuances in June or 

later unless they are compliant with the new requirements.5

As a result, some VA refinances that were in process or recently closed at the time 

the legislation was signed into law in late May lost their eligibility to serve as collateral for Ginnie Mae MBS. These ‘‘orphaned’’ loans cannot be delivered to Ginnie 

Mae despite carrying a valid VA guaranty and being fully compliant with the requirements in place at the time the applications were taken and (in some cases) the 

loans were closed. This situation has caused liquidity strains for some lenders, particularly if they have originated a significant volume of affected loans. 

MBA has noted in formal comments to HUD that this outcome does nothing to 

advance the legislative aim of the statute, actively frustrates the purpose of the 

statute, and ignores both congressional intent and the historical relationship between VA and Ginnie Mae.6 To effectively address this problem, we strongly urge 

Congress to undertake technical corrections needed to restore Ginnie Mae eligibility 

for the orphaned loans and align the VA seasoning requirements with those of the 

other government mortgage programs. 

These technical corrections would entail two components. First, the Ginnie Mae 

seasoning requirement in Section 309(b) of the legislation should be eliminated. By 

striking this language, Ginnie Mae would no longer be prohibited from guaranteeing 

MBS backed by the orphaned VA refinances, which would effectively restore the eligibility of the loans for pooling. This correction would not diminish the anti-churning purpose of the legislation, as the seasoning requirements would remain a condition of the VA guaranty, which itself is a condition of Ginnie Mae pooling. Therefore, VA loans that do not meet the seasoning requirements prior to refinancing 

would not be eligible to serve as collateral for Ginnie Mae MBS. 

Second, the seasoning period defined in Section 309(a) of the legislation should 

be amended to match that of the earlier Ginnie Mae requirements. That is, 210 days 
133 

should be required to pass between the first payment due date of the prior loan and 

the first payment due date of the refinance. This amended calculation would align 

the VA seasoning requirement with those of the other government mortgage programs. And importantly, it would also facilitate improved adoption in the market, 

as the current calculation suffers from the fact that many lenders are unable to determine the date on which the first payment on the prior loan was made by the borrower. Without this information, it is impossible for lenders to be certain that they 

are compliant with the new requirements. 

These technical corrections would address a pressing need in the current market 

and would allow for more sensible implementation of these important anti-churning 

provisions on an ongoing basis. We strongly urge the Committee to work with the 

Committee on Banking, Housing, and Urban Affairs and other relevant stakeholders 

to enact these corrections as soon as possible. 

* * * 

MBA appreciates the opportunity to provide our views regarding H.R. 299, as well 

as the ongoing problems related to VA refinances that are ineligible to serve as collateral for Ginnie Mae securities. We look forward to our continued work with the 

Committee as it undertakes issues that are critical to maintaining veterans’ access 

to safe, reliable, and affordable mortgage credit. 

PREPARED STATEMENT OF MILITARY OFFICERS ASSOCIATION OF AMERICA

CHAIRMAN ISAKSON, RANKING MEMBER TESTER, AND MEMBERS OF THE COMMITTEE

ON VETERANS’ AFFAIRS, The Military Officers Association of America (MOAA) is 

pleased to submit its views on pending legislation under consideration. 

MOAA does not receive any grants or contracts from the Federal Government. 

EXECUTIVE SUMMARY

On behalf of the 350,000 members of MOAA, the largest military service organization representing the seven uniformed services, including active duty and Guard 

and Reserve members, retirees, veterans, and survivors and their families, thank 

you for your commitment and enduring support of our Nation’s servicemembers and 

veterans and their families. 

MOAA offers our position on the following bills. 

• H.R. 299, Blue Water Navy Vietnam Veterans Act of 2018 

• S. ll, Veterans Dental Care Eligibility Expansion and Enhancement Act of 

2018 

• Discussion Draft on Transition Assistance Reform 

• S. 1596, BRAVE Act of 2017 

• S. 1952, VA Financial Accountability Act of 2017 

• S. 1990, Dependency and Indemnity Compensation Improvement Act of 2017 

• S. 2748, BATTLE for Servicemembers Act 

• S. ll, Grant Program on Provision of Suicide Prevention Services for Veterans 

• S. ll, Modernization of Medical Records Access for Veterans Act 

• S. 514, No Hero Left Untreated Act 

MOAA takes no position on: S. 3148; S. ll, VA Hiring Enhancement Act; 

S. 5418, Veterans Affairs Medical-Surgical Purchasing Stabilization Act; S. 2881, 

Mare Island Naval Cemetery Transfer Act; and S. 2485, Medal of Honor Surviving 

Spouses Recognition Act. 

PENDING LEGISLATION

H.R. 299, Blue Water Navy Vietnam Veterans Act of 2018. 

MOAA supports this legislation. 

MOAA has always supported restoring the presumption of herbicide exposure to 

Blue Water Navy Veterans. MOAA further supports the extension of the presumption to veterans who served on the Korean DMZ from Sept. 1, 1967, to Aug. 31, 
134 

1Wall T, Guay A. The per-patient cost of dental care, 2013: a look under the hood. Health Policy Institute Research Brief. American Dental Association. March 2016. Available from: 

http://www.ada.org/∼/media/ADA/Science%20and%20Research/HPI/Files/HPIBrief_0316_4.pdf 

1971, as well as benefits to children born with spina bifida of veterans who served 

in Thailand during the Vietnam conflict. 

MOAA is disappointed that the only way found to fund these benefits was raising 

VA home loan fees. This places the financial burden solely on the 1 percent of the 

U.S. population who served their nation in time of conflict and relieves the remaining 99 percent of our Nation’s population of bearing any financial responsibility or 

liability. Those who sacrificed will continue to sacrifice and subsidize a solution to 

resolve the toxic exposure of veterans who provided our Nation’s security and defense. 

MOAA is grateful the legislation includes a provision proposed by MOAA to use 

a portion of these funds toward a report on a follow-up study on certain Gulf War 

illnesses. It is clear the reason Vietnam veterans have had exceptional difficulty in 

obtaining VA benefits for their conditions was the direct result of the failure of the 

Department of Defense to accurately and adequately maintain records of toxic exposures. MOAA asks for this Committee to work collaboratively with the Committee 

on Armed Services to ensure future generations of veterans are not placed in the 

same predicament. 

S. ll, Veterans Dental Care Eligibility Expansion and Enhancement Act of 2018 

MOAA supports this legislation and requests Congress provide the associated 

funding needed to support the legislative requirements of this bill. 

It is well established that dental health correlates to overall health and affects 

vital functions such as overall nutrition. According to studies, cost barriers are the 

biggest burden to obtaining dental services and the burden is considerably higher 

than it is for other health care services.1 Many disabled veterans are unable to either afford paying for the cost of private dental care out-of-pocket or they lack access to dental insurance, so they go without. MOAA supports a pilot program to determine the overall health improvements made in veterans’ health given access to 

dental care, particularly in rural areas. 

MOAA believes the cost of the initiative could be reduced by making the pilot program smaller and still be able to assess overall health improvements. Any pilot program, however, should include rural areas. 

Discussion Draft on Transition Assistance Reform 

MOAA supports this draft bill. 

Military spouses experience some of the same issues servicemembers face when 

transitioning out of the military; one of the most common being finding employment. 

After having a re ́sume ́ filled with gaps in employment and multiple moves, spouses 

often need the same professional-development advice servicemembers need and receive through the Transition Assistance Program (TAP). Additionally, it is vital 

spouses are equally informed on veterans’ benefits that not only affect the servicemember but also their families. Often, spouses of servicemembers handle family 

matters such as health care and financial decisions, which are impacted by transition. TAP addresses these changes, and it is important spouses, especially those who 

handle these benefits for their families, are able to receive the information and ask 

questions from the TAP instructors. MOAA is pleased to see discussion on including 

military spouses in TAP, whereas previously spouses could attend only if space was 

available. 

MOAA understands the intent behind the waiver provision for members who 

might not benefit from attending the program. The waiver provision, however, does 

not contain a way for the member to express a desire or ability to attend the program even though he or she might be eligible for a waiver. The waiver is dictated 

by the services upon entire groups who are ‘‘unlikely to face major readjustment . . .

to civilian life’’ with no option for the member to override the waiver. This is problematic, as individuals within those groups might, nonetheless, have circumstances 

that would present them with such challenges and have no way of accessing the program. MOAA recommends, for groups or classifications designated by the service 

secretaries as being waived from the program, that individual members have a way 

to opt into the program nonetheless. The program, after all, is meant to benefit the 

member, not the service, so the ultimate decision to waive off should reside with 

the member and not the service. 

For members ‘‘possessing specialized skills’’ who are unable to attend the program 

‘‘to support the imminent deployment of a unit,’’ MOAA would like the program to 

be made available to them within a year of their separation from service. The No-
135 

2 National Funeral Directors Association, Statistics, available at http://www.nfda.org/news/ 

statistics 

vember 2017 Government Accountability Office report titled ‘‘Transitioning Veterans; DOD Needs to Improve Performance Reporting and Monitoring for the Transition Assistance Program,’’ noted over one-third (37 percent) of servicemembers surveyed did not attend TAP at all, not even the core curriculum portion, because they 

were not released from their duties due to having mission-critical skills. Having 

over one-third of transitioning servicemembers unprepared for their follow-in careers is simply unacceptable. Allowing these servicemembers to participate within 

a year of separating from service would ensure they still are able to receive the 

training and assistance in a fashion that does not compromise the mission. 

MOAA further recommends the inclusion of information specific to women veterans in the program. A Department of Veterans Affairs (VA) employee recently 

shared a sentiment that MOAA has heard echoed both from women veterans and 

the VA: ‘‘Women veterans are still coming to us in the VA not even knowing how 

to apply for all the benefits they rate. They need to be educated prior to leaving 

service to ensure we can effectively assist them once they get here.’’ Data and experience have identified areas where women veterans have unique experiences and 

needs following transition, yet women veterans still are bypassing the VA or are arriving there unaware of what they should be doing to access the women-specific benefits and services available to them in the department. This indicates a failure in 

the agencies communicating about the benefits and resources for women veterans. 

S. 1952, Department of Veterans Affairs Financial Accountability Act of 2017 

MOAA supports this legislation. 

The VA Financial Accountability Act introduced by Sens. Jon Tester (D-Mont.), 

John McCain (R-Ariz.), Jerry Moran (R-Kan.), and Tim Kaine (D-Va.) would improve 

the oversight and accountability of VA financial processes. 

The bill provides a sense of Congress as to what a normal or standard budget 

process should look like for the VA in seeking future appropriations: 

• The process should be grounded in sound actuarial analysis based on accurate 

demand data for forecasting. • The regular budget process should be the norm. • Requests for supplemental appropriations should be used sparingly and for unforeseen demand or natural occurrences. 

More specifically, the VA would be required to contract with an independent third 

party to: review and audit financial processes and reporting structures, including actuarial and estimation models and develop recommendations for financial system 

improvements. The secretary of the VA then would submit a plan for implementing 

the report recommendations to both the Senate and House Committees on Veterans’ 

Affairs. One individual within the Office of the Secretary would be responsible for 

monitoring the status and implementation of the recommendations. 

The secretary also would be required to notify Congress not later than 45 days 

in advance of a request for supplemental appropriation for budgetary issues outside 

of the standard budget process. The VA chief financial officer (CFO) would be required to provide a statement with supporting materials to the Committees assuring 

financial projections submitted with the president’s annual budget request is sufficient to provide benefits and services in the department. Additionally, the CFO 

must certify responsibility for internal controls and collaboration with department 

financial officers of all facilities and components when submitting the VA’s annual 

budget. 

MOAA, like lawmakers, recognizes VA fiscal problems cannot continue to be fixed 

by adding more money to the budget, particularly during fiscally constrained times. 

Implementation of the Choice Program and ongoing funding crises in recent years 

have brought to light a number of problems associated with VA financial, data management, and forecasting systems. MOAA supports the VA Financial Accountability 

Act and believes the audit and certification provisions in the bill are long overdue 

and a much needed move in the right direction to get the VA’s fiscal house in order. 

S. 1596, BRAVE Act of 2017 

MOAA supports this legislation and requests Congress provide the associated 

funding needed to support the legislative requirements of this bill. 

The BRAVE Act would correct a long-overdue shortfall that places an unnecessary burden on surviving families. In 2017, the average funeral cost over $8,000.2 The 

current VA reimbursement rate of $300 for veterans not dying of a service-connected 

disability amounts to less than 4 percent of the costs a surviving family may incur. 

The current reimbursement rates for the family of a veteran dying of a service-con-
136 

nected cause amounts to 25 percent of the total potential cost. Using the Consumer 

Price Index to increase these amounts periodically is a logical solution to attempting 

to alleviate some of the burden that results from these low reimbursement amounts. 

S. 1990, Dependency and Indemnity Compensation Improvement Act of 2018 

MOAA is supportive of this legislation, pending modification. We request Congress provide the associated funding needed to support the legislative requirements 

of this bill. 

The Dependency and Indemnity Compensation Improvement Act would make important changes to Title 38: It would change the computation of Dependency and 

Indemnity Compensation (DIC); it would reduce from 10 years to five the number 

of years a veteran must be rated permanently disabled for a survivor to become eligible for DIC; and it would reduce from 57 to 55 the age at which a surviving spouse 

may remarry and retain DIC. 

The Dependency and Indemnity Compensation Improvement Act would change 

the computation of DIC to 55 percent of the rate of pay for a 100-percent-disabled 

veteran. Changing the formula for how DIC is calculated would make the benefit 

more in line with that of other Federal programs. The change would provide approximately $300 more per month for qualified survivors. 

MOAA commends the desire to increase DIC payments. The increase in tax-free 

compensation would be a welcomed addition to qualified survivors. However, the 

bill, as currently written, omits an important provision contained in previous military survivor bills. MOAA would like to see the following language incorporated into 

the bill: 

(g) In the case of an individual who is eligible for Dependency and Indemnity Compensation under this section who is also eligible for benefits under 

another provision of law by reason of such individual’s status as the surviving spouse of a veteran, then, notwithstanding any other provision of law 

(other than section 5304(b)(3) of this title), neither a reduction nor an offset 

in benefits under such provision shall be made by reason of such individual’s eligibility for benefits under this section. 

The bill also lowers the number of years a veteran must be rated 100 percent disabled for a survivor to qualify for DIC. MOAA supports a graduated scale of benefits 

after five years of being rated permanently and totally disabled for surviving 

spouses of veterans. 

The bill also would lower from 57 to 55 the age at which a surviving spouse may 

remarry and retain DIC benefits. The change would align DIC with other Federal 

programs. MOAA supports this change. 

As Members of the Committee know, the Survivor Benefit Plan (SBP) and DIC 

are benefits paid for two distinct reasons. SBP is a voluntary, member-purchased 

annuity provided by DOD, allowing a continuation of a portion of military retired 

pay upon the death of the servicemember. DIC is a VA-paid monetary benefit for 

eligible survivors whose sponsors died of a service-connected injury or disease. 

