Fiscal Year 2007

Board of Veterans’ Appeals

REPORT OF THE CHAIRMAN
DEPARTMENT OF VETERANS AFFAIRS

Chairman, Board of Veterans’ Appeals

Washington DC 20420

February 8, 2008 

The Honorable James B. Peake, M.D.

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 2007 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 2007 and the projected activities of the Board for Fiscal Years 2008 

and 2009, as required by 38 U.S.C. § 7101(d)(1), are provided in Parts I and II.

Fiscal Year 2007 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 2007. 

Very respectfully,

James P. Terry

Chairman

Enclosure

TABLE OF CONTENTS

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

PART I: ACTIVITIES OF THE BOARD OF VETERANS’ APPEALS ..................... 2

Successes ............................................................................................................................. 2

The Board’s Goals for Fiscal Years 2008 and 2009 ........................................................... 3

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

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

3. Expedited Claims Adjudication Initiative .......................................................... 6

4. Succession Planning .......................................................................................... 7

Fiscal Year 2007 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 2008 AND 2009 .............................................. 17

ADDITIONAL INFORMATION ..................................................................................... 18
1

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 2007 and projected activities for Fiscal 

Year 2008. Part II provides statistical information related to BVA activities during Fiscal Year 2007 

and projected activities for Fiscal Years 2008 and 2009.

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

Department of Veterans Affairs (VA) offices. The Board reviews 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 Board’s 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 Board’s 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 (CAVC) and other federal courts. 

Department of Veterans’ Affairs

FISCAL YEAR 2007

VETERANS Law Judges
2

 PART I 

ACTIVITIES OF THE BOARD OF VETERANS’ 

APPEALS

FISCAL YEAR 2007

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, 250 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 four 

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

Decision Team includes a Deputy Vice Chairman, 2 Chief VLJs, 11 line VLJ’s, 2 Senior Counsel, 

and approximately 60 staff counsel. Staff counsel review the record on appeal, research the 

applicable law, and prepare comprehensive draft decisions or remand orders for review by a VLJ 

who reviews the draft and issues the final decision or appropriate preliminary order in the appeal.

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

considered (about 95 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, vocational rehabilitation training, and insurance benefits.

In Fiscal Year 2007, the Board issued 40,401 decisions and conducted 9,971 hearings with a cycle 

time of 136 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 Veterans Service 

Organization (VSO) representative. The Board physically received 39,817 appeals in Fiscal Year 

2007 and expects to receive up to 43,000 new appeals in Fiscal Year 2008.

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

positions and to replace departing staff counsel. In addition, four new VLJs and four Senior 

Counsel were selected through competitive processes. Senior Counsel serve as Acting Veterans 

Law Judges, draft decisions, mentor and train other attorneys, and assist in management.

Successes

The Board issued 40,401 decisions in Fiscal Year 2007, an increase of 1,325 over the 39,076 

decisions issued in Fiscal Year 2006. The Board’s productivity in Fiscal Year 2007 represents 

the greatest number of decisions issued by the BVA in any year since 1997, with a significantly 

smaller staff than in 1997. VLJs conducted 9,971 hearings, which is an increase of 813 hearings 

held over Fiscal Year 2006 and the most hearings ever held by the Board in a year. All of the line 

VLJs exceeded their productivity goals and most traveled to at least three ROs to conduct one 

week of Travel Board hearings at each site. The number of cases pending before the Board at the 

end of Fiscal Year 2007 was 39,031, which is a 1,234 case decrease from the 40,265 appeals that 

were pending at the end of Fiscal Year 2006. This decrease occurred because of the extraordinary 

efforts of the VLJs, Board counsel, and administrative support staff. 
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In addition to dispatching the 40,401 decisions issued by the Board in Fiscal Year 2007, the 

Board’s administrative support staff reviewed 39,144 items of mail, determined the nature of the 

correspondence, and associated them with claims files. The administrative staff also answered 

over 91,000 inquiries from veterans or their representatives.

