89–006 

111TH CONGRESS REPORT " ! HOUSE OF REPRESENTATIVES 2d Session 111–490 

VETERANS DOG TRAINING THERAPY ACT 

MAY 20, 2010.—Committed to the Committee of the Whole House on the State of 

the Union and ordered to be printed 

Mr. FILNER, from the Committee on Veterans’ Affairs, 

submitted the following 

R E P O R T 

[To accompany H.R. 3885] 

[Including cost estimate of the Congressional Budget Office] 

The Committee on Veterans’ Affairs, to whom was referred the 

bill (H.R. 3885) to direct the Secretary of Veterans Affairs to carry 

out a pilot program on dog training therapy, having considered the 

same, report favorably thereon without amendment and recommend that the bill do pass. 

CONTENTS 

Page 

Purpose and Summary ............................................................................................ 1 

Background and Need for Legislation .................................................................... 2 

Hearings ................................................................................................................... 3 

Subcommittee Consideration .................................................................................. 4 

Committee Consideration ........................................................................................ 4 

Committee Votes ...................................................................................................... 4 

Committee Oversight Findings ............................................................................... 4 

Statement of General Performance Goals and Objectives .................................... 4 

New Budget Authority, Entitlement Authority, and Tax Expenditures ............. 4 

Earmarks and Tax and Tariff Benefits .................................................................. 5 

Committee Cost Estimate ....................................................................................... 5 

Congressional Budget Office Estimate ................................................................... 5 

Federal Mandates Statement ................................................................................. 6 

Advisory Committee Statement .............................................................................. 6 

Constitutional Authority Statement ...................................................................... 6 

Applicability to Legislative Branch ........................................................................ 6 

Section-by-Section Analysis of the Legislation ...................................................... 6 

PURPOSE AND SUMMARY

H.R. 3885 was introduced by Representative Henry E. Brown, Jr. 

of South Carolina, the Ranking Member of the Subcommittee on 

Health of the Committee on Veterans’ Affairs, on October 21, 2009. 


tjames on DSKG8SOYB1PROD with REPORTS
2 

H.R. 3885, the Veterans Dog Training Therapy Act, would require 

the Secretary of the U.S. Department of Veterans Affairs (VA) to 

conduct a five-year pilot program in at least three but not more 

than five VA medical centers assessing the effectiveness of addressing post-deployment mental health and post-traumatic stress disorder (PTSD) through a therapeutic medium of training service 

dogs for veterans with disabilities. The VA would be required to report to Congress annually on its progress. 

BACKGROUND AND NEED FOR LEGISLATION

Considerable attention has been given in recent years to the invisible wounds of war including mental health illnesses such as depression, PTSD, substance use disorder, and traumatic brain injury. Unlike physical injuries, mental health issues may not be 

readily apparent but can nonetheless have a harmful effect on a 

veteran’s quality of life by having a negative impact upon an individual’s mood, thoughts, and behavior. Currently, VA provides 

mental health treatment through a variety of inpatient and outpatient mental health programs in VA medical centers, communitybased outpatient clinics, and vet centers. In fiscal year 2009, VA’s 

budget for mental health was approximately $4.5 billion. 

Perhaps the most widely recognized mental health issue affecting 

veterans, PTSD is a severe anxiety disorder that can develop after 

exposure to a traumatic event in which grave physical harm occurred or was threatened. Combat experience is one type of event 

that may trigger PTSD. Experts indicate that while PTSD is expected in 7 to 8 percent of the general population, they expect to 

see the disorder in about 11 to 20 percent of Operation Enduring 

Freedom (OEF) and Operation Iraqi Freedom (OIF) veterans, 10 

percent of Gulf War veterans, and 30 percent of Vietnam veterans. 

VA provides nearly 200 specialized PTSD treatment programs in 

facilities across the country. 

Given the prevalence of PTSD among our veteran population, 

Congress has recognized the need to provide veterans seeking 

treatment for mental health issues with newer and more innovative modes of therapy. In that vein, the Conference Report (H. 

Rept. 111–366) that accompanied the Consolidated Appropriations 

Act, 2010 (P.L. 111–117 (123 Stat. 3034)) included the recommendation that VA ‘‘expand its partnership with accredited nonprofit 

service dog organizations where veterans with PTSD help to train 

service dogs.’’ 

On March 24, 2008, a Memorandum of Understanding was 

signed between the VA Palo Alto Health Care System (VAPAHCS) 

in Palo Alto, California, and the Assistance Dog Program to establish a specialized assistance dog training program for veterans. 