MOAA remains steadfast believing the only way to end the unfair treatment of survivors of military retirees and those killed in the line of duty is to repeal SBP-DIC 

offset. 

S. 2748, BATTLE for Servicemembers Act 

MOAA supports this legislation and requests Congress provide the associated 

funding needed to support the legislative requirements. 

The November 2017 Government Accountability Office report titled ‘‘Transitioning 

Veterans; DOD Needs to Improve Performance Reporting and Monitoring for the 

Transition Assistance Program,’’ noted that participating in the two-day additional 

classes offered through TAP was thwarted by ‘‘lack of commander support’’ and that 

57 percent of the installations that GAO spoke to stated ‘‘commanders and direct 

supervisors were less inclined to allow servicemembers to attend these classes because they were considered optional.’’ The lack of opportunity by these servicemembers to participate in such an important transition program element defies the 

intent and institutional rigor dedicated to transition programs in the first place. 

Changing the two-day classes from an opt-in model to a member opt-out model 

has the potential to minimize this level of command interference and to reinforce 

the importance of the program to a transitioning servicemember’s future career. 

S. ll, Grant Program on Provision of Suicide Prevention Services for Veterans 

MOAA supports this legislation and requests Congress provide the associated 

funding needed to support the legislative requirements. 

The bill requires the secretary of Veterans Affairs to establish a program to award 

grants to persons to provide and coordinate the provision of suicide prevention serv-
137 

ices for veterans transitioning from service in the Armed Forces who are at risk of 

suicide and for their families, and for other purposes. It augments existing VA programs and is a natural extension of those resources. 

The bill is comprehensive in its attempt to capture the key functional requirements to provide suicide prevention services for veterans and their families. The 

focus and priority is placed on veterans and families who live away from any VA 

medical center and are located in more rural or tribal areas, which MOAA supports 

given the sparsity of resources in those areas. MOAA would like the legislation to 

emphasize that this legislation will not compete with or be a replacement for existing VA suicide prevention services, but is intended only as a compliment to what 

VA provides. 

It is anticipated that programs selected will have a history of providing these 

services along with the relevant programmatic and professional credentialing. A 

brief review of grants and activities of SAMSHA (Substance Abuse and Mental 

Health Services Administration) shows a wide variety of public/private and community partnership activities and programs and certified community behavioral health 

clinics. Given the existing precedent in other areas, veterans should be allowed to 

benefit from such arrangements, as well. 

MOAA specifically appreciates including services for families under grant uses as 

family members feel the direct impact of the mental health of their veteran and 

this, in turn, can influence their own mental health. 

S. ll, Modernization of Medical Records Access for Veterans Act 

MOAA does not support this legislation. 

This bill would direct the VA to carry out, in at least one Veterans Integrated 

Services Network (VISN), a pilot program for at least a 12-month period during 

which veterans enrolled in the VA’s patient enrollment system will use a portable 

medical records storage system to store and share with VA health care providers 

and community health care providers records of their individual medical histories. 

This is specified to be similar in nature and characteristics to a standard credit 

card. The bill also prohibits new appropriations in carrying out this pilot. 

MOAA is supportive of a system that would enable veterans who receive care 

from non-VA providers to be able to consolidate their VA and non-VA records in an 

effective and efficient manner. This is important to ensure continuity of care and 

accuracy of treatment. MOAA does not support, however, the express prohibition on 

new appropriations to carry this initiative out. Unfunded mandates have the significant potential to harm other VA programs from which the funds are extracted. Further, MOAA has supported the implementation of the current VA electronic health 

record initiative and believes that a solution for needs such as these could be satisfied through that system if properly implemented. 

S. 514, No Hero Left Untreated Act 

MOAA supports this legislation. 

This legislation would establish a pilot program within the VA on a promising 

neurological treatment option for mental trauma called magnetic EEG/EKG-guided 

resonance therapy, also known as Magnetic eResonance Therapy (MeRT). This is an 

individualized non-pharmaceutical, non-invasive neuromodulation procedure that 

applies magnetic stimulation to restore proper brain function. To date, open label 

trials and placebo-controlled, double-blind studies indicate over 400 veterans have 

reported a marked improvement in symptoms associated with PTS, TBI, MST, 

chronic pain, and opiate addiction. One study done at Tinker Air Force Base, after 

four weeks of testing, specifically concluded, ‘‘Transcranial MeRT is a promising adjuvant treatment modality to help veterans suffering from PTSD.’’ 

MOAA believes there is sound research to support a pilot on 50 veterans. MOAA 

also notes the bill prohibits new appropriations to carry out the pilot program. Although MOAA generally objects to unfunded mandates, the fact this pilot is limited 

to 50 veterans and only requires VA to provide ‘‘access to’’ the treatment vice directly rendering the treatment, MOAA believes the cost will be negligible. 

MOAA thanks the Committee for considering these important pieces of legislation, 

and we look forward to working with Members of Congress in making the necessary 

changes listed above and to move the bills quickly through the Congress for final 

passage. 
138 

PREPARED STATEMENT SUBMITTED BY ALEKS MOROSKY, NATIONAL LEGISLATIVE

DIRECTOR, MILITARY ORDER OF THE PURPLE HEART

CHAIRMAN ISAKSON, RANKING MEMBER TESTER, AND MEMBERS OF THE COM- MITTEE, On behalf of the Military Order of the Purple Heart (MOPH), whose membership is comprised entirely of combat wounded veterans, I thank you for inviting 

us to submit our views on pending legislation. For the purposes of this statement, 

we will focus our comments on H.R. 299, the Blue Water Navy Vietnam Veterans 

Act of 2018, specifically section 6(c), which extends the Department of Veterans Affairs (VA) Home Loan funding fee waiver to Purple Heart recipients serving on active duty in the Armed Forces. 

As its name implies, the Blue Water Navy Vietnam Veterans Act deals in large 

part with extending presumptive service connection for conditions related to Agent 

Orange exposure to veterans who served offshore of the Republic of Vietnam from 

January 9, 1962 to May 7, 1975. It would also grant the same presumptive service 

connection for veterans who served on the Korean Demilitarized Zone from September 1, 1967 to August 31, 1971, extend benefits to the children born with spina 

bifida to certain veterans who served in Thailand, and require VA to submit an updated report on its Gulf War Illness study. MOPH supports all of these provisions. 

This legislation also makes a number of technical changes to the VA Home Loan 

Program. Among those is section 6(c), which would extend the VA home loan funding fee waiver to active duty Purple Heart recipients. Since VA home loans require 

no down payment or mortgage insurance, the funding fee is used to cover any losses 

VA may incur in guaranteeing the loans. The fees for first time users of the program 

are between 2.15 and 2.4 percent of the loan amount, and may be paid upfront or 

financed as part of the loan. While the VA Home Loan Program is a valuable benefit, the funding fee generally adds thousands of dollars to the final amount of the 

loan. However, disabled veterans and surviving spouses of veterans who died of 

service-connected disabilities are eligible to have the funding fee waived as a benefit 

of their service. 

Combat wounded veterans still serving on active duty, however, are required to 

pay the funding fee in all cases. MOPH strongly believes that these veterans, the 

vast majority of whom will almost certainly be eligible for some level of service-connected disability rating upon separation, should be entitled to the funding fee waiver on the same basis as disabled veterans who have already been discharged. Many 

active duty Purple Heart recipients were severely wounded in Iraq and Afghanistan, 

and spent many months recovering in military hospitals before they were able to 

return to duty. Others may spend months or years in military hospitals before ultimately receiving medical discharges, but may wish to purchase homes during that 

period of recovery. MOPH sees absolutely no reason why they should be penalized 

by the VA Home Loan Program in any way, simply because they continue to serve 

on active duty in some capacity. 

This issue was first brought to our attention by a MOPH member, Major Byron 

Owen, United States Marine Corps. A multiple Purple Heart recipient, Major Owen 

was wounded twice in Iraq in 2006, and again in Afghanistan in 2008. After recently deciding to use his VA Home Loan benefit, and being aware that veterans 

with service-connected disabilities are exempt from the funding fee, he was frustrated to discover that he was not eligible for the waiver as an active duty servicemember. In his own words: 

‘‘I think they (VA) unfairly punish active duty personnel who choose to remain in uniform instead of accept medical separation or retirement. I was 

medevac’d out of Iraq in 2006 and had to undergo months of therapy to return to service. Why should I have to pay 20 grand to get a VA loan when 

someone with a non-combat related disability gets to waive it? Some of my 

friends are amputees in uniform. They’re paying the funding fee. Does that 

seem right? I think someone should advocate on the behalf of active duty 

Purple Heart recipients who would almost certainly receive service-connected disability payments if we were out.’’ 

MOPH strongly agrees with Major Owen, and stands with him and the approximately 8,000 other Purple Heart recipients currently serving on active duty in the 
139 

U.S. military. Veterans who have been wounded in combat with the enemies of our 

Nation have made incredible sacrifices, and under no circumstances should they be 

excluded from a benefit as significant as the VA Home Loan funding fee waiver, 

simply because of their duty status. We strongly urge the Committee to correct this 

injustice by passing H.R. 299 without delay. 

Chairman Isakson, Ranking Member Tester, this concludes my statement. On behalf of the Order, I thank you for the opportunity to submit our statement, and 

would be happy to answer any questions for the record that you or other Members 

of the Committee may have. 

PREPARED STATEMENT SUBMITTED BY CDR JOHN B. WELLS, USN (RET.), 

EXECUTIVE DIRECTOR, MILITARY-VETERANS ADVOCACY

INTRODUCTION

DISTINGUISHED CHAIRMAN JOHNNY ISAKSON, RANKING MEMBER JON TESTER AND

OTHER MEMBERS OF THE COMMITTEE, Thank you for the opportunity to present Military-Veterans Advocacy’s views on H.R. 299, the Blue Water Navy Vietnam Veterans Act of 2017. 

ABOUT MILITARY-VETERANS ADVOCACY

Military-Veterans Advocacy Inc. (MVA) is a tax exempt IRC 501[c][3] organization 

based in Slidell, Louisiana that works for the benefit of the Armed Forces and military veterans. Through litigation, legislation and education, MVA seeks to obtain 

benefits for those who are serving or have served in the military. In support of this, 

MVA provides support for various legislation on the State and Federal levels as well 

as engaging in targeted litigation to assist those who have served. 

Along with the Blue Water Navy Vietnam Veterans Association, Inc (BWNVVA) 

and the Fleet Reserve Association (FRA), MVA has been the driving force behind 

the Blue Water Navy Vietnam Veterans Act (H.R. 299). Working with Members of 

Congress and United States Senators from across the political spectrum, MVA and 

BWNVVA provided technical information and support to sponsors who have worked 

tirelessly to partially restore the benefits stripped from the Blue Water Navy veterans sixteen years ago. H.R. 299 passed the House of Representatives by a bi-partisan and unanimous vote of 382–0. 

MILITARY-VETERANS ADVOCACY’S EXECUTIVE DIRECTOR

COMMANDER JOHN B. WELLS, USN (RET.)

MVA’s Executive Director, Commander John B. Wells, USN (Retired), has long 

been viewed as the technical expert on H.R. 299. A 22-year veteran of the Navy, 

Commander Wells served as a Surface Warfare Officer on six different ships, with 

over ten years at sea. He possessed a mechanical engineering subspecialty, was 

qualified as a Navigator and for command at sea, and served as the Chief Engineer 

on several Navy ships. As Chief Engineer, he was directly responsible for the water 

distillation and distribution system. He is well versed in the science surrounding 

this bill and is familiar with all aspects of surface ship operations. This includes 

the hydrological effect of wind, tides and currents. 

Since retirement, Commander Wells has become a practicing attorney with an emphasis on military and veterans law. He is counsel on several pending cases concerning the Blue Water Navy and has filed amicus curiae briefs in other cases. He 

has tried cases in state, Federal, military and veterans courts as well as other Federal administrative tribunals. Since 2010 he has visited virtually every Congressional and Senatorial offices to discuss the importance of enacting a bill to partially 

restore benefits to those veteran who served in the bays, harbors and territorial seas 

of the Republic of Vietnam. He is also recognized in the veterans community as the 

subject matter expert on this matter. 

HISTORICAL BACKGROUND SURROUNDING H.R. 299

In the 1960’s and the first part of the 1970’s the United States sprayed over 

12,000,000 gallons of a chemical laced with 2,3,7,8-Tetrachlorodibenzodioxin (TCDD) 
140 

and nicknamed Agent Orange over southern Vietnam. This program, code named 

Operation Ranch Hand, was designed to defoliate areas providing cover to enemy 

forces. Spraying included coastal areas and the areas around rivers and streams 

that emptied into the South China Sea. By 1967, studies initiated by the United 

States government proved that Agent Orange caused cancer and birth defects. Similar incidence of cancer development and birth defects have been documented in 

members of the United States and Allied Armed Forces who served in and near 

Vietnam. 

Throughout the war, the United States Navy provided support for combat operations ashore. This included air strikes and close air support, naval gunfire support, 

electronic intelligence, interdiction of enemy vessels and the insertion of supplies 

and troops ashore. Almost every such operation was conducted within the territorial 

seas of the Republic. 

The South China Sea is a fairly shallow body of water and the thirty fathom curve 

(a fathom is six feet) extends through much of the area designated in the bill. The 

gun ships would operate as close to shore as possible. The maximum effective range 

of the guns required most operations to occur within a few thousand yards of shore. 

It was common practice for the ships to anchor while providing gunfire support. 

Digital computers were not yet in use and the fire control systems used analog computers. By anchoring, the ship’s crew was able to achieve a more stable fire control 

solution, since there was no need to factor in their own ship’s course and speed. It 

was also common for ships to steam up and down the coast at high speeds to respond to call for fire missions, interdict enemy sampans and other operational requirements. 

AGENT ORANGE ACT OF 1991

In 1991, the Congress passed and President George H. W. Bush signed, the Agent 

Orange Act of 1991, Pub.L. 102–4, Feb. 6, 1991, 105 Stat. 11. This Federal law required VA to award benefits to a veteran who manifests a specified disease and who 

‘‘during active military, naval, or air service, served in the Republic of Vietnam during the period beginning on January 9, 1962, and ending on May 7, 1975.’’ 

The Department of Veterans Affairs (hereinafter VA) drafted regulations to implement the Agent Orange Act of 1991 and defined ‘‘service in the Republic of Vietnam’’ 

as ‘‘service in the waters offshore and service in other locations if the conditions of 

service involved duty or visitation in the Republic of Vietnam.’’ 38 CFR 

§ 3.307(a)(6)(iii) (1994). This was in contrast to a previous definition which defined 

‘‘service in the Republic of Vietnam’’ as ‘‘service in the waters offshore, or service 

in other locations if the conditions of service involved duty or visitation in Vietnam.’’ 