In Fiscal Year 2007, the Board focused on methods to increase decision output and the quality 

of the decisions rendered. The Board continued efforts to eliminate avoidable remands and 

increase decision output through the use of voluntary attorney overtime, production incentives 

for attorneys, and the issuance of clear, concise, coherent, and correct decisions. BVA will 

continue to challenge its employees in the upcoming fiscal year to increase decision output 

even further and to maintain the high level of quality that was achieved in Fiscal Year 2007. 

The 93.8% accuracy rate for the fiscal year was slightly higher than the 93.3% accuracy rate 

for Fiscal Year 2006. The accuracy rate quantifies those substantive deficiencies that would be 

expected to result in a reversal or a remand by the CAVC. Quality deficiencies that are identified 

during the quality review process are addressed through appropriate follow-up training for the 

VLJs and attorneys.

The Board’s Goals for Fiscal Years 2008 and 2009

The two most significant challenges for Fiscal Year 2008 and 2009 are to continue to eliminate 

avoidable remands and to reduce the backlog of pending appeals. 

1. Eliminate Avoidable Remands

Veterans deserve 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 Agency of Original Jurisdiction (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 Board’s workload and further 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. The Board has made significant progress toward this goal. 

BVA’s remand rate was 35.4% in Fiscal Year 2007, which is down from a high of 56.8% in Fiscal 

Year 2004. 

In Fiscal Year 2008 and 2009, the Board will focus on the following: 

 Data Collection: The Board and the Veterans Benefits Administration (VBA) will 

continue to collect data that tracks the reasons for remand so that training can be planned 

and corrective action taken.

 Training: The Board and VBA will continue to conduct training to address the 

most common reasons for remand, including training on obtaining Social Security 

Administration Records, the Veterans Claims Assistance Act of 2000 (VCAA) notice, 

duty to assist requirements, and determining when a medical examination is required.
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 Concise Explanations of the Reasons for Remanding a Case: The Board 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 decreases 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 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 notice deficiency provided to the claimant was prejudicial. If prejudice 

was not found, most Board judges issued final decisions. If the deficiency was prejudicial, 

judges remanded the case to the RO to cure the defect. In Sanders v. Nicholson, 487 F.3d 881 

(Fed. Cir. 2007), and Simmons v. Nicholson, 487 F.3d 892 (Fed. Cir. 2007), the United States 

Court of Appeals for the Federal Circuit held that failure to provide adequate notice under 

the VCAA is presumed prejudicial to the veteran, but that the presumption can be overcome 

based on the specific facts of a particular case. In light of these decisions, the Board will 

continue the practice of conducting a prejudicial error analysis whenever a VCAA duty to 

notify defect is found in order to issue final decisions in cases where a lack of prejudice to the 

veteran can be found. 

 Waivers of AOJ Review: The remand rate has trended downward since 2004, due, in part, 

to the restoration of a regulatory amendment that allows the Board to request a waiver 

of initial 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 (SSOC), 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. See 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 BVA to consider additional evidence without referring the 

evidence to the AOJ for initial consideration and without the appellant’s waiver. However, 

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

2003), the Federal Circuit invalidated that portion of the Board’s regulations that allowed 

BVA 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). The Board can in many cases 

avoid unnecessary remands by soliciting waivers in those cases where an appellant or 

representative submits evidence without a waiver.

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

to 35.4% for Fiscal Year 2007.

2. Eliminate the Backlog

The Board will continue to focus in the coming year on eliminating the backlog, within existing 

resources, by concentrating on the following:
5

 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 VBA. By the end of Fiscal Year 2007, that number had 

decreased to 24,538. 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: The Board’s full-time training coordinator organizes training evolutions 

for the Board’s attorneys and judges. Training for new attorneys in Fiscal Year 2007 

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, VSOs, the U.S. Army and Joint Services Records Research 

Center (JSRRC), the Appeals Management Center, and the VA Medical Centers. 

