Fiscal Year 2006

Report of the 

Chairman

Board of Veterans’ Appeals
DEPARTMENT OF VETERANS AFFAIRS

Chairman, Board of Veterans’ Appeals

Washington DC 20420

January 10, 2007 

The Honorable R. James Nicholson

Secretary of Veterans Affairs

Department of Veterans Affairs

810 Vermont Avenue, N.W.

Washington, DC 20420

Dear Mr. Secretary:

I am pleased to present the Fiscal Year 2006 Report of the Chairman, Board of Veterans’ 

Appeals (Board or BVA), for inclusion in your submission to Congress. Information on the 

activities of the Board during Fiscal Year 2006 and the projected activities of the Board for 

Fiscal Years 2007 and 2008, as required by 38 U.S.C. § 7101(d)(1), are provided in Parts I 

and II.

Fiscal Year 2006 saw the Board increase productivity, despite limited resources, and 

conduct a record number of personal hearings. Although veterans benefits law continued 

to change, the employees of the Board never lost sight of the mission to produce timely, 

quality decisions for the veterans we serve. Nor did they lose sight of our obligation to treat 

veterans and their families with care and compassion.

I believe the enclosed report will provide you, the Congress, and the veterans we serve 

with an accurate and meaningful perspective on the Board’s activities of Fiscal Year 2006. 

Very respectfully,

James P. Terry

Chairman

Enclosure

INTRODUCTION ....................................................................................................................... 1

PART I: ACTIVITIES OF THE BOARD OF VETERANS’ APPEALS FISCAL 

YEAR 2006 ................................................................................................................................ 2

SUCCESSES ............................................................................................................................... 3

THE BOARD’S GOALS FOR FISCAL YEARS 2007 AND 2008 ............................................ 3

1. Eliminate Avoidable Remands .......................................................................................... 3

2. Eliminate the Backlog ....................................................................................................... 4

3. Succession Planning ......................................................................................................... 6

FISCAL YEAR 2006 CONGRESSIONAL HEARINGS AND OTHER BRIEFINGS ............ 7

SIGNIFICANT JUDICIAL PRECEDENT AND ITS EFFECT ON THE BOARD ............... 8

ASSISTANCE TO VBA REGIONAL OFFICES AND VHA .................................................... 10

VETERANS SERVICE ORGANIZATION (VSO) FORUMS AND GLOBAL TRAINING....... 11

VOLUNTEER ACTIVITIES ...................................................................................................... 11

PLANNING FOR THE FUTURE ............................................................................................. 11

BOARD MEMBERS ................................................................................................................... 13

PART II: STATISTICAL DATA .......................................................................................... 14

PROJECTIONS FOR FISCAL YEARS 2007 AND 2008 ........................................................... 17

ADDITIONAL INFORMATION ................................................................................................ 18

TABLE OF CONTENTS
INTRODUCTION

The law requires that the Chairman of the Board of Veterans’ Appeals (Board or BVA) report the 

activities of the Board at the conclusion of each fiscal year. This report includes two parts. Part I 

provides a discussion of BVA activities during Fiscal Year 2006 and projected activities for Fiscal 

Years 2007 and 2008. Part II provides statistical information related to our activities during Fiscal 

Year 2006 and projected activities for Fiscal Years 2007 and 2008.

The Board makes final decisions on behalf of the Secretary on appeals from decisions of local 

Department of Veterans Affairs (VA) offices. The Veterans Law Judges review all appeals for 

entitlement to veterans’ benefits, including claims for service connection, increased disability 

ratings, total disability ratings, pension, insurance benefits, educational benefits, home loan 

guaranties, vocational rehabilitation, dependency and indemnity compensation, and health care 

delivery.

The mission, as set forth in 38 U.S.C. § 7101(a), is “to conduct hearings and consider and dispose 

of appeals properly before the Board in a timely manner.” The goal is to issue quality decisions 

in compliance with the requirements of the law, including the precedential decisions of the United 

States Court of Appeals for Veterans Claims and other federal courts. 

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PART I 

ACTIVITIES OF THE BOARD OF VETERANS’ 

APPEALS

FISCAL YEAR 2006

The Board was established in 1933 and operates by authority of, and functions pursuant to, Chapter 

71 of Title 38, United States Code. The Board consists of a Chairman, Vice Chairman, Senior 

Deputy Vice Chairman, 56 Veterans Law Judges (VLJs), 8 Senior Counsel, 240 staff counsel, 

and other administrative and clerical staff. The Board is comprised of four Decision Teams with 

jurisdiction over appeals arising from the VA Regional Offices (RO) and Medical Centers in one 

of four geographical regions: Northeast, Southeast, Midwest, and West (including the Philippines). 

Each Decision Team includes a Deputy Vice Chairman, two Chief VLJs, eleven Line Judges, two 

Senior Counsel, and sixty staff counsel. Staff counsel review the VA claims folders, research the 

applicable law, and prepare comprehensive draft decisions or remand orders for the VLJ’s review, 

revision, approval and signature.

The mission is to produce well-reasoned, accurate and fair decisions in a timely manner. In order 

to do so, the Board determines whether it has jurisdiction, conducts hearings when requested, and 

evaluates whether development of the evidence is needed. Its decisions, by law, contain findings 

of fact, conclusions of law, the reasons or bases for the decision, and an order granting or denying 

relief. Although the Board is primarily an appellate body, it has de novo fact-finding authority. 

It reviews decisions of the Agency of Original Jurisdiction (AOJ) that have been appealed and 

renders a decision, although it may direct further development of the evidence and readjudication 

of the claims at issue by the AOJ.

The Board has jurisdiction over a wide variety of issues and matters, but the vast majority of appeals 

considered (about 96 percent) involve claims for disability compensation or survivor benefits. 

Examples of other types of claims that are addressed by the Board include fee basis medical care, 

waiver of recovery of overpayments, reimbursements for emergency medical treatment expenses, 

education assistance benefits and vocational rehabilitation training, attorney fee matters, and 

insurance benefits.