38 CFR § 3.313 (1991). The placement of the comma became critical in the VA’s interpretation. As a result of the comma’s omission, benefits were stripped from those 

who served in the bays, harbors and territorial seas of Vietnam. 

Originally, the VA interpreted the regulation to allow the presumption of exposure throughout the Vietnam Service Medal area, which is the dark solid line 

marked on the Exhibit. Under this definition, a ballistic missile submarine was covered as were the aircraft carriers on Yankee Station and submarines conducting operations where no Agent Orange was sprayed. These ships would not be covered 

under H.R. 299. 

In 1997 the VA General Counsel issued a precedential opinion excluding servicemembers who served offshore but not within the land borders of Vietnam. The opinion construed the phrase ‘‘served in the Republic of Vietnam’’ as defined in 38 

U.S.C. § 101(29)(A) not to apply to servicemembers whose service was on ships and 

who did not serve within the borders of the Republic of Vietnam during a portion 

of the ‘‘Vietnam era.’’ The opinion stated that the definition of the phrase ‘‘service 

in the Republic of Vietnam’’ in the Agent Orange regulation, 38 CFR 

§ 3.307(a)(6)(iii), ‘‘requires that an individual actually have been present within the 

boundaries of the Republic to be considered to have served there,’’ and that for purposes of both the Agent Orange regulation and section 101(29)(A), service ‘‘in the 

Republic of Vietnam’’ does not include service on ships that traversed the waters 

offshore of Vietnam absent the servicemember’s presence at some point on the 

landmass of Vietnam.’’ 

After lying dormant for a few years, this General Counsel opinion was incorporated into a policy change that was published in the Federal Register during the 

last days of the Clinton Administration. The final rule was adopted in Federal Register in May of that year. Comments by the VA concerning the exposure presumption recognized it for the ‘‘inland’’ waterways but not for offshore waters. 

Historically the VA’s Adjudication Manual, the M21–1 Manual, allowed the presumption to be extended to all veterans who had received the Vietnam service 
141 

medal, in the absence of ‘‘contradictory evidence.’’ In a February 2002 revision to the 

M21–1 Manual, the VA incorporated the VA General Counsel Opinion and the 

May 2001 final rule and required a showing that the veteran had set foot on the 

land or entered an internal river or stream. This ‘‘boots on the ground’’ requirement 

is in effect today. 

One exception to this rule deals with Non-Hodgkins Lymphoma. A punctuation 

difference in the regulation allows the VA to exclude Navy veterans suffering from 

other Agent Orange related illnesses. 

HYDROLOGICAL EFFECT

The Agent Orange that was sprayed over South Vietnam was mixed with petroleum. The mixture washed into the rivers and streams and discharged into the 

South China Sea. In addition, the riverbanks were sprayed continuously resulting 

in direct contamination of the rivers. 

The dirt and silt that washed into the river can be clearly seen exiting the rivers 

and entering the sea. This is called a discharge ‘‘plume’’ and in the Mekong River 

it is considerable. Although the Mekong has a smaller drainage area than other 

large rivers, it has approximately 85% of the sediment load of the Mississippi. In 

two weeks, the fresh water of the Mekong will travel several hundred kilometers. 

Notably, the Agent Orange dioxin dumped off the east coast of the United States 

was found in fish over one hundred nautical miles from shore. 

Eventually, the Agent Orange/petroleum mixture would emulsify and fall to the 

seabed. Evidence of Agent Orange impingement was found in the sea bed and coral 

of Nha Trang Harbor. During the Vietnam War, the coastline, especially in the harbors and within the thirty fathom curve was a busy place with military and civilian 

shipping constantly entering and leaving the area in support of the war effort. 

Whenever ships anchored, the anchoring evolution would disturb the shallow seabed 

and churn up the bottom. Weighing anchor actually pulled up a small portion of the 

bottom. The propeller cavitation from military ships traveling at high speeds, especially within the ten fathom curve, impinged on the sea bottom. This caused the 

Agent Orange to constantly rise to the surface. Tidal effects mixed the contaminated 

river water with the salt water in the territorial seas. The contaminated water was 

ingested into the ship’s evaporation distillation system which was used to produce 

water for the boilers and potable drinking water. Navy ships within the South 

China Sea were constantly steaming through a sea of Agent Orange molecules. 

JUDICIAL IMPACT

This matter first came before the judiciary in 2006. Haas v. Nicholson, 20 Vet. 

App. 257. The Haas court found that the veteran, who was operating off the shoreline, was within the scope of the statutory definition and invalidated the VA ‘‘boots 

on the ground’’ policy. The Federal Circuit reversed in Haas v. Peake, 525 F.3d 

1168, 1196 (Fed. Cir. 2008) reh’g denied Haas v. Peake, 544 F.3d 1306, 1309 (Fed. 

Cir. 2008). 

In 2015, the Court of Appeals for Veterans Claims considered another Blue Water 

case, as it applied to bays and harbors, in Gray v. McDonald, 27 Vet. App. 313 

(2015). The Gray Court found the Secretary’s exclusion of Da Nang from their inland waterways definition was arbitrary and capricious. Gray, 27 Vet. App. at 313. 

The Gray court went on to note that the VA failed to address their rationale in excluding areas where brown water and blue water mix, such as Da Nang Harbor. 

Gray, supra., at 322. Stopping short of applying a definition of inland waters, the 

Gray Court ruled that they would vacate the BVA decision and remand the matter 

to the VA. The Secretary did not file an appeal. The Secretary failed to follow the 

Gray court’s guidance. A new regulation issued in the M21–1 Manual on February 5, 2016 renewed the same exclusionary policy used to deny the veterans their 

benefits. A petition for review, pursuant to 38 U.S.C. § 502, was filed in the Court 

of Appeals for the Federal Circuit. The petition was dismissed due to lack of jurisdiction. Gray v. MacDonald, 830 F.3d 570 (D.C. Cir. 2016). A petition for rehearing 

en banc was also denied 7–3. Gray v. Sec’y of Veterans Affairs, 884 F.3d 1379 (Fed. 

Cir. 2018). A petition for certiorari is pending in the Supreme Court of the United 

States. 

Additionally, there is a case pending in the United States Court of Appeals for 

the Federal Circuit, Procopio v. O’Rourke, 17–1821. Briefing and oral argument 

have completed. Procopio asks the court to extend the presumption of exposure to 

the territorial seas. Procopio, assuming it is decided in favor of the veterans, will 

not resolve the problem. Without the geographic designations incorporated into the 

bill, the VA would be free to define the territorial seas as they desired. Accordingly, 

H.R. 299 is needed to fix the area to be covered. 
142 

COST OF H.R. 299

The Congressional Budget Office has scored H.R. 299 at $894 million over ten years. This includes $882 million for the Blue Water component and the remainder 

to provide expanded benefits to Korea DMZ veterans and additional Spina Bifida 

benefits. H.R. 299 also called for an increase in loan guarantee fees which will generate $1.165 billion over ten years. Accordingly, H.R. 299 will result in a $271 million dollar savings to the government over ten years. 

The loan guarantee fees vary depending on whether there is a down payment and 

whether it is the first or subsequent use of the home loan benefit. The increased 

rates will vary between 1.25% and 3.30% and are expected to cost the veteran $2.00 

to $2.50 per month. Disabled veterans will generally be exempt from the provision. 

The cap on jumbo loans will be removed which will allow the VA to provide a guarantee on the full amount of the loans. The disabled veteran exemption for jumbo 

loans will not apply however, unless the veteran is 100% disabled. 

The bill and the offset have generally received the support of the Veterans Service 

Organizations. The exception seems to be a real estate agent, George Varrato II, a 

Phoenix Realtor has objected to the offset although he does not object to the bill. 

Varrato contacted the undersigned several weeks ago but was unable to provide any 

substitute offset significant enough to finance these benefits. He was also unable to 

provide information on how many veterans would be affected by the fees. 

Although Military-Veterans Advocacy is unhappy with any offset for additional 

veterans benefits, the reality of the situation is that they are required by Pub. L. 

111–139. Of the various offsets reviewed by MVA, this offset seems the most 

innocuous. 

COMMON VA MISREPRESENTATIONS

The VA has consistently opposed the expansion of the presumption of exposure. 

On October 24, 2017, however, former Secretary Shulkin expressed support for H.R. 

299 in his testimony before the House Veterans’ Affairs Committee. Given the previous opposition, and the lack of a confirmed Secretary to articulate the present VA 

position, MVA feels compelled to address previous VA misrepresentations. 

Some common VA misrepresentations are as follows: 

Misrepresentation: The Australian distillation study was never peer reviewed. 

MVA Comment: The report was presented for review at the 21st International 

Symposium on Halogenated Environmental Organic Pollutants and POPs and is 

published in the associated peer reviewed conference proceedings: Mller, J.F., Gaus, 

C., Bundred, K., Alberts, V., Moore, M.R., Horsley, K., 2001. It was also reviewed 

and confirmed by two separate committees of the Institute of Medicine. 

Misrepresentation: There is no evidence that the evaporation distillation process 

used by the Australians was the same as used on United States ships. 

MVA Comment: All steam ships used a similar system which remained in place 

until the 1990’s. In addition many of the Australian gun ships were the United 

States Charles F. Adams class and were built in the United States. Both the MVA 

Executive Director and another experienced Navy Chief Engineer have reviewed the 

Australian report. They concluded the distillation systems therein were the same as 

used by United States Navy ships. 

Misrepresentation: There is no evidence that Navy ships distilled potable water. 

MVA Comment: Ships carried a reserve of potable water but it was normally replenished by distillation daily or every other day. A Destroyer sized ship carried less 

than 20,000 gallons for a crew size between 275 and 300 men. The water was used 

for cooking, cleaning, laundry, showering and drinking. As Vietnam is in the tropics, 

significant hydration was necessary. In addition, the warmer sea injection temperature below the 17th parallel resulted in less efficient water production. Water hours, 

where showers were limited or banned, was common during tropical deployments. 

Water was constantly being distilled to meet the requirements for boiler feed water 

and potable water. 

Misrepresentation: The Australian study monitored the reverse osmosis system 

rather than the evaporation distillation system used on United States Navy ships. 

MVA Comment: The only time that the reverse osmosis system was used in the 

Australian study was to purify the baseline sample prior to adding the solids and 

sediments consistent with the estuarine waters of Vietnam. The actual distillation 

process, as confirmed above, was the same distillation system used by United States 

Navy ships. 

Misrepresentation: The IOM found more pathways of Agent Orange exposure for 

land based veterans than those at sea. 

MVA Comment: Technically this is true but irrelevant. The IOM noted that discharges from rivers and steams was a pathway unique to the Blue Water Navy and 
143 

that it was one of the plausible pathways of exposure. The number of possible pathways is not determinative. What is conclusive is that pathways of exposure existed. 

Misrepresentation: The IOM could not quantify any Agent Orange in the water. 

MVA Comment: This again is a red herring. Any amount of exposure can do damage to the human body. The IOM also found that the evaporation distillation process 

enriched the dioxin by a factor of ten. This is consistent with Australian studies 

showing a higher cancer incidence among Navy veterans and a Center for Disease 

Control study showing a higher incidence of Non-Hodgkins Lymphoma among Navy 

veterans. 

Misrepresentation: Ships operating hundreds of miles off shore who were not exposed will be given the presumption of exposure. 

MVA Comment: Not true. This bill applies only to the territorial seas which at 

their widest point off the Mekong extends out to 90 nautical miles from the mainland. In the central and northern part of the Republic of Vietnam, the territorial 

seas would only extend 20–30 nautical miles from the mainland. 

Misrepresentation: Submarines would come into the area to obtain the Vietnam 

Service Medal for their crews and would be eligible for the presumption. 

MVA Comment: One ballistic missile submarine the USS Tecumseh, SSBN 628 

did enter the VSM area for that purpose but there is no indication that they entered 

the territorial seas. Submarines operating off of Haiphong or near Hainan Island 

would not have been within the territorial seas and are not covered by H.R. 299. 

Misrepresentation: No Agent Orange was sprayed over water. 

MVA Comment: Not true. MVA is in possession of statements from witnesses that 

ships anchored in Da Nang Harbor were inadvertently sprayed as the ‘‘Ranch Hand’’ 

planes made their approach to the airfield. Additionally, there are anecdotal reports 

of defective spray nozzles resulting in spray over the ships at anchor or operating 

in the South China Sea. Finally, the IOM recognized that the offsetting winds would 

blow some spray intended for the landmass over water. 

Misrepresentation: Navy regulations prevented ships from distilling water within 

ten miles of land. 

MVA Comment: This statement was taken out of context from a preventive medicine manual and was not a firm requirement. Ships were encouraged to not distill 

potable water near land because of the possibility of bacteriological contamination. 

Commanding Officers could allow potable water to be distilled close to land and 

often delegated that authority to the Chief Engineer. The IOM noted that the recommendation contained in the manual was widely ignored. More importantly, the 

recommendations in the manual did not apply to the distillation of feed water for 

use in the boilers. Since the same equipment was used for potable water, distillation 

to feed water would contaminate the entire system down to the final discharge 

manifold. Additionally, feed water used in auxiliary systems was discharged to the 

bilges via low pressure drains. Crew members would also be exposed to Agent Orange residue while cleaning and inspecting the watersides of boilers and the steam 

sides of condensers as well as other equipment. 

Misrepresentation: The IOM confirmed that there was no likelihood of exposure 

to herbicides in Da Nang Harbor. 

MVA Comment: The court in Gray v. McDonald, took the VA to task for this statement noting that this was not the conclusion of the IOM. 

CONCLUSION

MVA urges the adoption of H.R. 299. It will restore the earned benefits to tens 

of thousands of Navy veterans that were taken from them over a decade ago. This 

bill is supported by virtually all veterans organizations including the American Legion, Veterans of Foreign Wars, Vietnam Veterans of America, Reserve Officers Association, Fleet Reserve Association, Military Officers Association of America, Association of the U.S. Navy and other groups. We have always enjoyed the support of 

the Military Coalition. Enactment of this legislation is overdue and Military-Veterans Advocacy most strongly supports its passage. 
144 

ATTACHMENT

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The llooo.,.ble Jon Tc,tcr 

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311 Han Senate Office 13uo1Jins: 

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0c'3r Chairman ls"k"'" and Rooking .\I ember Tester: 

The 1.3 nullion member. of the National Association of REALTORS are 

supporter; of the\',\ home loan guarnmyprogrnm. RI'. \I.TORS' <uppon 

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sustainable. 