This program, within the Recreational Therapy Service at the 

VAPAHCS, is designed to create a therapeutic environment for veterans with post-deployment mental health issues and symptoms of 

PTSD to address their mental health needs. Veterans participating 

in this program train service dogs for later placement with veterans with hearing and physical disabilities. 

A similar, privately-funded, pilot program is currently underway 

at Walter Reed Army Medical Center (WRAMC) where service dogs 

have been used in therapeutic settings since 2006. Called the 

‘‘Paws for Purple Hearts’’ Service Dog Training Program, in this 


tjames on DSKG8SOYB1PROD with REPORTS
3 

pilot Warriors in Transition (WTs) from the battlefield to the home 

front volunteer to participate in a specialized service dog training 

program. The objectives of the program are to: improve a WT’s 

emotional, cognitive, and physical symptoms through purposeful 

interactions and participation in a therapeutic occupation; provide 

an opportunity for PTSD patients to participate in a goal-directed, 

meaningful occupation that facilitates structure, skill development, 

and community participation; and, the successful placement of 

well-trained service dogs with fellow servicemembers and/or veterans with significant physical injuries resulting in mobility impairments. 

The Walter Reed program has been so successful in meeting its 

objectives that Department of Defense (DOD) officials are moving 

to include similar therapeutic models in other service areas. For example, a similar program will be included in the National Intrepid 

Center of Excellence (NICoE) opening in late June 2010 on the 

campus of the National Naval Center in Bethesda, Maryland; the 

Army Surgeon General has created an Animal Assisted Therapy 

task force to develop policies and research related to dog therapy; 

and, the Army Family Action Plan conference listed funding for 

service dogs for wounded warriors as their second top issue of importance. 

In each of the above programs, training service dogs for fellow 

veterans is believed to be helping to address symptoms associated 

with post-deployment mental health issues and PTSD in a myriad 

of ways. Specifically, veterans participating in the programs demonstrated improved emotional regulation, sleep patterns, and sense 

of personal safety. They also experienced reduced levels of anxiety 

and social isolation. Further, participation in the pilot enabled 

them to actively instill or re-establish a sense of purpose and 

meaning while providing an opportunity to help fellow veterans 

and reintegrate healthfully back into the community. However, despite the anecdotal evidence of the therapeutic benefit of service 

dog training on veterans with mental health issues and PTSD, 

there is a serious dearth of scientific research on the value of such 

programs. 

The goal of this legislation is to reach more veterans with this 

innovative and successful mental health and PTSD treatment 

model and provide a means of collecting important research data 

to address the current lack of evidence-based research on the effectiveness of the service dog training therapy model. The pilot program created by this legislation has the added benefit of providing 

a career path to veterans who successfully graduate the program 

and are interested in becoming certified dog trainers and making 

well-trained service dogs available to other disabled veterans. 

HEARINGS

On October 1, 2009, the Subcommittee on Health held a legislative hearing on several bills introduced in the 111th Congress, including draft legislation on psychiatric service dogs. The following 

witnesses testified: The Honorable Bob Filner of California; The 

Honorable Stephanie Herseth Sandlin of South Dakota; The Honorable Phil Hare of Illinois; The Honorable Ciro D. Rodriguez of 

Texas; The Honorable Glenn Nye of Virginia; The Honorable Harry 

Teague of New Mexico; The Honorable Michael A. Arcuri of New 


tjames on DSKG8SOYB1PROD with REPORTS
4 

York; Mr. Joseph Wilson, Deputy Director, Veterans Affairs and 

Rehabilitation Commission, The American Legion; Mr. Justin 

Brown, Legislative Associate, National Legislative Service, Veterans of Foreign Wars; Mr. Rick Weidman, Executive Director, Policy and Government Affairs, Vietnam Veterans of America; Mr. 

Blake C. Ortner, Senior Associate Legislative Director, Paralyzed 

Veterans of America; Mr. Peter H. Dougherty, Director, Homeless 

Veterans Programs, U.S. Department of Veterans Affairs who was 

accompanied by Mr. Paul E. Smits, Associate Chief Consultant, 

Homeless and Residential Rehabilitation and Treatment Programs, 

U.S. Department of Veterans Affairs; and, Ms. Jane Clare Joyner, 

Deputy Assistant General Counsel, U.S. Department of Veterans 

Affairs. Those submitting for the record included: Rick A. 

McMichael, DC, President, American Chiropractic Association; the 

American Physical Therapy Association; and, the American 

Tinnitus Association. 

SUBCOMMITTEE CONSIDERATION

On October 22, 2009, the Subcommittee on Health met in open 

markup session and ordered H.R. 3885 favorably forwarded to the 

full Committee by voice vote. 