In Fiscal Year 2006, the Board conducted 9,158 hearings and issued 39,076 decisions with a cycle 

time of 148 days. Cycle time measures the time from the date an appeal is physically received at 

the Board until a decision is dispatched, excluding the time the case is with a service organization 

representative. The Board physically received 41,802 appeals in Fiscal Year 2006 and expects to 

receive at least that many appeals in Fiscal Year 2007.

During the fiscal year, the Board hired 56 law clerks and attorneys to fill vacant staff counsel 

positions and to replace departing staff counsel. In addition, three new VLJs and six Senior Counsel 

were selected through a competitive process. Senior Counsel serve as Acting Veterans Law Judges, 

draft decisions, mentor and train other attorneys, and assist in management. Three Senior Counsel 

were selected to fill positions that were vacant at the beginning of Fiscal Year 2006.
Successes

The Board issued 39,076 decisions in Fiscal Year 2006, an increase of 4,901 over Fiscal Year 2005, 

when we issued 34,175 decisions. VLJs conducted 9,158 hearings, which is an increase of 582 

hearings held over Fiscal year 2005. The majority of the line VLJs exceeded their productivity 

goals and traveled to at least three ROs to conduct one week of Travel Board hearings at each 

site. However, the number of cases pending before the Board at the end of Fiscal Year 2006 was 

40,265, which is almost a 3,000 case increase over the 37,539 appeals that were pending at the 

end of Fiscal Year 2005. This increase occurred despite the fact that the Board issued almost 

5,000 more decisions in Fiscal Year 2006 than the previous year. If we continue to receive the 

same high number of appeals and hearing requests each year, the ability to conduct hearings and 

decide appeals on a timely basis with the current business plan strength of 56 VLJs will present a 

challenge.

In Fiscal Year 2006, the Board focused on methods to increase decision output and the quality of the 

decisions rendered. We continued efforts to eliminate avoidable remands and increased decision 

output through the use of voluntary attorney overtime, production incentives for attorneys, and the 

issuance of clear, concise, coherent, and correct decisions. The Board will continue to challenge 

its employees in the upcoming fiscal years to increase decision output even further and to maintain 

the high level of quality that was achieved in Fiscal Year 2006. The 93% accuracy rate for the 

fiscal year reflects significant improvement from the 89% accuracy rate for Fiscal Year 2005. The 

accuracy rate takes into account those substantive deficiencies that would be expected to result in a 

reversal or a remand by the United States Court of Appeals for Veterans Claims (CAVC or Veterans 

Court). Deficiencies in quality that are identified during the quality review process are addressed 

through follow-up training for the VLJs and attorneys.

The Board’s Goals for Fiscal Years 2007 and 2008

The most significant challenges for the future are to eliminate avoidable remands and the 

backlog.

1. Eliminate Avoidable Remands

Veterans want timely and correct decisions on claims for benefits. The record must contain all 

evidence necessary to decide the claim and show that all necessary due process has been provided. 

If the record does not meet these requirements, and the benefits sought cannot be granted, a remand 

for further development is necessary. However, remands from the Board to the AOJ significantly 

increase the time it takes for a veteran to receive a final decision. A remand typically adds more 

than a year to the appellate process. Furthermore, about 75% of cases remanded are subsequently 

returned to the Board, which increases the workload and degrades timeliness. Eliminating avoidable 

remands is a goal that will provide better service to veterans and their families and, ultimately, help 

diminish the growing backlog. We made significant progress toward this goal in Fiscal Year 2006 

as the remand rate was reduced from 38.6% to 32.0%.

In Fiscal Years 2007 and 2008, the Board will focus on the following: 

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► Concise Explanations of the Reasons for Remanding a Case: We will continue to 

provide a concise explanation of the reasons for remand in individual decisions in order to 

reduce ambiguity and to improve field processing. Better understanding of and compliance 

with remand directives will decrease the risk of a second remand in a particular case and 

may help avoid future remands because of the same deficiency.

► Prejudicial Error Analyses: One reason for the high remand rate of 56.8% in Fiscal 

Year 2004 was the Veterans Claims Assistance Act (VCAA), which among other things, 

heightened VA’s duty to assist and duty to notify claimants of the type of evidence needed 

to substantiate their claims. Following the issuance of Pelegrini v. Principi, 18 Vet. App. 

112 (2004), in which the Veterans Court held that a VCAA notice letter must be provided 

to a claimant prior to an initial adverse adjudication, the Board attempted to avoid remands, 

when possible, by conducting an analysis to determine if any deficiency in the notice 

provided to the claimant was prejudicial. If prejudice was not found, most Board judges 

issued final decisions. If the deficiency was prejudicial, judges were required to remand 

the case to the RO to cure the defect. The Board plans to continue this practice in Fiscal 

Year 2007.

► Waivers of AOJ Review: The 38.6% remand rate in Fiscal Year 2005 trended downward 

to 32.0%, in Fiscal Year 2006, due, in part, to implementation of a regulatory amendment 

that allowed the Board to request a waiver of AOJ review of new evidence. Before February 

22, 2002, if the Board accepted any evidence not previously considered by the AOJ it was 

required to remand the case for review and preparation of a Supplemental Statement of the 

Case, unless the appellant or representative waived, in writing, initial AOJ consideration of the 

evidence, or the VLJ could fully grant the benefit(s) sought on appeal. 38 C.F.R. § 20.1304(c) 

(2001). Effective February 22, 2002, the Board’s Appeals Regulations and Rules of Practice 

were amended to allow us to consider additional evidence without referring the evidence to 

the AOJ for initial consideration and without obtaining the appellant’s waiver. However, in 

Disabled American Veterans v. Secretary of Veterans Affairs, 327 F.3d 1339 (Fed. Cir. 2003), 

the United States Court of Appeals for the Federal Circuit (Federal Circuit) invalidated that 

portion of the Board’s regulations that allowed us to consider additional evidence without 

remanding the case to the AOJ for initial consideration and without obtaining the appellant’s 

waiver. Following this decision, the Board amended its regulations to add a substantially 

similar version of the prior 38 C.F.R. § 20.1304(c). See 69 Fed. Reg. 53,807 (Sep. 3, 2004). 

By soliciting waivers in those cases where an appellant or representative submits evidence 

without a waiver, the Board may avoid unnecessary remands.