NAR supportS policic' thot will increase a,·ailabitity of this program. so that all 

qualified \·ctcrnn' c:an cuminue raking ad\·antagc of ir. HowC\'Cr, as a benefit~ 

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Elizabeth 

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146 

NATIONAL ASSOCIATION OF STATE VETERANS HOMES 

"Caring for America's Heroes" 

TESTIMONY OF 

SHARON L. MURPHY, PRESIDENT 

NATIONAL ASSOCIATION OF STATE VETERANS HOMES (NASVH) 

AUGUST 1, 2018 

SENATE COMMITTEE ON VETERANS' AFFAIRS 

FOR THE RECORD 

S. 3184 -LEGISLATION AFFECTING STATE VETERANS HOMES 

Chairman Isakson, Senator Tester and Members of the Committee: 

Thank you for the invitation to submit testimony for the record on S. 3184, legislation affecting 

State Veterans Homes. As President ofth.e National Association of State Veterans Homes 

(NASVH), and Director of the Charlotte Hall Veterans Home in Maryland, I am pleased to offer 

comments on S. 3184, legislation that would modify requirements regarding the percentage of 

nonvetenms who may be admitted to State Veterans Homes. 

As you may know, the Stmc Veterans Home program was established by a Congressional Act on 

August 27, 1888, and for 130 years State Homes have partnered with the federal government, 

specifically the Department of Veterans Affairs, to provide long term care services to honorably 

discharged veterans. Under this program, States may also allow widows. spouses, and Gold Star 

Parenls of veterans to be eligible for admission. 

There are currently 156 State Veteran Homes located in the 50 states and the Commonwealth of 

Puerto Rico. With over 30,000 total beds. the State Veterans Home program is the largest 

provider of long term care for our nation's veterans. State Homes receive basic per diem 

payments from VA for providing skilled nursing care, domiciliary care, and adult day health care 

(ADHC), which covers about one-third the cost of care. State Homes arc reimbursed at a higher 

rate for veterans rated 70% or more disabled who arc receiving skilled nursing care. VA also 

provides construction granrs to build, renovate and mainrain the Homes, with States required to 

provide at least 35 percent of the cost for such projects in matching funds. 

S. 3184 would modify a requirement for State Veterans Homes to receive construction grants 

that limits the percent of non veterans - such as spouses, widows and Gold Star Parents- to no 

more th.an 25% of the Home's total bed occupancy for mtrsing home care. This legislation, 

introduced by Sen. Bennett of Colorado, would create an exception for Homes that have a total 

bed occupancy less than 90% of their authorized nursing home bed levels, allowing such Homes 

to have up to 40% of their total bed occupancy be nonvctcraos. 
147 

PREPARED STATEMENT OF JOSHUA STEWART, DIRECTOR OF POLICY, NATIONAL

COALITION FOR HOMELESS VETERANS

CHAIRMAN ISAKSON, RANKING MEMBER TESTER, AND DISTINGUISHED MEMBERS OF

THE SENATE COMMITTEE ON VETERANS’ AFFAIRS: The National Coalition for Homeless Veterans (NCHV) is honored to present this statement for the record for the 

legislative hearing of February 7, 2018. On behalf of the 2,100 community- and 

faith-based organizations NCHV represents, we thank you for your commitment to 

serving our Nation’s most vulnerable heroes. 

This statement reflects NCHV’s mission of ending veteran homelessness and the 

bill presented at the hearing today that has the potential to most strongly impact 

that mission. There are three actions we should be carrying out as a country to further the goal of ending veteran homelessness: 1) supporting and—only where necessary—expanding current services, 2) spurring the creation of affordable housing, 
148 

and 3) filling service gaps in our current system. If passed into law S. 1072, the 

Homeless Veterans Prevention Act of 2017, would accomplish the first and last of 

these. 

S. 1072 would fill long-standing, critical gaps in our service delivery system. Despite years of progressively better services, accumulated expertise, and best practices, there are still areas in which we know we need to do better. For decades, the 

U.S. Department of Veterans Affairs has conducted the CHALENG report and survey which among other things identifies the unmet needs of homeless veterans. And 

for decades, this report has consistently revealed that among the highest unmet 

needs of male and female homeless veterans are help with legal issues of all kinds. 

Family law plays a particularly prominent role, but also legal issues revolving 

around restoring driver’s licenses, discharge upgrades, and financial issues are reported annually. And of course, legal assistance to prevent eviction and foreclosure 

is frequently reported. 

The long term, consistent nature of this unmet need points to a very real gap in 

our services. Section 3 of the Homeless Veterans Prevention Act would go a long 

way to ameliorating these issues for many veterans. The provision is well crafted 

and highlights the exact service need, while also allowing the Secretary leeway to 

add additional areas for legal services as he or she finds necessary. 

Similar to legal service’s frequent appearance on the CHALENG report is the 

issue of dental care. The provision of dental care has consistently appeared on the 

top unmet needs list of homeless veterans for decades; in the most recent 

CHALENG report it was particularly pronounced in the female homeless veteran 

population. Though important in their own right, dental care is not merely a comfort or confidence concern. Untreated dental needs can cause severe health issues, 

and constant pain can be a trigger for self-medication and/or substance abuse. Furthermore, pain or unsightly dental features can wreck the confidence of a job seekercausing a negative impact on the employment potential of a veteran. 

Extending dental care eligibility to homeless veterans in the HUD-VA Supportive 

Housing and Grant and Per Diem (GPD) programs, as well as those in the care of 

a Domiciliary, would be a huge step in the right direction. And that is exactly what 

Section 4 of S. 1072 accomplishes. 

In addition to filling these critical gaps in our service delivery system, this bill 

would also support our existing programs in two important ways; it allows the payment of per diem to GPD providers who serve the dependents of homeless veterans, 

and it extends the authority for the Supportive Services for Veteran Families 

(SSVF) program. 

As we modernize GPD, our transitional housing program at the VA, it becomes 

more and more clear that these providers need the authority to serve dependents 

of homeless veterans. While there are a very few providers who already do this, they 

must scrape together funding from other sources to make it work. Many providers 

who see the importance of this work and who wish to expand into it simply cannot 

make the math work. They need support from VA to make this shift possible. As 

it is now, veterans—in particular female veterans who statistically are more likely 

to be accompanied by children in their homelessness—are faced with the choice to 

get only themselves off the street or to stay with their children. Many understandably choose family unity and wait for permanent housing options together, out-ofdoors. Section 2 of S. 1072 would open the door for many more GPD providers to 

serve dependents; keeping families together, and improving the efficiency of our 

system. 

Finally, S. 1072 supports our existing programs by extending the authority for the 

SSVF program. But this is not merely a mundane annual re-authorization, and nor 

can it be. Because of an historical quirk in funding, there are 56 communities whose 

‘‘surge funding’’—awarded in FY 2015—expired at the end of FY 2017. To maintain 

the normal schedule of funding ($300 million per annum) and prevent the loss of 

services from the surge grants ($207 million over the next three years) the funding 

for the SSVF program for FY 2018 must be no less than $400 million. A list of communities who received surge funding and who are at risk of losing services without 

an increased FY 2018 appropriation can be found at https://www.va.gov/ 

HOMELESS/ssvf/docs/SSVF_September2014_GrantRecipients.pdf. 

Section 6 of S. 1072 provides the SSVF program an authorization of $500 million, 

which would allow VA to redistribute another round of surge funding at almost the 

same level as the FY 2015 round. This is the best scenario, and one which NCHV 

heartily supports. Of course, we must also point out that Section 6 would now need 

a technical correction to proposed subparagraph (F), changing ‘‘fiscal year 2017’’ to 

‘‘fiscal year 2018,’’ or even to ‘‘fiscal year 2019.’’ The latter change would exacerbate 

the gap in services felt in communities, but would allow the appropriations committees time to fully fund the increased authorization. 
149 

This one technical correction notwithstanding, the Homeless Veterans Prevention 

Act of 2017 is an outstanding piece of legislation. NCHV strongly supports S. 1072, 

and asks the Senate and the House to quickly pass it in its entirety. We thank the 

Senate Committee on Veterans’ Affairs for its tenacity on these issues, as well as 

the bills long-time sponsor, Senator Burr. All of your work on behalf of homeless 

veterans is commendable. 

LETTER FROM CO-DIRECTORS OF NATIONAL MILITARY AND VETERANS ALLIANCE
150 

PREPARED STATEMENT OF PARALYZED VETERANS OF AMERICA

CHAIRMAN ISAKSON, RANKING MEMBER TESTER, AND MEMBERS OF THE COMMITTEE, Paralyzed Veterans of America (PVA) would like to thank you for the opportunity to submit our views for the record on the important legislation pending before 

the Committee. The bills considered today can have a significant positive impact on 

veterans and their families who depend on the benefits and services available 

through the Department of Veterans Affairs (VA). Our comments will be limited to 

those bills in which PVA has a specific interest. 

H.R. 299, THE ‘‘BLUE WATER NAVY VIETNAM VETERANS ACT OF 2018’’ 

PVA supports H.R. 299, the ‘‘Blue Water Navy Vietnam Veterans Act of 2018.’’ 

This legislation would extend presumption of exposure to herbicides containing 
151 

dioxin, including Agent Orange, to veterans who served in ‘‘blue water’’ areas. Before 1997, Vietnam Veterans were eligible for a presumption of exposure to Agent 

Orange and other herbicides if ‘‘during active military, naval or air service they had 

served in the Republic of Vietnam’’ unless there was evidence they had not been 

exposed to Agent Orange. This policy was later amended so that service on the 

ground in Vietnam and service in inland waterways, ‘‘brown water,’’ was required 

to receive a presumption of exposure. PVA applauds you for making the necessary 

amendments to include veterans who served in ‘‘blue water’’ areas in the presumption. 

DRAFT BILL, THE ‘‘VETERANS DENTAL CARE ELIGIBILITY EXPANSION AND ENHANCEMENT

ACT OF 2018’’ 

PVA supports this draft legislation to improve dental care provided to veterans 

by VA. This legislation would establish a pilot program on expansion of dental services and treatment to all veterans enrolled in VA health care. Due to a lack of dental service providers within VA and the strict eligibility criteria for veteran patients 

to access such care, few veterans are able to access oral health care at VA. Veterans 

who do access VA dental care are generally those with service-connected dental conditions or injuries or other dental conditions that are aggravated by a service-connected injury or illness. For all other veterans there are some limited dental insurance plans that can be purchased through VA. 

The pilot program would expand dental care services and treatment to veterans 

who are enrolled in VA health care at 16 locations across the country. These 16 locations would include four VA medical centers with an established dental clinic, four 

VA medical centers with a contract for dental care, four community based outpatient clinics with available space, and four facilities from federally qualified 

health centers and Indian Health Service clinics. These pilot sites would assess the 

feasibility and ability to furnish dental services and treatment to no more than 

100,000 veterans who volunteer to participate in the program. 

As the research of the last several years has made clear, oral health and overall 

health are not independent of one another. In 2012, the American Heart Association 

released a statement acknowledging an association between periodontal disease and 

cardiovascular disease. Recent studies suggest a connection between periodontal disease and kidney disease, diabetes, and strokes. VA must explore resources to properly integrate dental care and awareness into their holistic approach to veterans’ 

health care. 

S. 3184, TO AMEND TITLE 38, UNITED STATES CODE, TO MODIFY THE REQUIREMENTS FOR

APPLICATIONS FOR CONSTRUCTION OF STATE HOME FACILITIES TO INCREASE THE

MAXIMUM PERCENTAGE OF NONVETERANS ALLOWED TO BE TREATED AT SUCH FACILITIES, AND FOR OTHER PURPOSES

PVA supports S. 3184. This bill would allow state veterans’ homes to provide care 

to spouses of veterans under certain conditions. Although many state veterans’ 

homes are at capacity, there are some that are not. In these instances, veterans in 

need of, or already in a state home, may wish to have their spouse reside in the 

state home with them. If there is not enough demand by veterans needing access 

to state homes, PVA sees no reason why families need to separate for the sake of 

rigid adherence to the current 25 percent occupancy rules. 

DRAFT BILL, TO AMEND TITLE 10, UNITED STATES CODE, TO IMPROVE THE TRANSITION

ASSISTANCE PROGRAM FOR MEMBERS OF THE ARMED FORCES, AND FOR OTHER PURPOSES

PVA supports the intent of the draft legislation which would improve the Transition Assistance Program (TAP) for members of the Armed Forces. This bill would 

make the first significant changes to the TAP since 2011. One of the notable 

changes this legislation would make is to tailor the transition program based on the 

servicemember’s time in service, rank, age, and disability status. This will provide 

more specific opportunities to the servicemember instead of one blanket program for 

everyone. 

This legislation also provides transition assistance starting a year from the date 

of separation. One of the reasons servicemembers have such a difficult time transitioning is the fact that the TAP program is offered just a few months prior to their 

separation. To be fully prepared, servicemembers should begin the transition process much sooner. Earlier preparation would help them be better prepared to transition to civilian life, which would also support their mental health and overall 

wellbeing. 
152 

DRAFT BILL, THE ‘‘VA HIRING ENHANCEMENT ACT’’ 

PVA supports the ‘‘VA Hiring Enhancement Act.’’ The bill would end the applicability of non-VA covenants not to compete to the appointment of certain Veterans 

Health Administration (VHA) personnel. It would also permit VHA to make contingent appointments and require VA physicians to complete residency training. 

This bill intends to fill vacancies and make VA more competitive by authorizing 

VHA to begin the recruitment and hiring process up to two years prior to the completion of required training. This would allow for physicians to quickly begin work 

at VA medical centers upon the completion of their education. This could help to 

stem the flow of the ever recurring stories of young clinicians who wished to serve 

veterans but were unable to endure the months of an uncertain onboarding process. 

Veterans deserve the best this country can offer. Congress should explore every 

means to ensure VA does not lose out on these young professionals due to inefficient 

hiring practices. 

H.R. 5418, THE ‘‘VETERANS AFFAIRS MEDICAL-SURGICAL PURCHASING

STABILIZATION ACT’’ 

PVA supports H.R. 5418, the ‘‘Veterans Affairs Medical-Surgical Purchasing Stabilization Act.’’ This legislation would direct the Secretary of VA to carry out the 

Medical Surgical Prime Vendor program using multiple vendors and prohibiting a 

prime vendor from solely designing the formulary of supplies. 

In the private sector, hospitals use multiple Group Purchasing Organizations that 

bid down medical equipment prices. With Medical Surgical Prime Vendor, VA proposed using only one large vendor as opposed to multiple vendors. Arguably, the 

lack of competition has ensured higher prices for VA and thus the taxpayer than 

would otherwise be the case with competing vendors. While one vendor ensures consistency and a reliable timeline, it may not be an improvement on quality. What 

we do know is the procurement shortcut can undermine the competitive system, and 

result in VA overpaying for equipment. 