COMMITTEE CONSIDERATION

On May 12, 2010, the full Committee met in an open markup 

session, a quorum being present, and ordered H.R. 3885 reported 

favorably to the House of Representatives by voice vote. 

COMMITTEE VOTES

Clause 3(b) of rule XIII of the Rules of the House of Representatives requires the Committee to list the record votes on the motion 

to report the legislation and amendments thereto. There were no 

record votes taken on amendments or in connection with ordering 

H.R. 3885 reported to the House. A motion by Mr. Stearns of Florida to order H.R. 3885 reported favorably to the House of Representatives was agreed to by voice vote. 

COMMITTEE OVERSIGHT FINDINGS

In compliance with clause 3(c)(1) of rule XIII and clause 2(b)(1) 

of rule X of the Rules of the House of Representatives, the Committee’s oversight findings and recommendations are reflected in the 

descriptive portions of this report. 

STATEMENT OF GENERAL PERFORMANCE GOALS AND OBJECTIVES

In accordance with clause 3(c)(4) of rule XIII of the Rules of the 

House of Representatives, the Committee’s performance goals and 

objectives are reflected in the descriptive portions of this report. 

NEW BUDGET AUTHORITY, ENTITLEMENT AUTHORITY, AND TAX

EXPENDITURES

In compliance with clause 3(c)(2) of rule XIII of the Rules of the 

House of Representatives, the Committee adopts as its own the estimate of new budget authority, entitlement authority, or tax expenditures or revenues contained in the cost estimate prepared by 


tjames on DSKG8SOYB1PROD with REPORTS
5 

the Director of the Congressional Budget Office pursuant to section 

402 of the Congressional Budget Act of 1974. 

EARMARKS AND TAX AND TARIFF BENEFITS

H.R. 3885 does not contain any congressional earmarks, limited 

tax benefits, or limited tariff benefits as defined in clause 9 of rule 

XXI of the Rules of the House of Representatives. 

COMMITTEE COST ESTIMATE

The Committee adopts as its own the cost estimate on H.R. 3885 

prepared by the Director of the Congressional Budget Office pursuant to section 402 of the Congressional Budget Act of 1974. 

CONGRESSIONAL BUDGET OFFICE COST ESTIMATE

Pursuant to clause 3(c)(3) of rule XIII of the Rules of the House 

of Representatives, the following is the cost estimate for H.R. 3885 

provided by the Congressional Budget Office pursuant to section 

402 of the Congressional Budget Act of 1974: 

U.S. CONGRESS, 

CONGRESSIONAL BUDGET OFFICE, 

Washington, DC, May 18, 2010. 

Hon. BOB FILNER, 

Chairman, Committee on Veterans’ Affairs, 

House of Representatives, Washington, DC. 

DEAR MR. CHAIRMAN: The Congressional Budget Office has prepared the enclosed cost estimate for H.R. 3885, the Veterans Dog 

Training Therapy Act. 

If you wish further details on this estimate, we will be pleased 

to provide them. The CBO staff contact is Sunita D’Monte. 

Sincerely, 

DOUGLAS W. ELMENDORF. 

Enclosure. 

H.R. 3885—Veterans Dog Training Therapy Act 

H.R. 3885 would require the Department of Veterans Affairs 

(VA) to establish a pilot program through which veterans diagnosed with post-traumatic stress disorder or other mental health 

conditions would train service dogs for use by disabled veterans. 

The pilot program would operate in three to five medical centers 

over a five-year period. CBO estimates that implementing the bill 

would cost $7 million over the 2011–2015 period, assuming appropriation of the necessary amounts. Enacting this legislation would 

not affect direct spending or revenues; therefore, pay-as-you-go procedures would not apply. 

H.R. 3885 contains no intergovernmental or private-sector mandates as defined in the Unfunded Mandates Reform Act and would 

not affect the budgets of state, local, or tribal governments. 

The estimated budgetary impact of H.R. 3885 is shown in the following table. The costs of this legislation fall within budget function 700 (veterans benefits and services). 


tjames on DSKG8SOYB1PROD with REPORTS
6 

By fiscal year, in millions of dollars— 

2011 2012 2013 2014 2015 2011– 

2015 

CHANGES IN SPENDING SUBJECT TO APPROPRIATION 

Estimated Authorization Level ............................................................................ 1 1 1 2 2 7 

Estimated Outlays .............................................................................................. 1 1 1 2 2 7 

Based on information from VA, CBO estimates that the department would implement the pilot program in four medical centers 

and would require two recreation therapists and one certified dog 

trainer at each facility as well as one recreation therapist and a director to oversee the program. Based on a similar program at the 

VA facility in Palo Alto, California, CBO further estimates that 

each facility would train five service dogs every two years. Assuming the program would be phased in over three years and that the 

necessary amounts would be appropriated, CBO estimates that implementing the bill would cost $1 million in 2011, growing to $2 

million a year by 2014. 