As a result of the above efforts, the Board’s remand rate decreased from 56.8% in Fiscal Year 2004, 

to 38.6% for Fiscal Year 2005, and to 32.0% for Fiscal Year 2006.

2. Eliminate the Backlog

The Board will focus on eliminating the backlog, within existing resources, by concentrating on 

the following:

► Eliminating avoidable remands: Fewer remands mean fewer appeals pending before 

the Board and, thus, a reduced backlog. At the end of Fiscal Year 2004, there were 31,645 
remands pending at the Veterans Benefits Administration (VBA). By the end of Fiscal 

Year 2006, that number had decreased to 21,229. Additional efforts to eliminate avoidable 

remands should reduce the number of Board remands in the field even further.

► Strengthening BVA’s intra-agency partnerships: Joint training efforts with VBA, the 

Office of the General Counsel (OGC), and the Veterans Health Administration (VHA) will 

improve case development, decision quality and reduce remands. In addition, BVA meets 

with representatives from VHA, VBA and OGC on a monthly basis to discuss and resolve 

issues of mutual concern that adversely impact the quality of case output.

► Training: Our full-time training coordinator organizes training evolutions for the Board’s 

attorneys and judges. Training for new attorneys in Fiscal Year 2006 included courses 

on basic veterans’ law and off-site training at the Adjudication Academy in Baltimore. 

The latter training included overview presentations of the functions of the ROs, OGC, 

veterans service organizations, the U.S. Army and Joint Services Records Research Center, 

the Appeals Management Center, and the VA Medical Centers. Throughout the year, 

the Board’s professional staff attended courses on topics such as respiratory disorders, 

disorders of the knee (this course included a clinical demonstration of a VA examination), 

post-traumatic stress disorder, military records and awards, tinnitus and hearing loss, and 

disorders of the eye. Continued training efforts will provide the VLJs and attorneys with 

the latest information on a variety of legal and medical topics.

► Writing clear, concise, coherent, and correct decisions: The Board stressed to the 

VLJs and attorneys the value of writing of clear, concise, coherent, and correct decisions 

in Fiscal Year 2006 and provided them with training to allow them to meet this goal. The 

benefits of this initiative became apparent as the year progressed and we issued more 

decisions than anticipated. In the long term, it is expected that this initiative will enable 

VLJs and attorneys to continue to produce more and better Board decisions.

► Utilizing employee incentive, mentoring and training programs: A number of new 

programs have been introduced to increase employee motivation and satisfaction as well 

as to increase productivity and decision quality. Two of the most popular programs are the 

student loan repayment program and the flexiplace program. Effective November 1, 2005, 

the Chairman authorized a permanent flexiplace program to permit a limited number of 

attorneys to prepare draft decisions and other work products at their primary residence. This 

program enabled the Board to retain attorneys who might otherwise have resigned due to the 

location of the primary residence, other personal reasons, or because another agency would 

allow more extensive telecommuting. In connection with this program, we implemented 

a number of data security safeguards such as encryption software for the Board laptops 

used by flexiplace program participants and locked cabinets at the primary residence for 

the laptop and the original claims folders. Each participant agrees to abide by the rules of 

the program, which include strict safeguards to protect sensitive data. Participants are not 

permitted to use their own personal computers for drafting decisions and the home work 

sites are periodically inspected to ensure continued compliance with the Board’s rules.

► Making use of overtime: The Board will continue to use overtime within existing 

resources to enhance output.

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► Increasing our use of paralegals: The Board established a paralegal unit for nondecisional support activities to free up the legal staff to decide appeals. In the second 

quarter of Fiscal Year 2006, the Board transferred the responsibility of drafting a certified 

list of the relevant evidence considered by the VLJ in cases appealed to the CAVC from 

the staff counsel to the paralegal unit. In Fiscal Year 2005, BVA provided 2,744 certified 

lists to VA’s OGC and 3,127 in Fiscal Year 2006. By transferring this responsibility to 

paralegals, the attorneys were able to produce additional draft decisions and other work 

product for the VLJs.

► Improved on-line legal research tools and analytical frameworks to aid timely and 

correct decision production. In Fiscal Year 2006, the Board developed a computerized aid 

to assist the attorneys and VLJs with initiating draft decisions and an interactive analytical 

framework for evaluating one of the more complicated subject matter areas, increased 

rating claims for the knee. The analytical framework takes the decision maker through 

various scenarios and contains hyperlinks to the applicable laws, regulations, VA General 

Counsel opinions, and court precedents that are cited. Additional analytical frameworks 

are in the development stages for service connection for post-traumatic stress disorder, 

total disability ratings based on individual unemployability, reopening of finally decided 

claims based on the submission of new and material evidence, increased ratings for spine 

disabilities, and service connection cases that involve the presumptions of soundness and 

aggravation. These tools will be maintained and updated to incorporate changes in the law 

and regulations as they occur, and as new training materials and resources are developed. 

In addition, handouts and documentation provided at Board-sponsored training seminars 

are made available to the attorneys and VLJs.

► VLJs will draft decisions, in addition to reviewing decisions drafted by staff counsel, as 

time permits.

These measures will work to reduce the backlog and to shorten the time it takes for a veteran to 

receive a fair, well-reasoned Board decision.

3. Succession Planning

In Fiscal Year 2006, three new VLJs were appointed to the Board, and six new Senior Counsel 

were selected through a competitive selection process. The newly appointed VLJs each had 12 

or more years of experience as Board attorneys and Senior Counsel prior to their appointment as 

VLJs. Two of the newly appointed VLJs are veterans of the United States Marine Corps and the 

Army, respectively.

Our business plan contemplates that Senior Counsel positions function as a training ground for 

future VLJs. The creation, in Fiscal Year 2003, of two Senior Counsel positions on every team 

provides the necessary flexibility to maintain productivity despite short-term personnel shortages. 

Senior Counsel perform as Acting VLJs, Team Leaders, and attorneys drafting decisions. In 

addition, Senior Counsel mentor and evaluate newly hired attorneys and supervise more experienced 

attorneys in need of special attention or assistance. The creation of the Senior Counsel positions has 

allowed the Board’s current leaders to train and mentor future leaders, and has provided significant 

advancement opportunities for Board staff attorneys.