S. 1596, THE ‘‘BURIAL RIGHTS FOR AMERICA’S VETERANS’ EFFORTS ACT OF 2017,’’ OR

THE ‘‘BRAVE ACT OF 2017’’ 

PVA supports S. 1596, the ‘‘Burial Rights for America’s Veterans’ Efforts Act of 

2017,’’ or the ‘‘BRAVE Act of 2017.’’ This legislation would increase the amount payable through VA for burial and funeral expenses for non-service-connected veterans 

regardless of whether the death occurred in a VA facility. Under the bill, the benefit 

would increase from $300 to $749. The legislation also requires VA to increase burial benefits based on the percentage increase in the Consumer Price Index. This legislation is critical to ensuring that veterans’ survivors have additional financial resources available to them to help address funeral and burial expenses. 

S. 1952, THE ‘‘DEPARTMENT OF VETERANS AFFAIRS FINANCIAL

ACCOUNTABILITY ACT OF 2017’’ 

PVA supports S. 1952, the ‘‘Department of Veterans Affairs Financial Accountability Act of 2017.’’ This legislation would require VA to engage in several efforts 

to ensure more accurate budgeting for the programs and services provided by the 

Department. First, the legislation would require VA to engage the services of a third 

party to conduct a review of its financial processes and to develop a plan to address 

any recommendations that result from the review. Second, it would require a member of the Secretary’s office to be accountable for tracking VA’s progress in implementing recommendations received from the Comptroller General of the United 

States, the Special Counsel, and the VA’s Inspector General. Third, the legislation 

would require VA to provide any special requests for funding to Congress within 45 

days of when the funding would be needed. Such requests would need to include 

a justification for the extra funds. Last, it would require VA to give attestations regarding financial projections concurrent with the President’s annual budget. 

In order to properly implement the critical legislation that Congress has passed 

in recent months to reform the claims appeals process, implement a new community 

health care program, and expand access to comprehensive caregiver benefits, VA 

needs to ensure that it is using appropriated funds in an efficient and effective manner. Improved fiscal accountability will help to ensure that VA is able to more accurately project expenses and request adequate budgets. Congress will in turn be able 

to provide the funding needed to ensure that VA is able to meet its responsibilities 

to veterans with disabilities and their families. 
153 

S. 1990, THE ‘‘DEPENDENCY AND INDEMNITY COMPENSATION IMPROVEMENT ACT OF 2017’’ 

PVA supports S. 1990, the ‘‘Dependency and Indemnity Compensation Improvement Act of 2017.’’ This legislation would increase the amounts payable for Dependency and Indemnity Compensation (DIC) by approximately $300 per month. It 

would also provide eligibility to a portion of the DIC benefit for survivors whose veterans were rated totally disabled for at least five years prior to their death. Last, 

the bill would change the age at which a spouse could remarry and retain DIC benefits from age 57 to age 55. The critical changes provided by this important legislation will ensure that survivors are better able to meet their living expenses following their veteran’s death. 

S. 2485, THE ‘‘MEDAL OF HONOR SURVIVING SPOUSES RECOGNITION ACT OF 2018’’ 

PVA supports S. 2485, the ‘‘Medal of Honor Surviving Spouses Recognition Act of 

2018.’’ This legislation provides a pension for survivors of veterans who were awarded the Medal of Honor. The pension would compensate surviving spouses $1,329.58 

monthly. To be eligible, the surviving spouse must have been married to the veteran 

for one year or more prior to the veteran’s death; or, for any period of time if a child 

was born of the marriage, or was born to them before the marriage. This pension 

will ensure that the families of America’s heroes are properly provided for by our 

Nation. 

S. 2748, THE ‘‘BETTER ACCESS TO TECHNICAL TRAINING, LEARNING AND ENTREPRENEUR- SHIP FOR SERVICEMEMBERS ACT,’’ OR THE ‘‘BATTLE FOR SERVICEMEMBERS ACT’’ 

PVA supports S. 2748, the ‘‘Better Access to Technical Training, Learning and Entrepreneurship for Servicemembers Act,’’ or the ‘‘BATTLE for Servicemembers Act.’’ 

This legislation provides opportunities for servicemembers to receive additional 

training under TAP. Servicemembers will have the ability to receive this training 

unless they fall into specifically exempted categories. PVA supports any efforts that 

will better prepare transitioning servicemembers for returning to civilian life. 

DRAFT BILL, TO REQUIRE THE SECRETARY OF VETERANS AFFAIRS TO ESTABLISH A PRO- GRAM TO AWARD GRANTS TO PERSONS TO PROVIDE AND COORDINATE THE PROVISION

OF SUICIDE PREVENTION SERVICES FOR VETERANS TRANSITIONING FROM SERVICE IN

THE ARMED FORCES WHO ARE AT RISK OF SUICIDE AND FOR THEIR FAMILIES, AND

FOR OTHER PURPOSES

PVA supports the intent of the draft bill requiring the Secretary of VA to establish a program to award grants to persons to provide and coordinate the provision 

of suicide prevention services for veterans transitioning from service in the Armed 

Forces who are at risk of suicide and for their families. We would encourage, however, that the program also focus in equal measure on veterans 50 and older, who 

are committing suicide in greater numbers than the post-9/11 generation. While we 

recognize the window in which a servicemember is transitioning from active service 

is a critical time that can correlate with the potential for suicide ideation, there is 

an equal and growing need to reach out to older veterans. 

Similarly, women veterans commit suicide at nearly six times the rate of other 

women. Of the annual suicide deaths per 100,000 people in the United States, male 

veterans comprised 32.1, and non-veteran men 20.9. Among women veterans they 

comprised 28.7 compared to just 5.2 among non-veteran women. This is a particularly concerning statistic since men, on average, are far more likely than women to 

commit suicide. Thus, this program must give particular heed to interrupting the 

unique factors that lead to such a risk for suicide among women veterans. 

Last, 14 of the 20 veterans who complete a suicide every day have never touched 

the VA system. We hope an introduced bill will offer further details about how community prevention experts are to be made aware of the grant opportunities. 

DRAFT BILL, THE ‘‘MODERNIZATION OF MEDICAL RECORDS ACCESS FOR VETERANS ACT’’ 

PVA supports the intent of the draft bill, the ‘‘Modernization of Medical Records 

Access for Veterans Act.’’ We believe, however, that some points of the draft bill 

should be clarified prior to its introduction. For example, it is unclear how the proposed medical records card will help to efficiently address the issues of interoperability for VA electronic health records. Since the card must be brought back to VA 

before VA’s records can be updated, we are uncertain about how this solution would 

be more beneficial than cloud sharing medical records. This is particularly the case 

due to the inherent delays in updating a veteran’s records through such a card. We 

look forward to learning more about how the medical records card could address 

current concerns about medical records access. 
154 

S. 514, THE ‘‘NO HERO LEFT UNTREATED ACT’’ 

PVA has no official position on S. 514, the ‘‘No Hero Left Untreated Act.’’ This 

legislation would establish a pilot program with VA to use Magnetic eResonance 

Therapy technology, or MeRT technology. This therapy, while not yet FDA approved, is used to treat Post Traumatic Stress Disorder (PTSD), Traumatic Brain 

Injury (TBI), military sexual trauma (MST), chronic pain, and opiate addiction. The 

legislation would establish a one-year pilot program on MeRT technology for 50 veterans at two VA medical centers. 

VA currently offers veterans access to repetitive transcranial magnetic stimulation (rTMS). This treatment is FDA approved to address treatment-resistant depression, a comorbid condition in PTSD, TBI, MST, and chronic pain and opioid addiction. While it is functionally similar to MeRT, there is no existing evidence that 

MeRT is superior to rTMS for treating any disorder. 

Again, PVA thanks you for the opportunity to present our views on these bills. 

We would be happy to take any questions you have for the record. 
155 

PREPARED STATEMENT OF MS. LAUREN AUGUSTINE, VICE PRESIDENT OF

GOVERNMENT AFFAIRS, STUDENT VETERANS OF AMERICA
156 

program to assess their satisfaction with it and where improvements can be made to the program. SVA believes 

this is an important improvement that will catalyze the success of separating service members. 

Curriculum. The bill does not change the current curriculum structure of TAP, which has a mandated five-day 

course with optional additional two-day tracks. As identified in the November 2017 GAO report, the so-called 

•optional tracks" were significantly and detrimentally under-utilized. e Despite being misleadingly labeled as 

·optional; the information available through these tracks provides critical knowledge for the successful pursuit of 

post-military success. For example, the Accessing Higher Education module is best utilized with sufficient lime to 

apply to school, and to enhance choice for veterans by providing them the best information on how to connect 

education to career and transttion goals. Taken too late. the effectiveness of the module's information is greatly 

diminished and may delay the service member's attendance at a school by several semesters. 

7 We strongly urge 

the inclusion of mandatory attendance to at least one of these tracks, as outlined in our review of other legislation 

before this committee. However, while facilitating greater access to these specialized courses is important, we 

also strongly urge the committee to mandate the participation in these specialized tracks in addition to, not in 

replace of, the existing five-day TAP curriculum. 

Supporting Spouses. The bill would allow Spouses of transitioning service members to attend the TAP programs. 

This is an important recognition that access to the information in TAP seminars after separation for spouses and 

veterans can help improve the transition process. Indeed, when the family unit is successful, the transition 

process is vastly improved. 

Creation of a Governing Board. The bill would direct the Secretary of the VA to create a governing board within 

the Veterans Benefits Administration (VBA) to develop partnerships with community and federal organizations to 

help prevent suicides. substance abuse, and homelessness among veterans. This bOard will be responsible lor 

tracking the suicide rate in each business line within VBA, the creation and distribution of educational material 

concerning these issues, maintaining consistent communication between the Veterans Health Administration 

(VHA) and VBA and the management of the Gun Safety Lock Program for suicide prevention. Within a year of 

enactment, the Secretary of the VA must submit a report on the efforts of the board in these important areas. We 

appreciate the creation of the board to serve this important mission. SVA applauds the committee' s attention to 

the social and well-being aspects of transition and hopes to see significant coordination with VHA's existing 

infrastructure addressing these same challenges. 

Community Impact. The bill proposes a five-year pilot program that would provide up to $10 million in matching 

grant funds to help community providers fund innovative transition services such as resume assistance, interview 

training, job recruitment training, and related services. The bill would prioritize funds for programs that operate as 

a communtty "hub" and a single point of contact for all services for one community. with organizations applying for 

funding in consultation with VA and Department of LabOr (DOL). Further, the bill proposes authorizing VA. in 

consultation with state entities that provide services to retired, separated, or discharged service members, to 

enter into a contract with a non-federal party to study and identify community providers who provide effective and 

efficient transition services to service members. These initiatives appropriately recognize the importance of local 

communities in the transition process, and we applaud the acknowledgement of community-based impact. SVA 

supports inclusion of such grant programs and is encouraged by the commitment to leveraging existing 

community programs and encourages this committee to also consider ways to partner with campus career 

centers to meet similar goals with student veterans. 

0 GAO. TRANSIT tONING VETERANS: DOD Neo<ls to Improve Porfom>a!IC6 Repotling end MonffOring lor the Tronsition Asslslonce Progrom. 

GAO 18-23, (Washington, D.C.; Novombe< 2017). 1 Joint KnowSedge Online, "Acce$Sing Highet Education Module," TGPS-US009. 

http:l~k.o jten miVcoursesJiapfTGPS%20Standalone%20Traini~ourseWarerrGPS-US009 Standalonellaunoh html. 

YEw TERun S ''"RR OilS vi.l S ~ :HvLARS Ut~RRU\\ S • ..Au~ S 

3 
157 

Career Readiness and Professional Development. The discussion language includes an emphasis on oareer 

readiness and professional development for servioe members before the point of transition by requiring 

counseling on available professional development opportunities and the need to be oareer ready at important 

points of transition throughout the lifecycle of a servioe member. This is a step in a positive direction that will help 

create a more informed and oareer ready service member going into TAP and SVA applauds the inclusion of a 

more holistic view of transition. 

Alumni Network. This language includes the creation of veteran alumni networks which aim to serve as warm 

hand-offs to new communities and opportunities once a service member transitions from the Armed Foroes. As a 

chapter-based organization, SVA is acutely aware of the importance of peer connection and strongly supports 

continued conversations on how to best engage with veterans after service. We welcome the opportunity to 

discuss how SVA's existing chapters, numbering over 1.500. can serve as initial touch points for veterans after 

transition. e 

Data and Research. This bill proposes several independent assessments of the effectiveness of TAP - to include 

an evaluation specific to veterans accessing higher education after transition- which will help better inform policy 

decision-making moving foiWard. As a data-driven organization. SVA relies heavily on data to inform our own 

advocacy efforts and we hope to see a commitment to data included in final bill language. As a suggestion to the 

current data and research aspects of this bill, SVA encourages the committee to consider including language on 

how the existing definition of graduation can be amended to better reflect the success rate of today's student 

veterans. 

Important improvements to TAP have been highlighted through participation in roundtables this committee hosted 

and as a leader of the "Pre-Separation" component of the joint VA-OoD Military-Civilian Transition (MCT) 

convenings over the past year. We are pleased to see a majority of these bold initiatives included in this 

transformational piece of legislation. We continue to emphasize the importance of providing transition information 

to service members as early as their recruitment into the military. 

S. 27 48, BATTLE for Servicemembers Act 

The Better Access to Technical Training. Learning, and Entrepreneurship (BATILE) for ServicemembersAct 

seeks to strengthen the existing TAP by generally requiring transitioning servioe members to attend at least one 

specialized workshop in addition to the core TAP curriculum. with oertain waivers available. 

In addition to the mandatory core curriculum taught through TAP, there are three specialized workshops available 

to transitioning servioe members, which focus on opportunities in higher eduoation, entrepreneurship, and 

technioal career fields. These workshops allow for greater depth of discussion and education on the specific 

benefits and paths to sucoess available to transitioning servioe members. However. under the current TAP model. 

these specialiZed workshops are optional, and as such are woefully underutilized with a 2017 GAO report finding 

only a 14 percent participation rate. as discussed above.• 

We acknowledge that while the core curriculum is a great foundation of transition information, these specialized 

workshops are critical to empowering service members to make better-informed decisions about their future and 

should be more widely attended. as articulated in the SA TTLE Act. Specific to higher education and student 

veterans, the information presented in the specialized workshop is particularly important considering 

approximately half of all transitioning service members will seek out higher education within six months of 

• Studenl Veterans of America Chapter Directory. http://studentveteran.s.orglchapterldirectory. 

• GAO, TRANSITIONING VETERANS: DOD Needs to Improve Perf0f1'118nce Reporting and Monitoring for the Transitjon Assistance Program, 

GAO 18·23. (Washington. O.C.: November 2017). 

" :Hfi.ARS TOMORROW'S cEAOERS 

4 
158 

separation from the military. Removing the purely optional nature of the higher education workshop will better 

equip service members with knowledge of the educational benefits and services available to them and tools to 

effectively evaluate educational programs. Such information will better ensure transitioning service members 

become today's scholars and tomorrow's leaders. 