The CBO staff contact for this estimate is Sunita D’Monte. The 

estimate was approved by Theresa Gullo, Deputy Assistant Director for Budget Analysis. 

FEDERAL MANDATES STATEMENT

The Committee adopts as its own the estimate of Federal mandates regarding H.R. 3885 prepared by the Director of the Congressional Budget Office pursuant to section 423 of the Unfunded Mandates Reform Act. 

ADVISORY COMMITTEE STATEMENT

No advisory committees within the meaning of section 5(b) of the 

Federal Advisory Committee Act would be created by H.R. 3885. 

CONSTITUTIONAL AUTHORITY STATEMENT

Pursuant to clause 3(d)(1) of rule XIII of the Rules of the House 

of Representatives, the Committee finds that the Constitutional authority for H.R. 3885 is provided by Article I, section 8 of the Constitution of the United States. 

APPLICABILITY TO LEGISLATIVE BRANCH

The Committee finds that the legislation does not relate to the 

terms and conditions of employment or access to public services or 

accommodations within the meaning of section 102(b)(3) of the Congressional Accountability Act. 

SECTION-BY-SECTION ANALYSIS OF THE LEGISLATION

Section 1. Short title 

This section provides the short title of H.R. 3885 as the ‘‘Veterans Dog Training Therapy Act.’’ 

Section 2. Department of Veterans Affairs pilot program on dog 

training therapy 

Section 2(a) of the bill would require the Secretary of the VA, beginning no later than 120 days after enactment, to carry out a pilot 

program to assess the effectiveness of treating post-deployment 


tjames on DSKG8SOYB1PROD with REPORTS
7 

mental health issues and PTSD using the therapeutic medium of 

training service dogs for veterans with disabilities. 

Section 2(b) of the bill would require the pilot described in Section 2(a) be carried out in at least three but not more than five VA 

medical centers during a five-year period beginning on the date of 

commencement of the pilot. 

Section 2(c) of the bill would require that each VA medical center 

selected for participation in the pilot provide a training area for 

educating participating veterans in dog training and handling and 

that such training area include an indoor space for grooming and 

training, be wheelchair accessible, include a classroom or lecture 

space, include office space, include storage space, provide for periodic use of other training areas, include outdoor exercise and 

toileting space, and provide for weekly field trips. 

Section 2(d) of the bill would require the pilot program set up 

under Section 2(a) be administered through the VA’s Recreation 

Therapy Service under the direction of a certified recreational therapist, establish a qualified director of service dog training, ensure 

that each site have certified dog trainers, ensure that dogs used in 

the program be purpose-bred for assistance dog work and have adequate temperament and health, ensure that each dog be taught 90 

basic commands, ensure that each dog live at the program site or 

with a volunteer foster home, ensure that the program include both 

lecture and hands-on training/grooming components, and be designed to maximize therapeutic benefits and provide well-trained 

assistance dogs to veterans with disabilities. 

Section 2(e) of the bill would define a veteran eligible for the 

pilot program as a veteran with PTSD or another post-deployment 

mental health issue who volunteers, if the Secretary determines 

there are adequate resources available. 

Section 2(f) of the bill would create a hiring preference for service 

dog trainers who are veterans who have successfully completed 

PTSD or other residential treatment programs and received adequate dog training certification. 

Section 2(g) of the bill would require the VA Secretary to collect 

data to determine the effectiveness of the program and include information on how it assists veterans with reducing mental health 

stigma, improving emotional regulation, improving patience, establishing a sense of purpose, providing an opportunity to help fellow 

veterans, reintegrating back into the community, reducing social 

isolation, building relationship skills, relaxing their survival state, 

improving sleep patterns, and decreasing medication use. 

Section 2(h) of the bill would require a yearly report to Congress 

on the program including the number of participating veterans; a 

description of the program’s services; the effects of the pilot on 

symptoms of mental illness, relevant physiological markers, family 

dynamics, insomnia, pain management, and overall well-being; 

and, recommendations to extend or expand the program. 

Section 2(i) of the bill would define a ‘‘service dog training instructor’’ as someone who provides direct training of veterans with 

PTSD or other mental illness in assistance dog training and handling. 

Æ 


tjames on DSKG8SOYB1PROD with REPORTS