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The Board also has a rigorous recruitment program and recruits some of the best and the brightest 

attorneys and administrative personnel available. During the summer of Fiscal Year 2006, we 

hired 14 summer law clerks to work with attorneys and VLJs to draft decisions and other work 

product. In addition to providing them with challenging writing assignments, the summer law 

clerks also participated in training activities and were mentored by the attorneys with the goal of 

having them apply for permanent employment with the Board after graduation. We attract high 

caliber summer law clerks, attorneys, and administrative personnel, because the mission to serve 

veterans is one that is particularly attractive to those seeking a career in public service.

Fiscal Year 2006 Congressional Hearings and Other 

Briefings

The Chairman testified before the United States House of Representatives Committee on Veterans’ 

Affairs on December 7, 2005. He addressed the productivity of the Board and its primary 

challenges—eliminating avoidable remands to VA regional offices and increasing productivity to 

contain and reduce the backlog.

In January 2006, the Chairman briefed the Veterans Disability Benefits Commission about the 

activities of the Board. In July 2006, he presented an overview on the VA appellate process, the 

handling of medical issues in the appeals process and general activities of the Board to the Institute 

of Medicine Committee on Medical Evaluation of Veterans for Disability Compensation.

In April 2006, our representatives participated in panel discussions and addressed the Board’s 

operations at the CAVC Judicial Conference and the National Organization of Veterans’ Advocates 

Conference. In May 2006, the Chairman addressed the Judicial Conference of the United States 

Court of Appeals for the Federal Circuit and VBA’s Veterans Service Center Managers Conference. 

The Board also participated in a panel discussion on issues in veterans law in the Federal Circuit’s 

Judicial Conference.

In July 2006, the Chairman testified before the United States Senate Committee on Veterans’ 

Affairs to address the reasons for the increase in the number of appeals to the CAVC. The Board’s 

attempts to meet its goals of eliminating the backlog and avoidable remands had the ancillary effect 

of increasing the universe of final decisions that could be appealed to the CAVC. To illustrate, in 

Fiscal Year 2003, the Board issued 31,397 decisions with a remand rate of 42.6%. In Fiscal Year 

2004, it issued 38,371 decisions but the remand rate soared to 56.8%. In Fiscal Year 2005, when 

we began coordinating efforts with VBA to avoid remands, the Board issued 34,175 decisions 

of which 38.6% were remanded in whole or part. In Fiscal Year 2006, the Board issued 39,076 

decisions with a 32.0% remand rate. The impact of reduced remands is a significant increase in 

the number of final decisions that may be appealed to the Court. This trend is likely to continue, 

especially as the Board’s workload continues to grow.

During the fiscal year, the Chairman or his representative also discussed the Board’s successes, 

challenges, and general activities at The American Legion 83rd Annual Veterans Affairs and 

Rehabilitation Conference, the Florida Department of Veterans Affairs Conference, the Georgia 

Department of Veterans Services Conference, the National Association of County Veterans Service 

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Officers Convention, the Disabled American Veterans 85th Department Convention and the North 

Carolina Department of Veterans Affairs Training Conference.

Significant Judicial Precedent and Its Effect on the 

Board 

► Adjudication of Tinnitus Claims: In Smith v. Nicholson, 19 Vet. App. 63 (2005), the 

Veterans Court reversed a decision of the Board, which concluded that no more than a 

single 10-percent disability evaluation could be provided for tinnitus, whether perceived as 

bilateral or unilateral, under the version of 38 C.F.R. Sec. 4.87, Diagnostic Code 6260, that 

was in effect prior to June 13, 2003. The regulation had been amended in 2003 to codify 

standard VA practice by stating that recurrent tinnitus will be assigned only a single 10-

percent evaluation whether it is perceived in one ear, both ears or somewhere in the head. 68 

Fed. Reg. 25,822 (May 14, 2003) (codified at 38 C.F.R. Sec. 4.87, Diagnostic Code 6260). 

The Veterans Court held that, pursuant to the regulation, dual or separate ratings must be 

assigned for bilateral tinnitus. While the Veterans Court’s decision was on appeal to the 

Federal Circuit, the Secretary of Veterans Affairs, on April 22, 2005, directed the Board to 

stay action on all claims in which a claim for tinnitus was filed before June 13, 2003, and a 

disability rating for tinnitus of greater than 10 percent was sought; and all claims in which a 

claim for service connection for tinnitus was filed before June 10, 1999, and a compensable 

rating was denied on the basis that tinnitus was not persistent for purposes of Diagnostic 

Code 6260. The stay was issued to avoid burdens on the adjudication system, delays in the 

adjudication of other claims, and unnecessary expenditure of resources through remand or 

final adjudication of claims based on court precedent that may ultimately be overturned on 

appeal. On June 19, 2006, the Federal Circuit reversed the Veterans Court’s decision and 

affirmed VA’s long-standing interpretation of Diagnostic Code 6260 as authorizing only 

a single 10-percent rating for tinnitus, whether perceived as unilateral or bilateral. Smith 

v. Nicholson, 451 F.3d 1344 (Fed. Cir. 2006), petition for cert. filed, 75 U.S.L.W. 3122 

(U.S. Sept. 18, 2006) (No. 06-400). On July 10, 2006, the Secretary ordered the Board to 

resume adjudication of the previously stayed claims consistent with VA’s long-standing 

interpretation of the regulation that a single 10-percent disability rating is the maximum 

rating allowed under Diagnostic Code 6260. VA did not appeal the portion of the Veterans 

Court’s decision requiring the Board to explain its interpretation of the term “persistent” in 

the pre-1999 version of Diagnostic Code 6260. The VLJs immediately began to adjudicate 

the previously stayed claims, which included more than 4,000 appellants, and had nearly 

completed those adjudications by the end of Fiscal Year 2006.