This bill differs from the previously discussed discussion draft on TAP as it would make these additional courses 

supplements to the TAP program instead of a replacement of existing components of the program. We support 

this measure. which aims to improve the transition process and provide more detailed information on higher 

education to transitioning service members. 

0 

We thank the committee for its attention and commitment to the successful trans~ion of service members. 

particularly as it relates to seeking higher education. We are encouraged by the bipartisan. bicameral efforts 

recently seen on TAP through the National Defense Authorization Act and hope to see similar efforts continue as 

the communhy and you as congressional leaders continue to improve the transhion process. 

As these discussions continue, we urge you to remember the success of veterans in higher education is no 

mistake or coincidence. Research consistently demonstrates this unique population of non-traditional students is 

far outpacing their peers in many measures of academic performance. •o Further, this success in higher educatioA 

begets success in careers, in communities. and promotes family financial stability, holistic well-being, and 

provides I he all-volunteer force with powerful tools for recruitment and retention when recruits know mimary 

service prepares them for success after service. 

We again thank the Chairman, Ranking Member, and the committee members for your time, attention, and 

devotion to the cause of veterans in higher education. As always, we welcome your feedback and questions, and 

we look forward to continuing to work with you all to ensure the success of all generations of veterans through 

education. 

10 C.-te, C..A.. l.yon, J.S .. Schmeling. J .. & Bogue, B.V. (2017). Notlonol Veteran Educotlon Success Trocker: A Report on the Acod(fmlt SIJcassofSwdetll 

Veterons Using the P()St·9/11 G/6111. Student Veteran$ of America, W\1shlng\on. D.C .. http://nvest.studentveterans.org/wp· 

content/uploads/2017/03/NVE:ST ·R•po"-.fiNAL.pdt 

YESTERDAYS WARR ORS TO A ~ S 0 .ARS ~OMORROWS .EADERS 

5 
159 

PREPARED STATEMENT SUBMITTED BY TRAGEDY ASSISTANCE PROGRAM FOR

SURVIVORS (TAPS) 

CHAIRMAN ISAKSON, RANKING MEMBER TESTER, AND DISTINGUISHED MEMBERS OF

THE SENATE VETERANS’ AFFAIRS COMMITTEES, The Tragedy Assistance Program for 

Survivors (TAPS) thanks you for the opportunity to make you aware of issues and 

concerns of importance to the families we serve, the families of the fallen. 

While the mission of TAPS is to offer comfort and support for surviving families, 

we are also committed to improving support provided by the Federal Government 

through the Department of Defense (DOD), the Department of Veterans Affairs 

(VA), Department of Education (DoED), Department of Labor, state governments, 

government contractors, and local communities for the families of the fallen—those 

who fall in combat, those who fall from invisible wounds and those who die from 

illness or disease. 

TAPS was honored to enter into a new and expanded Memorandum of Agreement 

with the Department of Veterans Affairs in 2017. This agreement formalizes what 

has been a long-standing, informal working relationship between TAPS and the VA. 

The services provided by TAPS and VA are complementary, and in this public-private partnership each will continue to provide extraordinary services through closer 

collaboration. 

Under this agreement, TAPS continues to work with surviving families to identify 

resources available to them both within the VA and through private sources. TAPS 

will also collaborate with the VA in the areas of education, burial, benefits and entitlements, grief counseling and other areas of interest. 

The VA Office of Survivor Assistance, including Director Moira Flanders and her 

staff, works closely with TAPS to answer questions and concerns that are raised by 

surviving family members. We also appreciate the opportunities provided by the 

DOD/VA Survivors Forum, held quarterly, which works as a clearinghouse for information on government and private sector programs and policies affecting surviving 

families. This is ably facilitated by Craig Zaroff of the VA Benefits Assistance 

Service. 

PENDING LEGISLATION

S. 1990

TAPS applauds Senator Tester and his staff for this legislation which offers an 

increase to the Dependency and Indemnity Compensation (DIC) provided for surviving spouses of those servicemembers who die on active duty or die of a serviceconnected disability. A second provision provides a graduated scale of benefits and 

addresses an arbitrary eligibility restriction. The third provision provides equity 

with other survivor benefits by allowing surviving spouses who remarry after age 

55 to retain DIC benefits. 

History of DIC 

According to the Congressional Research Service (CRS), survivor compensation 

has been paid in some form to survivors since the Revolutionary War. 

During the Civil War, survivor compensation was expanded to cover all servicemembers at a rate that would be payable to totally disabled veterans. The Civil War 

also led to other changes to survivor compensation, especially for survivors of servicemembers with service-connected disabilities. They were covered under the Act 

of July 14, 1862, which was referred to as General Law, and amended various times 

in the 19th century. 

In 1917, Congress passed the War Risk Insurance Act to eliminate the need for 

non-service pensions and highlighted that service-connected payments for death and 

disability were compensation payments. The act changed the system to meet the 

current needs of World War I veterans and their survivors and eliminated the pay 

discrepancy between officers and soldiers. 

The Servicemen’s Indemnity Act of 1951 replaced this life insurance system with 

a new system where the servicemembers did not contribute to the insurance program, but the government provided monthly payments to eligible survivors of $120 

with a 2.25% increase per year until a $10,000 insurance maximum was reached. 

Potentially eligible survivors included spouses, children, parents, and siblings. 
160 

Because legislation had been written in response to need, dependency and indemnity compensation was unorganized and administered by four different administrations by the mid-1950s, and congressional and executive committees were formed to 

make the issuance of compensation more streamlined and manageable. Death compensation was set up similar to the way it is now by the time the final report of 

the President’s Commission on Veterans’ Pensions, Veterans’ Benefits in the United 

States: Report to the President by the President’s Commission of Veterans Pensions 

(hereafter referred to as the Bradley Report) was written in 1956. Death compensation was provided to survivors (except for dependent parents) regardless of income. 

The rate of compensation depended on whether the veteran served in peacetime or 

wartime. 

In 1969, after review of the Bradley Report, recommendations from a commission 

headed by Robert M. McCurdy in 1967, and extensive testimony from several other 

Federal administrations and veterans’ service organizations, Congress devised a different, more equitable system for survivor compensation that gave fixed rates to 

each pay grade. The base rate was adjusted for a cost-of-living increase to reflect 

changes in the cost of living since the last base rate had been determined in 1956, 

13 years earlier. In 1969, years of service were no longer a factor in determining 

DIC. There were no subsequent changes of significance to DIC legislation until 

1993, when the rate tables for surviving spouses were eliminated and one flat 

monthly rate was reinstated. In 2003, surviving spouses who remarried after reaching the age of 57 were able to retain DIC. 

DIC, along with other VA disability payments, are usually increased annually by 

the Federal cost of living adjustment (COLA), when there is a COLA. This COLA 

has been the only increase to the DIC since the new rate tables were established 

in 1993. 

Provision 1 

TAPS appreciates the 12 percent increase to the DIC to bring it up to 55 percent 

of the rate of compensation paid to a totally disabled veteran. It is something that 

we have supported for many years and, for those survivors whose only recompense 

is the DIC payment, long overdue. 

We also appreciate the provision of an additional $350 increase to the Special Survivor Indemnity Allowance (SSIA) for those survivors who are in receipt of both DIC 

and the Survivor Benefit Plan annuity. This would go a long way to make some survivors who are impacted negatively by the DIC offset to SBP whole, i.e. their offset 

would be completely eliminated when combined with the SSIA they currently 

receive. 

However, we have heard concerns from some survivors. Would the proposed SSIA 

increase also be tied to COLA? Is there a time limit for this provision? Where would 

the funding come from? We hope these questions will be addressed. 

Provision 2 

We support the intent of provision 2. 

Provision 3 

TAPS fully supports the provision to allow surviving spouses who remarry after 

age 55 to retain DIC benefits. This makes the DIC program consistent with other 

Federal programs, including the Department of Defense survivor benefit plan and 

the Federal Employees survivor benefit plan. 

H.R 299

TAPS strongly supports H.R 299, the Blue Water Navy Vietnam Veterans Act of 

2018. We stand with our friends in the Military Coalition and the Association of the 

United States Navy in encouraging quick passage of this long over due legislation. 

Many of the families impacted by Agent Orange from time in the Navy have become 

surviving families now, and TAPS believes those families should be eligible for the 

same survivor benefits as all other Agent Orange families. 

S. 2881

TAPS supports S. 2881, the Mare Island Naval Cemetery Transfer Act, so as to 

ensure veterans buried in Vallejo, CA are treated with the respect they deserve. As 

the oldest military cemetery on the West Coast, it should be treated as a national 

shrine and elevated to a Department of Veterans Affairs national cemetery. We 

thank Senator Feinstein for bringing this issue to light. 
161 

S. 2485

TAPS honors the service and sacrifices made by Medal of Honor recipients and 

their families and is grateful to Senator Sullivan for introducing S. 2485 to establish 

a special pension for surviving spouses of Medal of Honor recipients. 

S. 541

New and innovative programs have proved time and again to be helpful in treating PTSD/TBI and preventing suicide. If there is a possibility that magnetic EEG/ 

EKG therapy can help in treating veterans with PTSD/TBI and preventing veteran 

suicide, then TAPS supports the one-year pilot program. 

S. 1596

TAPS supports the BRAVE Act of 2017, which increases the amount provided for 

the burial of a veteran from $300 to $749 with annual COLA increases. 

DRAFT TEXT—CASSIDY

Suicide prevention is one of TAPS’ top legislative priorities. Suicide is the second 

leading cause of death for active duty servicemembers and the numbers are growing. TAPS currently serves over 12,000 surviving family members whose loved ones 

died by suicide and we are grateful to Senator Cassidy for bringing forth the draft 

legislation to create a grant program through VA for organizations working in suicide prevention. 

DRAFT TEXT—TRANSITION ASSISTANCE PROGRAM (TAP)

Veterans who make a good transition into civilian life are less likely to die by suicide, so TAPS is grateful to see such effort put into overhauling the Transition Assistance Program. While many key aspects were updated by the 2019 NDAA, there 

is still much work to do. TAPS supported the House version H.R. 5649, the Navy 

Seal Chief Petty Officer Bill Mulder Transition Improvement Act, and we look forward to seeing the House and Senate versions conferenced to best improve transitions for veterans. 

TAPS thanks the Committee and the original sponsors of all this important legislation for your thoughtful consideration of the needs of our Nation’s veterans and 

surviving families. 

It is the responsibility of the Nation to provide for the support of the loved ones 

of those who have paid the highest price for freedom. Thank you for allowing us 

to speak on their behalf. 

PREPARED STATEMENT PREPARED BY RALPH PARROTT, CAPTAIN, SUPPLY CORP., US 

NAVY (RET.) AND THOMAS BANDZUL, ESQ., LEGISLATIVE COUNSEL, VETERANS & 

MILITARY FAMILIES FOR PROGRESS

SENATE COMMITTEE MEMBERS, We’d like to take this opportunity to thank Chairman Isakson, Ranking Member Tester and all the Members of the Senate Veterans’ 

Affairs Committee, to present our position on the Mare Island Cemetery Restoration 

bill, S. 2881. This bill, offered by Senator Diane Feinstein (D-CA), will allow for the 

future care of this historic landmark at the discretion of the Department of Veterans 

Affairs (VA). 

The Mare Island Naval Cemetery was established in 1856 on the grounds of the 

Mare Island Naval Shipyard in Vallejo, CA. It is the oldest military cemetery on 

the west coast. The last burial in the cemetery occurred in 1921. The following is 

a summary of the internments in the cemetery: 

• 860 Veterans Navy and Marines, 3 Medal of Honor recipients, 

• 8 Russian sailors killed fighting a fire in San Francisco in the 1860s while their 

ship was visiting at the invitation of President Lincoln 

• 4 French sailors authorized by the US Navy for reasons lost to history 

• 33 Children of Veterans buried there 

• 40 Spouses of Veterans buried there (includes the daughter of Francis Scott 

Key) 
162 

• 7 Other civilians authorized by the US Navy for reasons lost to history 

TOTAL: 952 

The cemetery was turned over by the Navy to the City of Vallejo in 1996 as part 

of BRAC ’93. There were no provisions made for the perpetual care, maintenance 

and restoration as part of the turnover agreement. The City of Vallejo has been unable or unwilling to provide the necessary resources to maintain the cemetery and 

it has fallen into disrepair. The City has also formally requested the Federal Government to take over the Cemetery. The VA, who runs the National Cemetery Administration, does not have the legal authority to take over the cemetery. Senator 

Feinstein’s introduction of S. 2881 will give the necessary authority to the VA. Congressman Mike Thompson has introduced a similar bill (H.R. 5588) which is currently before the House Veterans’ Affairs Committee. 

VMFP and our partner Veteran Service Organizations (VSO’s) along with the 

many people in California, urgently requests the Senate Veterans’ Affairs Committee report this bill to the floor of the US Senate and provide this historic site 

the perpetual care, maintenance and restoration it so justly deserves. 

H.R. 299, BLUE WATER NAVY VIETNAM VETERANS ACT OF 2018

VMFP full supports this as an issue long overdue. There is some trepidation this 

will cause a large increase to the Veterans Health Administration (VHA) overhead 

and Veterans Benefits Administration (VBA) will have a large increase in claims. 

Since there are no specific numbers published on this, my belief is, MOST Veterans 

with issues caused by exposure to Agent Orange (AO) have already qualified for 

benefits, are eligible for care within another program (TRICARE for Life, Medicare/ 

Medicaid, etc.) or have some other form of health insurance. 

S. ___ (SANDERS), VETERANS DENTAL CARE ELIGIBILITY EXPANSION AND ENHANCEMENT

ACT OF 2018

It has always been an objective of VMFP to improve the health of Veterans everywhere. The one thing missing in society in general is a comprehensive dental care 

program. In VA, unless there is extreme need tor most Veterans comprehensive dental care is also missing. 

We believe this legislation will help to measure the costs and needs and will help 

define the alternatives for Veterans for healthy teeth and gums. VMFP support this 

bill as a path to improving understanding the needs for this care for veterans. 

S. 3184

To amend title 38, United States Code, to modify the requirements for applications for construction of State home facilities to increase the maximum percentage 

of nonveterans allowed to be treated at such facilities, and for other purposes. 

VMFP Strongly supports this bill. ft has long been the history of other organizations (Gary Sinise Foundation; Habitat for Humanity, etc.) to have been helping 

with the construction of housing for deserving Veterans. We support the expansion. 

of this as a government initiative and the inclusion of more Veterans with housing 

needs. 

S. ___ (BOOZMAN), VA HIRING ENHANCEMENT ACT

For many years, VMFP has been a strong proponent of hiring qualified Veterans, 

trying to transition from the military to civilian life. One of the roadblocks for this 

transition has been certification and review of necessary qualification. We believe 

this bill is a good step to improving the staffing shortages at VA with highly skilled 

medical persons. 