Throughout the past year, the Board’s professional staff attended courses on topics such 

as Adjudicating Gulf War Claims, Rating Residuals of Gunshot Wounds, Adjudicating 

Medical Reimbursement Claims, Rating Eye Disorders, Understanding Military 

Records and Awards, Adjudicating Section 1151 Claims, Adjudicating Section 1318 

Claims, Aggravation of Disabilities, Rating Disabilities of the Spine, Evaluation of Lay 

Evidence, Presumptive Service Connection, and Introduction to Medical Terminology. 

Continued training efforts in the new fiscal year will provide VLJs and attorneys with 

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

 Writing clear, concise, coherent, and correct decisions: The Board’s leadership 

continued to stress to VLJs and attorneys the value of writing of clear, concise, 

coherent, and correct decisions in Fiscal Year 2007. The benefits of this initiative 

became apparent as the year progressed and the Board 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 quality 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. The student 

loan repayment program provides for loan assistance for up to eight highly qualified 

attorneys per year. Attorneys selected for this program are required to remain with the 

Board for at least three years and maintain exceptional levels of achievement in all 

critical areas of performance. 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, the Board 

successfully implemented a number of data security safeguards, such as encryption 

software for the Board laptops used by flexiplace program participants, and locked 
6

cabinets at the primary residence for the laptop and the original claims folders. Each 

flexiplace 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. In addition, as a condition of participation in 

the flexiplace program, attorneys agree to an enhanced productivity requirement.

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

to increase output.

 Increasing use of paralegals: The Board established a paralegal unit for support activities 

to free up the legal staff to draft decisions. In the second quarter of Fiscal Year 2006, the 

Board transferred primary responsibility to the paralegal unit for drafting certified lists 

of relevant evidence considered by the Board in appealed decisions to the CAVC. In 

Fiscal Year 2007, BVA provided 2,932 certified lists to VA’s OGC. By transferring this 

responsibility to paralegals, the Board’s attorneys were able to produce additional draft 

decisions and other work products for the VLJs. The VLJs continue to review and ensure 

the accuracy of the certified lists prepared by the paralegal staff.

 Drafting additional decisions: 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. Expedited Claims Adjudication Initiative

At the direction of the Secretary and in coordination with VBA, the Board has proposed an 

Expedited Claims Adjudication (ECA) initiative that will be launched as a two-year pilot program 

at four select RO’s. In order to help accelerate the timely processing of all claims and appeals, 

VA will offer represented claimants the option of participating in the ECA initiative for expedited 

processing of claims and appeals. A claimant who elects to participate in the ECA will voluntarily 

waive specified procedural rights and, in return, be placed on a fast track for adjudication. The 

expected rapid disposition of these claims should reduce the backlog and thereby ultimately 

improve the overall timeliness of claims processing.

Participation in the ECA initiative will be offered in writing by VA as an option when a claim is 

received. During the pilot program, participation will extend to claims for benefits administered by 

VBA at four select locations for veterans who have accredited representation. Participation will be 

open only to claims for disability compensation benefits under 38 C.F.R. Parts 3 and 4, excluding a 

narrow class of claims including pension benefits, survivor benefits, and simultaneously contested 

claims.

In addition to expedited claims at a participating RO, any claims appealed to the Board under the 

ECA initiative will be screened upon arrival at the Board to ensure that the record is adequate for 

adjudication purposes when the appeal reaches its place on the Board’s docket. If the record is 

inadequate, the Board will take prompt action under existing regulations, such as soliciting a waiver 

of RO consideration of additional evidence, and remanding the case for further development, if 

necessary.
7

During the summer of Fiscal Year 2007, the Chairman briefed the VSOs, the Senate Veterans’ Affairs 

Committee, the Subcommittee on Disability Assistance and Memorial Affairs of the House Veterans’ 

Affairs Committee, and the Office of Management and Budget regarding the ECA initiative.

VA is currently in the process of drafting proposed regulations to implement the ECA pilot program. 