► Deadline for the Submission of Evidence Following a Board Hearing: In Haney 

v. Nicholson, 20 Vet. App. 301 (2006), the Court held that a VLJ, who exercised discretion 

at a Board hearing to leave the record open pursuant to 38 C.F.R. § 20.709 for the veteran 

to submit medical evidence, failed to comply with the regulation by not setting a deadline 

as to when the evidence was to be submitted by, and the Board then erred by issuing a final 

decision without setting a definite deadline, and providing the veteran and his representative 

with reasonable notice. In response to Haney, we began sending letters in those cases where 

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a VLJ or AVLJ held a hearing and indicated that the record would be held open for a period 

of time, but did not specify that time period on the record. This letter provides the appellant 

with a period of 60 days from the date of the letter to provide the evidence and also solicits a 

waiver of AOJ review, if the appellant decides to submit additional evidence to the Board.

► Haas v. Nicholson, 20 Vet. App. 207 (2006): The Veterans Court reversed a Board 

decision which denied claims for service connection for various disabilities as a result 

of exposure to herbicides. The Board determined that, although the appellant had served 

in the waters off the shores of the Republic of Vietnam, such service did not warrant 

application of the presumption of herbicide exposure because the appellant never set 

foot on land in that country. The Veterans Court reversed the Board’s decision, holding 

that a VA Adjudication Procedure Manual provision created a presumption of herbicide 

exposure based on receipt of the Vietnam Service Medal for purposes of service connection 

for diseases associated with herbicide exposure. The Court also found that neither the 

statute nor the regulation governing herbicide exposure claims precluded application of the 

presumption of herbicide exposure to persons who served aboard ship in close proximity 

to the Republic of Vietnam. For purposes of applying the presumption of exposure to 

herbicides under 38 C.F.R. § 3.307(a)(6)(iii), the Court held that “service in the Republic 

of Vietnam” will, in the absence of contradictory evidence, be presumed based upon the 

veteran’s receipt of a Vietnam Service Medal, without any additional proof required that 

a veteran who served in waters offshore of the Republic of Vietnam actually set foot on 

land. Since there were potentially a large number of cases on appeal that might be affected 

by Haas, the Secretary of Veterans Affairs issued a memorandum on September 21, 2006, 

directing the Board to stay action on and refrain from remanding all claims for service 

connection based on exposure to herbicides in which the only evidence of exposure is the 

receipt of the Vietnam Service Medal or service on a vessel off the shores of Vietnam. This 

action would avoid burdens on the adjudication system, delays in the adjudication of other 

claims, and unnecessary expenditure of resources through remand or final adjudication 

of claims based on judicial precedent that may ultimately be overturned on appeal. The 

Department of Justice, on behalf of the Secretary of Veterans Affairs, has filed a notice of 

appeal with the Federal Circuit challenging the CAVC’s decision in Haas.

► Veterans Claims Assistance Act (VCAA):

• Mayfield v. Nicholson, 444 F. 3d 1328 (Fed. Cir. 2006): The Federal Circuit 

held that a VA claimant must be given the required VCAA notice prior to VA’s 

decision on a claim and in a form that enables the claimant to understand the 

process, the information that is needed, and who will be responsible for obtaining 

the information. In cases, such as this one, where notice was not provided prior 

to the AOJ’s initial adjudication, the timing problem can be cured by remanding 

for the issuance of a VCAA notice followed by readjudication of the claim. While 

VCAA notice need not always be contained in a single communication, the duty to 

notify cannot be satisfied by referencing various post-decisional communications, 

such as the notification of decision, the statement of the case or the supplemental 

statement of the case from which the claimant might have been able to infer what 

evidence was lacking. Following Mayfield, we now review appeals to determine 

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if VCAA notice was provided in compliance with this decision. If non-compliant 

notice was provided, a remand is required for the AOJ to cure the defect, unless 

the Board finds that any VCAA notice error was non-prejudicial to the claimant.

• Dingess/Hartman v. Nicholson, 19 Vet. App. 473 (2006): The Veterans Court held that 

the VCAA notice requirements of 38 U.S.C. § 5103(a) and 38 C.F.R. § 3.159(b) apply 

to all five elements of a service-connection claim: (1) veteran status; (2) existence 

of a disability; (3) a connection between the veteran’s service and the disability; 

(4) degree of disability; and (5) effective date of the disability. Upon receipt of an 

application for service connection, VA is required to review the information and the 

evidence presented with the claim and to provide the claimant with notice of what 

information and evidence not previously provided, if any, will assist in substantiating 

or is necessary to substantiate the elements of the claim as reasonably contemplated by 

the application. This includes notice that a disability rating and an effective date for 

the award of benefits will be assigned if service connection is awarded. As a result, 

the Board needs to determine, when reviewing most appeals, whether a supplemental 

VCAA notice is required with respect to either the disability rating or effective date 

claim elements. As part of that review, a prejudicial error analysis is undertaken. If we 

determine that the appellant is prejudiced and the claim cannot otherwise be granted in 

full, a remand is required for additional notice to the appellant. 

• Kent v. Nicholson, 20 Vet. App. 1 (2006): This opinion established significant new 

requirements with respect to the content of VCAA notice for reopening previously 

denied claims. The Veterans Court held that when providing the notice required by 

the VCAA it is necessary, in most cases, for VA to inform claimants seeking to reopen 

a previously and finally disallowed claim of the unique character of evidence that 

must be presented. VA must notify a claimant of the evidence and information that is 

necessary to reopen the claim and of the evidence and information that is necessary 

to establish entitlement to the underlying claim for the benefit sought by the claimant. 

Accordingly, VA must look at the bases for the prior denial and provide a notice 

letter that describes what evidence would be necessary to substantiate the element 

or elements required to establish service connection that were found insufficient in 

the previous denial. This notice obligation does not modify the requirement that VA 

must provide a claimant notice of what is required to substantiate each element of 

a service-connection claim pursuant to Dingess/Hartman. In adjudicating appeals 

concerning claims to reopen finally disallowed claims, the Board undertakes a 

prejudicial error analysis. If the Board determines that the appellant was prejudiced 

and the claim cannot otherwise be granted in full, a remand is required for additional 

notice to be sent to the appellant.