VMFP believes this bill will create a more ‘‘level playing field’’ in competition for 

many of the skilled people needed to fill the array of openings in the healthcare field 

for VA. We strongly support this legislation. 

VMFP believes this bill will create a more ‘‘level playing field’’ in competition for 

many of the skilled people needed to fill the array of opening in the healthcare field 

for VA We strongly support this legislation. 

H.R. 5418, VETERANS AFFAIRS MEDICAL-SURGICAL PURCHASING STABILIZATION ACT

VMFP has no position on this legislation since there are many bills with similar 

clauses. We have not had enough time to review this to make a recommendation 

one way or the other. 
163 

S. 1596 (PETERS/RUBIO), BRAVE ACT OF 2017

The cost of a funeral has risen over the years and is now estimated to be between 

$7,000 and $10,000 in North America (according to PARTING; a funeral home rating website). Through the increase in this legislation does provide for more variable 

adjustments in the future and the initial suggested increase is substantial, we believe this value should be increased to a minimum level of $3,000.00 (the average 

cost of a cremation funeral—Source: National Funeral Directors Association). 

An argument can be made, many Veterans can be interred in a cemetery cared 

for by VA at substantially less, but not everyone can take advantage of this benefit. 

While VMFP supports this bill, we would like to see an increase in funding. 

S. 2881 (FEINSTEIN), MARE ISLAND NAVAL CEMETERY TRANSFER ACT

Statement at Page 1 (separate). 

S. 1952 (TESTER/MCCAIN/MANCHIN), VA FINANCIAL ACCOUNTABILITY ACT OF 2017

With budgetary issues, financial accountability and several years of increases in 

VAs budget with proportional instances of overspending, cost overruns and program 

demands (unfunded mandates) left unfulfilled, it is VMFP’s opinion this legislation 

would be a good step in the right direction. 

S. 1990 (TESTER/BLUMENTHAL/HIRONO), DEPENDENCY AND INDEMNITY COMPENSATION

IMPROVEMENT ACT OF 2017

VMFP takes no position on this legislation. 

S. 2485 (SULLIVAN), MEDAL OF HONOR SURVIVING SPOUSES RECOGNITION ACT OF 2018

VMFP fully support this legislation. While some believe this may have consequences in personal relationships in the future, the intent of the bill meets a need 

we feel is long be unfulfilled as an obligation by the government to the spouse of 

a Medal of Honor hero. 

S. 2748 (BROWN/ROUNDS), BATTLE FOR SERVICEMEMBERS ACT

Our group fully supports this legislation as a necessary step to full and timely 

access to employment and training to meet any need of a returning Veteran. 

S. ___ (CASSIDY)

To require the Secretary of Veterans Affairs to establish a program to award 

grants to persons to provide and coordinate the provision of suicide prevention services for veterans transitioning from service in the Armed Forces who are at risk of 

suicide and for their families, and for other purposes. 

Suicide prevention, in all it’s forms, has always been a top priority for Veterans 

and their families within our organization. As a person who has dealt directly with 

suicide (as a police officer) and directly involved with the family (my brother). I 

know this has horrible consequences and is a preventable tragedy; given the proper 

resources, awareness and education. 

Any effort to help recognize the symptoms of depression, despair and hopelessness 

leading to a suicidal ideation is a priority for VMFP. We fully support this legislation. 

S. ___ (CASSIDY), MODERNIZATION OF MEDICAL RECORDS ACCESS FOR VETERANS ACT

VMFP has no position on this legislation. 

S. 514 (PERDUE/HELLER), NO HERO LEFT UNTREATED ACT

VMFP takes no position on this bill but we believe a pilot program on Magnetic 

EEG/EKG-guided resonance therapy could yield significant information so as to 

make a more informed decision on the benefits and cost of this treatment program. 

Respectfully Submitted, 

THOMAS BANDZUL, ESQ. 

Legislative Counsel. 
164 

1https://docs.house.gov/Committee/Calendar/ByEvent.aspx?EventID=108367 

PREPARED STATEMENT OF RENE ́ C. BARDORF, SENIOR VICE PRESIDENT OF

GOVERNMENT AND COMMUNITY RELATIONS, WOUNDED WARRIOR PROJECT

CHAIRMAN ISAKSON, RANKING MEMBER TESTER, AND DISTINGUISHED MEMBERS OF

THE SENATE COMMITTEE ON VETERANS’ AFFAIRS, Thank you for inviting Wounded 

Warrior Project (WWP) to submit this statement for the record of today’s hearing 

on pending legislation. 

Since our inception in 2003, WWP has grown from a small organization delivering 

comfort items in a backpack at the bedside of wounded warriors here in our Nation’s 

capital, to an organization of nearly 700 employees in more than 25 locations around 

the world delivering over a dozen direct-service programs to warriors and families 

in need. Through our direct-service programs, we connect these individuals with one 

another and their communities; we serve them by providing mental health support 

and clinical treatment, physical health and wellness programs, job placement services, and benefits claims help; and we empower them to succeed and live life on 

their own terms. As we advocate for this community before Congress, we appreciate 

you inviting us to speak on these issues and look forward to helping any way 

we can. 

H.R. 299—BLUE WATER NAVY VIETNAM VETERANS ACT OF 2018

Although we have few alumni that served in Vietnam, Korea, and Thailand during the Vietnam war, we consider the military toxic exposure problem a crossgenerational issue. It is important that if servicemembers are exposed to harmful 

toxins while serving this country, the government ensures they have proper health 

care and assistance if any injuries or illnesses arise from their exposures. This philosophy was the impetus behind our current partnership with Vietnam Veterans of 

America (VVA) and the Tragedy Assistance Program for Survivors (TAPS) to conduct a needs assessment of the landscape facing post-9/11 generation warriors who 

were or who may have been exposed to toxic substances during service. 

As individual organizations, VVA, TAPS, and WWP have shared concerns for several years about the emergence of toxic exposure as a common thread among former 

servicemembers who are sick, dying, or already deceased from uncommon illnesses 

or unusually early onset of more familiar diseases like cancer. In the past, we have 

advocated for initiatives such as the creation of the Airborne Hazards and Open 

Burn Pit Registry in June 2014 and the more recent passage of the Toxic Exposure 

Research Act of 2016 (P.L. 114–315, §§ 631–34). Given our collective interest in prevention, treatment, and awareness, Wounded Warrior Project decided in October 2017 to coordinate efforts with TAPS and VVA and invested $200,000 in a needs 

assessment to guide our future advocacy. Wounded Warrior Project remains committed to continued investments of resources and expanding its partnerships to include others passionate about this important issue. More can be read about our 

partnership from our recent House Committee on Veterans’ Affairs submitted on 

June 7, 2018.1

As this partnership continues to address the challenges faced by servicemembers 

and veterans who served on or after September 11, 2001, WWP is pleased that the 

Committee is considering legislation to provide recourse for ‘‘blue water’’ Vietnam 

veterans. We are particularly encouraged by Section 5 of this legislation (‘‘Updated 

Report on Certain Gulf War Illness Study’’) and further request that future legislation add additional research between the Veterans’ Affairs (VA) and the Department 

of Defense (DOD) on toxic exposure for Gulf War-era veterans as well as for those 

who served after 9/11. 

Wounded Warrior Project Supports H.R. 299. 

DRAFT BILL—VETERANS DENTAL CARE ELIGIBILITY EXPANSION AND ENHANCEMENT ACT

OF 2018

This draft bill will increase VA’s internal dental capabilities by expanding its clinical capacities in rural locations and creating a pilot program that would open dental coverage to all veterans regardless of disability status at select VA hospitals. The 

pilot program will determine if expanding VA-provided dental services to all vet-
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2https://www.vets.gov/health-care/about-va-health-care/dental-care/ 

3https://www.va.gov/homeless/dental.asp 

4https://watson.brown.edu/costsofwar/files/cow/imce/papers/2017/Zogas_Veterans%27%20 

Transitions_CoW_2.1.17.pdf 

erans enrolled in the VA healthcare system is feasible. Although we agree with the 

intent of the pilot program and overall dental expansion, we have concerns over how 

the bill will be paid for and how the current dental care program is administered 

to veterans. 

Anecdotally, WWP has heard from veterans struggling to get service-connected 

disability ratings for injuries to the mouth which occurred during service. Additionally, only veterans with 100% service-connected disability or former prisoners of war 

(POW) qualify for VA dental care.2 Before the VA expands dental coverage to all 

veterans, WWP would like to see VA review the current rating system for dental 

eligibility. We recommend that Congress instruct VA to conduct a report of how 

many veterans with face and mouth service-connected injuries are not getting needed health care and how many veterans are denied for dental coverage when applying for this type of service-connected disability. Additionally, we would like to see 

full coverage of dental services expanded to homeless veterans. Dental needs for 

homeless veterans is one of their top three unmet needs and WWP feels that VA 

is not meeting its obligation in supporting homeless veterans when it comes to individual dental problems and its impacts in retain suitable long-term employment.3

Wounded Warrior Project supports the provisions to construct additional dental 

clinics in rural areas, increase dental health education, establish an electronic 

health record system, and authorize the Secretary to carry out a program to train 

and employ alternative dental health care providers. WWP suggests increasing the 

appropriated funding of this section to include the construction of dental facilities 

at any major VA hospital that does not currently offer onsite dental services. Furthermore, Congress needs to appropriately fund this dental expansion. As with the 

current VA MISSION Act funding shortfall, Congress should not pass legislation 

without appropriate funding mechanisms attached. 

Wounded Warrior Project supports this legislation with alterations to the language as stated above. 

S. 3184—TO MODIFY THE REQUIREMENTS FOR APPLICATION FOR CONSTRUCTION OF

STATE HOME FACILITIES TO INCREASE THE MAXIMUM PERCENTAGE OF NONVETERANS

ALLOWED TO BE TREATED AT SUCH FACILITIES, AND FOR OTHER PURPOSES

Wounded Warrior Project does not have a current position on this legislation but 

welcomes future discussions with the Committee on this proposal. 

DISCUSSION DRAFT ON TRANSITION ASSISTANCE REFORM AND

S. 2748—BATTLE FOR SERVICEMEMBERS ACT

With approximately 200,000 servicemembers leaving the military each year, it is 

critical that DOD and VA disseminate information pertinent to transition success, 

VA benefits, and job opportunities.4 Wounded Warrior Project supports a holistic approach to reforming Transition Assistance Program (TAP) that reflects the input of 

all relevant stakeholders. The Departments of Veterans Affairs, Defense, and Labor, 

the Small Business Administration, Congress, and multiple veteran service organizations committed to meeting the needs of transitioning servicemembers and all 

have critical voices that must be adequately considered, and WWP would support 

a comprehensive bill that has been thoroughly vetted by all parties. 

Wounded Warrior Project was pleased to host leaders from VA, DOD, DOL, and 

over 10 veteran service and nonprofit organizations in November 2017 to explore the 

components of wellness and their relationship to a successful military civilian transition. WWP has been an active participant in VA’s Military-to-Civilian Summits 

and remains committed to being deeply involved with government and nongovernment leaders alike who have a stake in the success of TAP. Additionally, we are 

hearing from our transitioning alumni that the current the TAP is not comprehensive enough. We have some concerns that the proposed House Veterans’ 

Affairs Committee (HVAC), Senate Armed Services Committee (SVAC), and the 

National Defense Authorization Act (NDAA) changes to the TAP does not expand 

the overall amount of TAP days. Where the current changes look to streamline the 

TAP while keeping it within the current five days, we recommend expanding the 

overall days dedicated to the TAP curriculum. 

While we are encouraged by the time and attention that has been given to TAP 

to date, we believe both bills under consideration by the Committee today fall short 

of what is necessary for meaningful TAP reform. Our concern is that there are other 
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proposed changes to TAP currently under consideration by the HVAC, the House 

Armed Services Committee (HASC), and the Senate Armed Services Committee 

(SASC). Before supporting any one piece of legislation, we request that Congress 

identify the best provisions in each proposal and work collaboratively to form a single TAP bill supported by all relevant stakeholders. To this end, we request that 

Congress have a joint hearing between SVAC, HVAC, HASC, and SASC to clearly 

inform all committees of jurisdiction about the issues surrounding the TAP. In our 

opinion, this approach would afford all stakeholders—including outside organizations and government agencies—to clearly identify key priorities and considerations 

to improve transition. 

We are concerned that the community is not on the same page when it comes to 

new TAP legislation. We are submitting the following thoughts on the TAP bills 

under consideration at this hearing; however, we request Congress to take a step 

back and develop one piece of legislation in conjunction with DOD, VA, community 

partners, and both sides of Congress. 

(1) Discussion Draft on Transition Assistance Reform 

Section 2. Recodification, Consolidation, and improvement of certain transition-related counseling and assistance authorities: 

Wounded Warrior Project is encouraged by section (D) ‘‘the availability of mental 

health services and the treatment of Post Traumatic Stress Disorder, anxiety disorders, depression, suicidal ideation, or other mental health conditions [ . . . ] and information concerning the availability of treatment options and resources to address 

[these issues].’’ We would request that WWP programs are included as resources for 

transition servicemembers dealing with mental health issues. Wounded Warrior 

Project has developed a significant amount of mental health programming for post9/11 veterans, and we are doing so in concert with VA and several leading community-based health providers. We’ve built these programs within a ‘‘continuum of support’’ designed to meet warriors wherever they are in their recovery while also investing substantial resources in other organizations in the community, including 

four of the Nation’s leading academic medical centers that have come together within our Warrior Care Network®. 

Section 3. Personnel matters in connection with transition assistance program: 

Ensuring that military installations have the proper personnel to administer TAP 

programming is essential. Section 3 would require the military to have ‘‘not less 

than one [full-time TAP personnel] for every 250 members of the Armed Forces currently eligible for participation in the Transition Assistance Program.’’ Additionally, 

this provision would ensure that TAP personnel teaching these classes have at least 

two years of civilian employment experience before they can teach transition classes. 

This is to ensure that the people teaching these TAP classes have themselves gone 

through a successful transition. Last, this section would require DOD to identify one 

point of contact (POC) to coordinate all the on-post TAP programming at each field 

grade unit. This will help ensure that information being distributed throughout the 

military is consistent from base to base. 

Section 5. Information on members of the Armed Forces participating in 

preseparation counseling and surveys on member experiences with transition assistance program counseling and services and in transition to civilian life: 

Collecting and analyzing programmatic data is essential for ensuring positive outcomes from programs. Something that the current TAP program has failed in is surveying members after they have transitioned out of the military and the effectiveness of their TAP experience. This section would require the Secretary of Veterans 

Affairs to consult with the Secretary of Defense, the Secretary of Homeland Security, the Secretary of Education, and the Secretary of Labor to conduct surveys of 

veterans that have been recently retired, discharged, or released from active duty 

to assess their experiences transiting from the military to civilian life. This data can 

help identify areas where the TAP program is assisting and areas where it is 

lacking. 

Wounded Warrior Project suggests editing this section to include a set number of 

veterans that shall be surveyed. We recommend the survey track their success over 

a period of no less than five years after separation. Additionally, WWP encourages 

committee staff to review The Veterans Metric Initiative (TVMI) study commissioned by the Henry Jackson Foundation—and funded, in part, by WWP—that focuses on post-military well-being. The TVMI study’s findings regarding vocation, fi-
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5https://www.woundedwarriorproject.org/media/172072/2017-wwp-annual-warrior-survey.pdf 

nances, health, and social relationships may provide compelling evidence to guide 

the approach under this section. 

Section 6. E-mailing transition assistance materials to supporters of members 

of the Armed Forces transitioning to civilian life: 

Wounded Warrior Project is particularly interested in this section. Section 6 

would require DOD to email TAP program materials to family member of transitioning servicemembers. The Secretary of Defense will solicit an email address from the 

servicemember to disseminate TAP information. When a servicemember transitions 

out of the military it affects the whole family. Ensuring that TAP information is 

shared with the spouse of the servicemember will help the entire family transition 

from DOD to the civilian world. We recommend making this optional for those servicemembers who are not interested in share an email with DOD. As currently written, it is not clear if the servicemember can opt-out of supplying an email address 

to DOD. 

Section 9. Education of members of Armed Forces on career readiness and professional development: 

Wounded Warrior Project is interested in the Alumni Network Program defined 

in section (d); ‘‘[the] Secretary concerned shall establish an alumni network program 

to connect veterans with members of the Armed Forces for mentorship, networking, 

and career advice.’’ In our experience, peer-to-peer support is critical to recovery for 

many warriors. According to our 2017 Wounded Warrior Project Survey, more than 

half of those surveyed, or 51.6 percent, used talking with another Operation Enduring Freedom, Operation Iraqi Freedom, or Operation New Dawn veteran as a resource to address mental health issues. The only more frequently utilized resource 

was VA medical centers.5 In this context, WWP is highly supportive of permanently 

authorizing reintegration and readjustment counseling services for transitioning servicemembers. VA pilot programs that study peer-to-peer or alumni networks have 

been highly successful and WWP has seen similarly encouraging results in its own 

programming. Because of this, WWP supports the proposed Alumni Network Program. WWP requests the legislation require DOD to partner with and promote successful peer-to-peer programs administered by veteran service organizations and 

military service organizations to servicemembers transitioning out of the military. 

Section 10. Employment Skills Training: 

Currently, spouses may attend TAP classes if space is available. This provision 

would require DOD to authorize access to TAP classes to spouses. A strong military 

family is important. A strong civilian family is equally as important. Wounded Warrior Project supports the concept in ensuring the TAP classes are available to 

spouses as it will assist in the entire family’s transition. 

Section 14. Establishment of Governing Board to support prevention of drug 

overdose death by suicide, and alcohol-related mortality: 

This section would require the Secretary of VA to establish a governing board 

within the Veterans Benefits Administration (VBA) to facilitate the transfer of information and to create partnerships that would prevent suicide, substance abuse, and 

assist homes veterans. The board would include representatives from DOD, DHS, 

and DoL, inducing representatives from VA staff offices that focus on these issues. 

Wounded Warrior Project requests including veteran service organizations into the 

board as well. 

Section 16. Grants for provision of transition assistance to members of the 

Armed Forces after separation, retirement, or discharge: 

This section would require DOL to work with VA to award grants to outside organizations who provide transition assistance services to members of the military that 

have separated. These grants would be awarded to organizations that focus on career skills, behavioral health, and education. $10 million dollars would be authorized for the grants. WWP has in the past supported increasing the outside capabilities of transitioning servicemembers access to information and assistance to successfully integrate into the civilian population and has invested a substantial amount 

of fund in peer-to-peer mental health and employment transition programs. 

WWP’s Warriors 2 Work (W2W) is one such successful program. W2W assists veterans transitioning from the military into the civilian workforce. WWP does this 

through resume building, job coaching, assistance with building local networks, on-
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6http://www.nfda.org/news/statistics 

line LinkedIn workshops, and one-on-one job referrals to partnering companies. Currently, we work with over 400 companies and focus on small-scale hiring fairs called 

‘‘micro job fairs.’’ WWP feels that there is a natural synergy between our peer-topeer mental health network, our peer-to-peer W2W programs, and the proposed 

grants defined in this section. 

(2) S. 2748—BATTLE for Servicemembers Act 

Under the current TAP, there is a mandatory ‘‘core curriculum’’ consisting of a 

three-day employment workshop that is conducted by DOL; six hours of briefings 

on veterans’ benefits, conducted by VA; and 8–10 hours of briefings on topics such 

as translating military skills to civilian jobs and preparing a financial plan, conducted by DOD. Following completion of the core curriculum, transition servicemembers can opt to take one of three additional transition tracks that include (1) 

higher education, conducted by DOD; (2) technical and skills training conducted by 

the VA; or (3) entrepreneurship, conducted by the Small Business Administration. 

Although these additional tracks are available, they are often not utilized. This legislation would require transitioning servicemembers to take one of the three additional tracks. Wounded Warrior Project agrees that transitioning servicemembers 

need all the resources they can get to properly transition back into the civilian 

world. Because of this, we support expanding the amount of training given to servicemembers as they leave the military. We would request that a fourth track be 

added for those interested in additional employment information. 

DRAFT BILL—VA HIRING ENHANCEMENT ACT

Wounded Warrior Project does not have a current position on this legislation but 

welcomes future discussions with the Committee on this proposal. 

H.R. 5418—VETERANS AFFAIRS MEDICAL-SURGICAL PURCHASING STABILIZATION ACT

H.R. 5418 would require the Secretary to award contracts to multiple regional 

prime vendors instead of a single nationwide prime vendor and prohibits the prime 

vendor from solely designing the formulary of such supplies. Wounded Warrior 

Project is concerned that restricting the Secretary of Veterans Affairs’ ability to purchase medical equipment, the VA may adversely affect veteran safety and health 

because Congress has limited the agency’s purchasing options. Wounded Warrior 

Project recommends changing the wording on page 2, line 8 from ‘‘Secretary of Veterans Affairs shall carry out . . .’’ to ‘‘Secretary of Veterans Affairs may carry out... .’’ 

Wounded Warrior Project opposes this legislation. 

S. 1596—BRAVE ACT OF 2017

Wounded Warrior Project is here to assist injured, ill, and wounded veterans and 

servicemembers. When these disabilities lead to the death of a warrior, appropriate 

assistance should be rendered to the family by the Federal Government. S. 1596 

would increase funeral benefits for veterans and fallen servicemembers and establish a percentage increase of this benefit each year. The current $300 payment 

would be increased to $749. With the average cost of burials exceeding $7,000 in 

2016,6 this payment increase would represent a small step in the right direction in 

assisting families during this time of mourning; however, WWP requests that burial 

benefit payments be increased to match the average cost of a burial. 

Wounded Warrior Project supports this legislation with amendments. 

S. 2881—MARE ISLAND NAVAL CEMETERY TRANSFER ACT

Mare Island Naval Cemetery is one of the oldest West Coast military burial sites. 

Over the past decade, the cemetery has fallen into disrepair. The cemetery, which 

is currently owned and operated by the city of Vallejo, California does not have the 

necessary funds to maintain the cemetery appropriately. This legislation would direct the Secretary of Veterans Affairs to enter into an agreement with the city of 

Vallejo, California to ensure that the cemetery is properly maintained. Wounded 

Warrior Project feels that the final resting place of military servicemembers and veterans should be kept to a high standard of maintenance. In the rare instance that 

a local community has the responsibility to maintain a veteran cemetery, and is unable to maintain that standard, the VA should step up and assist. 

Wounded Warrior Project supports this legislation. 
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S. 1952—VA FINANCIAL ACCOUNTABILITY ACT OF 2017

Wounded Warrior Project does not have a current position on this legislation but 

welcomes future discussions with the Committee on this proposal. 

S. 1990—DEPENDENCY AND INDEMNITY COMPENSATION IMPROVEMENT ACT OF 2017

S. 1990 aims to increase the Dependency and Indemnity Compensation (DIC) benefits rate so that it is equivalent to the rate paid to survivors of Federal civilian 

employees. The increase would provide approximately $300 more per month to 

spouses of servicemembers and veterans who die while on active military duty or 

as a result of a service-connected injury or illness. Additionally, a spouse will be authorized to receive the DIC benefit if the servicemember was rated totally disabled 

for a period of five years. Currently, DIC payments are provided to survivors or 

those rated totally disabled for a period of ten years. Wounded Warrior Project has 

always supported the spouses of those injured, ill, or wounded while serving this 

country. WWP will continue to support them after these warriors pass on. We support this bill as it will also ensure that these individuals are financially supported 

after their loved one dies. 

Wounded Warrior Project supports this legislation. 

S. 2485—MEDAL OF HONOR SURVIVING SPOUSES RECOGNITION ACT OF 2018

S. 2485 would provide a special pension payment to the surviving spouses of a deceased Medal of Honor recipient and increase the special pension amount from 

$1,000 to $1,329.58. Medal of Honor recipients, and their families have gone above 

and beyond in service to this Nation. Their sacrifices should not go unnoticed. This 

pension does not nearly cover the gratitude this Nation owes these heroes. Because 

of this, Wounded Warrior Project fully supports this legislation. 

Wounded Warrior Project supports this legislation. 

DRAFT BILL—TO REQUIRE THE SECRETARY OF VETERANS AFFAIRS TO ESTABLISH A PRO- GRAM TO AWARD GRANTS TO PERSONS TO PROVIDE AND COORDINATE THE PROVISION

OF SUICIDE PREVENTION SERVICES FOR VETERANS TRANSITION FROM SERVICE IN THE

ARMED FORCES WHO ARE AT RISK OF SUICIDE AND FOR THEIR FAMILIES, AND FOR

OTHER PURPOSES

This draft bill would establish a program to award grants to organizations that 

are providing and coordinating suicide prevention services to veterans. Through offerings such as Warrior Care Network®, Project Odyssey, and WWP Talk, WWP 

has served 17,822 warriors and family members through interactive programming, 

rehabilitative retreats, and other professional services to address their mental 

health needs. 

The Warrior Care Network® (WCN) has a critical mission to heal the invisible 

wounds of war by increasing access to some of the highest quality care for wounded 

warriors and their families. Launched in 2016 with a vision of becoming a national 

leader, innovator, and integrator in the delivery of treatment for warriors living 

with psychological injuries as well as those suffering from Traumatic Brain Injury, 

the WCN has enjoyed early success due in part to collaboration with the Department of Veterans Affairs (VA). 

In FY 2017, the partnership provided 3,707 hours of transition services, 2,612 professional consultations, 383 briefings, and 401 referrals into VA care. As the need 

for professional mental health treatment for Veterans and their families is great 

(and growing), the WCN is committed to expanding its efforts in the coming years 

and we wish to continue the collaborative partnership with the VA. In the next five 

years, the WCN will invest over $160 million to the care of approximately 5,000 Veterans and family members in the intensive outpatient program and approximately 

6,500 Veterans in traditional outpatient care where the partnership with the VHA 

will be even more critical for the continuity of care. 

Additionally, Project Odyssey and the WWP Talk programs support veterans 

through peer-to-peer counseling and rehabilitative retreats. With over five Project 

Odyssey events happening across the Nation each week and thousands of one-onone calls to warriors happening each month, WWP is committed to addressing today’s mental health needs in a variety of ways. 

While WWP has many successful direct programs serving the needs of warriors 

and their families, we alone cannot meet every need this generation of wounded servicemembers and veterans face. Because of this, WWP supports any effort by VA 

to increase funding for suicide prevention to outside partners. We would suggest increasing eligibility into the program to current servicemembers. Additionally, on 

page 7, line 19, we would suggest changing ‘‘The Secretary may require a person 
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receiving a grant under this section to submit to the Secretary a report that describes the use of the grants amounts by the person or such other information as 

the Secretary considers appropriate’’ to a ‘‘shall’’ statement. WWP feels that it is important for an organization that applies for a grant to be required to describe how 

the funds will be utilized. 

Wounded Warrior Project supports this legislation with amendments. 

DRAFT BILL—MODERNIZATION OF MEDICAL RECORDS ACCESS FOR VETERANS ACT

Wounded Warrior Project does not have a current position on this legislation but 

welcomes future discussions with the Committee on this proposal. Wounded Warrior 

Project assists ill, injured, and wounded warriors, family members, and Caregivers. 

We stand ready to assist Congress in legislation affecting these individuals. Although we do not have a position on this bill we do caution Congress in implementing another technological pilot program while there is no VA Chief Information 

Officer and with the electronic health record project between DOD and VA ramping 

up. We request more discussions with committee staff before formulating a position. 

S. 514—NO HERO LEFT UNTREATED ACT

S. 514 would direct the Secretary of Veterans Affairs (VA) to carry out a pilot program to provide access to magnetic EEG/EKG-guided resonance therapy to veterans. 

Based on trends we have identified from our work through direct mental health programming and partnerships in the community, WWP strongly believes that more 

can be done to address the invisible wounds of war, particularly PTSD, TBI, depression, and other related conditions; however, we must ensure that new forms of treatment are safe for Veterans. Currently, EEG/EKG-guided resonance therapy is not 

approved by the Federal Drug Administration (FDA); however, we understand that 

EEG/EKG-guided resonance therapy is primarily used for research applications and 

therefore not typically approved by the FDA. Additionally, the VHA has implemented a pilot program at approximately 23 medical facilities. This pilot program 

uses Repetitive Transcranial Magnetic Stimulation, or rTMS therapy, and WWP has 

followed the outcomes of the pilot program. The most recent report on the rTMS 

therapy pilot program indicated that rTMS therapy did not assist in reducing PTSD 

symptoms any more than the control study group.7 It is obvious that more research 

is needed regarding this new form of mental health treatment. Given the most recent rTMS program findings, WWP would support this legislation if the bill language were changed to include a double-blind research provision on the outcomes 

of the pilot program. WWP would like to see this research program compared to the 

most recent rTMS pilot program to understand it’s longer-term viability as a treatment for PTSD, MST, TBI, and depression. 

Wounded Warrior Project would support this legislation if it were presented as 

a research pilot program as opposed to a treatment pilot program and sufficient language addressing this was included in the bill. 

CONCLUSION

Wounded Warrior Project thanks the Senate Committee on Veterans’ Affairs, its 

distinguished members, and all who have contributed to the policy discussions surrounding the bills under consideration at today’s hearing. We share a sacred obligation to serve our Nation’s veterans, and Wounded Warrior Project appreciates the 

Committee’s effort to identify and address the issues that challenge our ability to 

carry out that obligation as effectively as possible. We are thankful for the invitation to submit this statement for record and stand ready to assist when needed on 

these issues and any others that may arise. 

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