Assistance to VBA Regional Offices and VHA

The Board continued efforts to help the ROs reduce their backlog of cases on appeal through the 

Travel Board program. For most Travel Boards, an attorney travels with a VLJ to an RO to assist in 

preparing for scheduled hearings. An average of more than 40 hearings are scheduled each week. By 

mid-week, the cases have been briefed, and the attorneys assist the RO for the remainder of the visit.

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In Fiscal Year 2006, 124 attorneys provided assistance to 53 ROs. The attorneys drafted 23 

memoranda recommending grants, and conducted training for adjudication personnel at 49 of 

the ROs visited. Additionally, the attorneys, on request, provided non-binding legal advice to 

adjudicators in 859 cases that were informally reviewed.

At VHA’s request, BVA participated in conference calls with the VHA staff across the country 

that handle appeals to the Board. In addition, BVA provided training on medical center appeals 

at several locations.

Veterans Service Organization (VSO) Forums and 

Global Training 

The Chairman invites the VSOs and attorneys who represent appellants before the Board to VSO 

Forums on a quarterly basis. These meetings address questions that are raised by representatives 

and also facilitate the exchange of ideas and information. We update the representatives on the 

Board’s activities and address any matters of interest in the open forum. BVA also provides 

global training to VSO representatives who are co-located with the Board to familiarize them 

with our processes and procedures and with the various functions of the administrative personnel, 

attorneys and VLJs. VSOs are also invited to provide training to attorneys and judges and to 

participate in the in-house training that is provided to BVA staff.

Volunteer Activities

The Board supports veterans and their families and educates VA employees by changing 

veterans’ educational exhibits on the Vietnam War, Korean Conflict, Operation Iraqi Freedom, 

female veterans and Prisoners of War (POWs). The Board also facilitates the collection and 

donation of comfort items for distribution to veterans at the Washington D.C. VA Medical Center 

and the United States Armed Forces Retirement Home (U.S.A.F.R.H.); distributes United States 

Department of Defense, VA POW/MIA Day and Veterans Day posters to veterans; collects Toys 

for Tots for the United States Marine Corps Reserve; and facilitates the collection of calendars 

and Valentines for Veterans to distribute at the U.S.A.F.R.H. The Board also participates actively 

in the Combined Federal Campaign.

Planning for the Future

► Leadership Initiative: The Leadership Initiative (LI) provides opportunities for 

all Board employees, as well as employees of other VA organizations, to improve 

their leadership skills through training, mentoring, and networking. Events during 

Fiscal Year 2006 included programs where VLJs shared their insights and experiences 

with regard to career development, a book discussion focusing on team building, 

networking breakfasts, and a service event to provide comfort items for active 

duty personnel stationed in Iraq and Afghanistan. The leadership of the LI was 

recognized by the Leadership VA Alumni Association for its many contributions.

11 
► Non-BVA Training Initiatives: The Board sends high-producing, high-quality attorneys, 

administrative professionals and VLJs to Leadership VA, as well as leadership seminars 

and programs offered through the United States Office of Personnel Management’s Federal 

Executive Institute and the Management Development Centers. Two employees were 

competitively selected to attend Leadership VA, which seeks to contribute to the development 

of leaders within the Department. Through a series of experiences, Leadership VA strives 

to provide an integrated view of VA to further the goal of achieving One VA, explore 

the internal and external forces affecting VA, give insight into the current and predicted 

challenges facing the Department in its delivery of services and benefits to the veterans’ 

community, provide interchange between officials from various levels and organizational 

elements of VA and increase leadership skills and provide opportunities for refining them 

through practice in group settings. The Board also selected two employees to attend 

Leadership for a Democratic Society at the Federal Executive Institute. This four-week 

course builds the participants’ knowledge and skills in personal leadership, transforming 

public organizations, and the policy framework in which Government leadership occurs. 

We also sent 12 employees to the Management Development Centers to participate in 

courses such as the Supervisory Leadership Seminar: Learning to Lead and Mission to the 

Stars, Leadership for Critical Times. These developmental courses are an integral part of 

our plan to develop its future leaders.

► Facility Move: The Board continued to plan for a facility move that was originally 

scheduled to take place in Fiscal Year 2007. Our current location, the Lafayette Building at 

811 Vermont Avenue, NW, was first scheduled for a complete renovation starting in Fiscal 

Year 2007, then in Fiscal Year 2008. However, we have now been advised that a building 

move will not occur during Fiscal Year 2007 or 2008, and the date of a future move, if any, 

is unknown.

12
BOARD MEMBERS

James P. Terry, Chairman

Ron H. Garvin, Vice Chairman

Steven L. Keller, Senior Deputy Vice Chairman

Charles E. Hogeboom, Deputy Vice Chairman, Decision Team 1

Steven L. Cohn, Chief Member

Robert E. Sullivan, Chief Member

Joaquin Aguayo-Pereles, Deputy Vice Chairman, Decision Team 2

Mark W. Greenstreet, Chief Member

Constance B. Tobias, Chief Member

Nancy R. Robin, Deputy Vice Chairman, Decision Team 3

David C. Spickler, Chief Member

Lawrence M. Sullivan, Chief Member

Mary M. Sabulsky, Deputy Vice Chairman, Decision Team 4

Wayne M. Braeuer, Chief Member

Holly E. Moehlmann, Chief Member

VETERANS LAW JUDGES

Keith W. Allen Mary Gallagher Jacqueline E. Monroe

Marjorie A. Auer Gary L. Gick Andrew J. Mullen

Kathy A. Banfield George E. Guido, Jr. John E. Ormond, Jr.

Barry F. Bohan Mark F. Halsey Kimberly E. Osborne

Derek R. Brown Milo H. Hawley Alan S. Peevy

Anna M. Bryant Mark D. Hindin Renee M. Pelletier

Vito A. Clementi Vicky L. Jordan Ursula R. Powell

Barbara B. Copeland Michelle L. Kane Harvey P. Roberts

John J. Crowley Susan L. Kennedy Howard N. Schwartz

Thomas J. Dannaher Michael E. Kilcoyne George R. Senyk

Jonathan E. Day Michael D. Lyon Deborah W. Singleton

Paula M. DiLorenzo James L. March Charles W. Symanski

Shane A. Durkin Jeffrey J. Martin Stephen L. Wilkins

Frank J. Flowers Cheryl L. Mason Richard F. Williams

Kathleen Gallagher Joy A. McDonald

13 
PART II

STATISTICAL DATA

Fiscal Year (FY) 2006 Information

The following information is required by 38 U.S.C. § 7101(d)(2):

38 U.S.C. § 7101(d)(2)(A)

Number of cases physically received at the Board during FY 2006: 41,802

Number of cases added to docket by filing appeal during FY 2006: 46,076

38 U.S.C. § 7101(d)(2)(B)

Cases pending before the Board at the start of FY 2006: 37,539*

Cases pending before the Board at the end of FY 2006: 40,265*

*Includes certified appeals pending in the field awaiting hearings, as well as cases pending at 

BVA.

38 U.S.C. § 7101(d)(2)(C)

Number of cases received at BVA and new appeals filed during each of the 36 months preceding 

Fiscal Year 2006.

 Cases Received at BVA New Appeals (VA Form 9 ) Filed

Month FY03 FY04 FY05 FY06 FY03 FY04 FY05 FY06

October 4,024 1,572 2,664 3,750 3,040 3,855 3,566 3,700

November 2,726 1,152 2,171 3,610 2,720 2,932 3,708 3,631

December 3,037 1,583 3,264 3,182 2,634 3,341 3,695 3,559

January 4,294 2,616 3,202 4,142 3,185 3,632 3,543 3,899

February 4,008 3,519 3,562 3,886 2,906 4,380 3,786 3,871

March 4,325 3,996 4,124 4,293 3,605 5,291 4,552 4,357

April 3,676 2,975 3,055 2,575 3,717 4,920 3,461 3,615

May 2,175 4,856 3,104 3,093 3,675 4,397 4,331 4,115

June 3,728 4,359 4,730 3,341 3,797 4,881 4,334 4,381

July 2,956 5,371 4,655 2,941 3,719 4,264 3,445 3,531

August 2,103 4,637 3,890 3,313 3,661 3,909 4,378 3,920

September 2,917 3,320 3,395 3,676 4,505 3,836 4,337 3,497

FY Total 39,969 39,956 41,816 41,802 41,164 49,638 47,136 46,076

14
0

5000

10000

15000

20000

25000

30000

35000

40000

45000

50000

FY 03 FY 04 FY 05 FY 06 FY 07 Estimate

39,969 39,956

41,816 41,802

43,000

Cases Received at BVA FY 03- FY 06

New Appeals (VA Form 9) Filed FY 03 - FY 06

0

5000

10000

15000

20000

25000

30000

35000

40000

45000

50000

FY 03 FY 04 FY 05 FY 06 FY 07 Estimate

41,164

49,638

47,136 46,076 48,000

15 
38 U.S.C. § 7101(d)(2)(D)

The average length of time a case was before the Board between the time of the filing of an appeal 

and the disposition during the preceding fiscal year:

38 U.S.C. § 7101(d)(2)(E)

The number of members of the Board at the end of FY 2006: 56 members

The number of professional, administrative, clerical, stenographic, and other personnel employed 

by the Board at the end of FY 2006: 401 employees not including 56 members above.

38 U.S.C. § 7101(d)(2)(F)

Number of acting members of the Board during FY 2006: 66

Number of cases in which such members participated: 3,976

38 U.S.C. § 7101(c)(2)

Number of acting members of the Board in terms of full-time employee equivalents: 5.3

Time Interval Responsible

Party

Average Elapse 

Processing Time

Notice of Disagreement Receipt 

to Statement of the Case Field Station 188 days

Statement of the Case Issuance 

to Substantive Appeal Receipt Appellant 42 days

Substantive Appeal Receipt to 

Certification of Appeal to BVA Field Station 489 days

Receipt of Certified Appeal to 

Issuance of BVA Decision BVA 252 days

Average Remand Time Factor Field Station 193 days

16
PROJECTIONS FOR FISCAL YEARS

2007 AND 2008

The following information is required by 38 U.S.C. § 7101(d)(3):

38 U.S.C. § 7101(d)(3)(A)

Estimated number of cases that will be appealed to BVA:

Fiscal Year 2007: Cases received at BVA: 43,000

Cases added to BVA Docket: 48,000

Fiscal Year 2008: Cases received at BVA: 43,000

Cases added to BVA Docket: 48,000

38 U.S.C. § 7101(d)(3)(B)

Evaluation of the ability of the Board (based on existing and projected personnel levels) to ensure 

timely disposition of such appeals as required by 38 U.S.C. § 7101(a):

The indicator used by the BVA to forecast its future timeliness of service delivery is BVA “response 

time” on appeals. By taking into account the Board’s most recent appeals processing rate and 

the number of appeals that are currently pending before the Board, BVA response time projects 

the average time that will be required to render decisions on that group of pending appeals. For 

response time computation, the term “appeals pending before the Board” includes appeals at the 

Board and those that have been certified for BVA review but are held in the field pending BVA 

Travel Board or video conference hearings.

The following categories are calculated as follows:

FY 2006 decisions (39,076) (divided by) = 150.29 Decisions per Work Day

260 work days

Cases Pending end of FY 2006 (40,265) = 83,265 = Total Workload in FY 2007

+ New Cases expected in FY 2007 (43,000)

Total Workload (83,265) (divided by) = 554 Work Days

Decisions per Work Day (150.29)

Work Days (554) (divided by) = 2.1 Years

260 work days 

Work years (2.1) x 12 (months) = 25 months

17 
ADDITIONAL INFORMATION

Potential BVA Workload in VBA

Number of New Notices of Disagreement Received in the Field

Month FY03 FY04 FY05 FY06

October 9,936 9,774 8,949 8,967

November 8,118 8,621 8,293 7,989

December 7,957 6,595 8,016 7,594

January 9,670 7,717 9,048 8,715

February 9,034 8,718 9,053 8,322

March 10,676 11,698 10,265 9,815

April 10,419 9,978 9,208 8,122

May 9,800 8,574 9,390 9,093

June 9,753 9,642 9,256 8,700

July 10,084 9,005 8,428 7,630

August 9,247 9,797 9,307 8,576

September 9,915 8,812 7,468 7,717

FY Total 114,609 108,931 106,681 101,240

Notice of Disagreement Received FY 03-06

0

20,000

40,000

60,000

80,000

100,000

120,000

140,000

FY 03 FY 04 FY 05 FY 06 FY 07 Estimate

95,000

101,240

106,681 108,931 114,609

18
BVA Dispositions by VA Program FY 2006

APPEAL 

PROGRAM ALLOWED REMANDED DENIED OTHER TOTAL

No. Percent No. Percent No. Percent No. Percent No. Percent

Burial Benefits 1 2.1% 9 18.8% 36 75.0% 2 4.2% 48 0.1%

Compensation 7,297 19.6% 11,926 32.0% 17,198 46.1% 874 2.3% 37,295 95.4%

Education 21 9.4% 70 31.3% 128 57.1% 5 2.2% 224 0.6%

Insurance 0 0.0% 7 41.2% 10 58.8% 0 0.0% 17 0.0%

Loan Guaranty 0 0.0% 1 9.1% 10 90.9% 0 0.0% 11 0.0%

Medical 40 14.3% 111 39.8% 119 42.7% 9 3.2% 279 0.7%

Pension 53 10.5% 125 24.8% 308 61.1% 18 3.6% 504 1.3%

VR&C 1 1.7% 29 49.2% 26 44.1% 3 5.1% 59 0.2%

Other Program 3 10.3% 11 37.9% 14 48.3% 1 3.4% 29 0.1%

BVA Original 

Jurisdiction 14 16.3% 1 1.2% 47 54.7% 24 27.9% 86 0.2%

Multiple 

Program Areas 107 20.4% 197 37.6% 211 40.3% 9 1.7% 524 1.3%

GRAND TOTAL 7,537 19.3% 12,487 32.0% 18,107 46.3% 945 2.4% 39,076 100.0%

0

20000

40000

60000

80000

100000

120000

140000

160000

180000

Oct. 04

Nov. 04

Dec. 04

Jan. 05

Feb. 05

Mar. 05

Apr. 05

May. 05

Jun. 05

Jul. 05

Aug. 05

Sep. 05

Oct. 05

Nov. 05

Dec. 05

Jan. 06

Feb. 06

Mar. 06

Apr. 06

May 06

Jun.06

Jul.06

Aug.06

Sep.06

NODs Form 9s Remands

Potential BVA Workload in VBA

BVA Decisions

19 
BVA Dispositions by Representation FY 2006

REPRESENTATION ALLOWED REMANDED DENIED OTHER TOTAL

No. Percent No. Percent No. Percent No. Percent No. Percent

American Legion 1,251 20.4% 1,935 31.6% 2,767 45.1% 180 2.9% 6,133 15.7%

AMVETS 66 25.9% 73 28.6% 109 42.7% 7 2.7% 255 0.7%

Disabled American

Veterans 2,780 22.9% 4,260 35.1% 4,844 39.9% 255 2.1% 12,139 31.1%

Military Order of the 

Purple Heart 108 22.9% 168 35.7% 185 39.3% 10 2.1% 471 1.2%

Paralyzed Veterans 

of America 91 24.4% 150 40.2% 103 27.6% 29 7.8% 373 1.0%

Veterans of Foreign 

Wars 627 11.1% 1,155 20.5% 3,770 66.8% 92 1.6% 5,644 14.4%

Vietnam Veterans of 

America 138 22.0% 278 44.3% 188 29.9% 24 3.8% 628 1.6%

State Service 

Organizations 1,229 19.7% 1,935 31.0% 2,927 47.0% 142 2.3% 6,233 16.0%

Attorneys 489 21.8% 903 40.3% 777 34.7% 72 3.2% 2,241 5.7%

Agents 9 21.4% 15 35.7% 15 35.7% 3 7.1% 42 0.1%

Other 

Representation 163 21.4% 255 33.4% 320 41.9% 25 3.3% 763 2.0%

No Representation 586 14.1% 1,360 32.7% 2,102 50.6% 106 2.6% 4,154 10.6%

GRAND TOTAL 7,537 19.3% 12,487 32.0% 18,107 46.3% 945 2.4% 39,076 100.0%

NOTE: American Red Cross figures now included with ‘Other Representation.’

BVA DECISIONS

Fiscal Year Decisions Allowed Remand Denied Other

2003 31,397 22.1% 42.6% 32.6% 2.7%

2004 38,371 17.1% 56.8%* 24.2% 1.9%

2005 34,175 20.8% 38.6% 38.1% 2.5%

2006 39,076 19.3% 32.0% 46.3% 2.4%

* The 56.8% remand rate for FY 2004 includes former Board development cases converted to 

remands.

20
0

5000

10000

15000

20000

25000

30000

35000

40000

45000

FY 03 FY 04 FY 05 FY 06 FY 07 Estimate

31,397

38,371

34,175

39,076 38,000

BVA Decisions FY 03 - FY 06

BVA Operating Statistics

FY03 FY04 FY05 FY06

Decisions 31,397 38,371 34,175 39,076

Case Receipts*

Added to Docket 41,164 49,638 47,136 46,076

Received at BVA 39,969 39,956 41,816 41,802

Cases Pending** 27,230 28,815 37,539 40,265

Hearings - VACO 650 805 738 554

Video 1,689 2,108 2,618 2,719

Field 3,707 4,346 5,220 5,885

Decisions per FTE 69.9 87.8 79.1 86.4

BVA FTE 451 440 433 452

BVA Cycle Time 135 98 104 148

Cost per Case $1,493 $1,302 $1,453 $1,381

* Case Receipts composed of: (1) new cases added to BVA’s docket; and (2) cases received at BVA, 

which consist of all cases physically received at the Board, including original appeals and cases returned 

to the Board’s docket (i.e., cases returned following remand development, cases remanded by the Court, 

and cases received for reconsideration or vacate actions).

** Pending figures include certified appeals pending in the field awaiting BVA hearings, as well as cases 

pending before the Board.

21