The Department is very excited about this program and the positive impact it is expected to have in 

speeding up the adjudication of claims and appeals before VA.

4. Succession Planning

In Fiscal Year 2007, four new VLJs were appointed to the Board, and four new Senior Counsel 

were selected through competitive selection processes. The newly appointed VLJs each had twelve 

or more years of veterans’ law experience prior to their appointment as VLJs. One of the newly 

appointed VLJ’s is a veteran of the United States Navy. 

The Board’s business plan contemplates that the Senior Counsel positions function as a training 

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

each decision 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 our staff attorneys.

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

attorneys and administrative personnel available. In Fiscal Year 2007, the Board hired 56 new attorneys 

and law clerks, as well as 10 administrative professionals. The Board attracts high caliber 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. During the summer of Fiscal Year 2007, the 

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

products. In addition to completing challenging writing assignments, the summer law clerks also 

participated in training activities and were mentored by BVA attorneys. The goal is to encourage the 

summer law clerks to apply for permanent employment with the Board after graduation.

Fiscal Year 2007 Congressional Hearings and Other Briefings

The Chairman testified before the Senate Veterans’ Affairs Committee on March 7, 2007. He 

addressed the Board’s productivity and its primary challenges—eliminating avoidable remands to 

VA regional offices and increasing productivity to contain and reduce the backlog. 

On May 22, 2007, the Chairman testified before the Subcommittee on Disability Assistance and 

Memorial Affairs of the House Veterans’ Affairs Committee regarding the challenges facing the 

CAVC. In June 2007, the Chairman participated in a panel discussion on issues in veterans’ law at 

the Federal Circuit Bar Association Ninth Bench and Bar Conference. In August 2007, the Chairman 

addressed VBA’s Annual Leadership Conference and discussed the ECA initiative.

On September 25, 2007, the Chairman testified before the Subcommittee on Disability Assistance 

and Memorial Affairs of the House Veterans’ Affairs Committee regarding operations of the Board 

and the Appeals Management Center.
8

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

challenges, and general activities at the National Symposium for the Needs of Young Veterans, 

the American Legion’s 84th Annual Veterans Affairs and Rehabilitation Conference, the National 

Association of County Veterans Service Officers Convention, the Disabled American Veterans 

86th National Convention and Legislative Seminar, the Georgia Department of Veterans Service 

Conference, and the North Carolina Department of Veterans Affairs Training Conference.

Significant Judicial Precedent and Its Effect on the Board 

1. Informal Claims: In Ingram v. Nicholson, 21 Vet. App. 232 (2007) (Ingram II), the 

CAVC reconsidered its earlier decision in Ingram v. Nicholson, 20 Vet. App. 156 (2006) 

(Ingram I), in light of the Federal Circuit’s decision in Deshotel v. Nicholson, 457 F.3d 

1258 (Fed. Cir. 2006).

Previously, in Ingram I, the CAVC had held that the Board erred by imposing a strict pleading 

requirement and by failing to take a sympathetic reading of the pro se claimant’s filings. 

The CAVC held that a reasonably raised claim remains “pending” until there is an explicit 

adjudication of the claim or an explicit adjudication of a subsequent claim for the same 

disability. 

In Deshotel v. Nicholson, 457 F.3d 1258 (Fed. Cir. 2006), however, the Federal Circuit had 

held that where the veteran files more than one claim with the RO at the same time, and the 

RO’s decision acts (favorably or unfavorably) on one of the claims but fails to specifically 

address the other claim, the second claim is deemed denied, and the appeal period begins 

to run. The Federal Circuit rejected the theory that an implied claim remains pending and 

unadjudicated. 

Upon reconsideration sought by the Secretary in Ingram II, the CAVC rejected the Secretary’s 

argument that Deshotel controlled and found that, if strictly applied, the general holding in 

Deshotel would produce nonsensical results. The CAVC reasoned that if a claim could be 

denied sub silentio by failing to be addressed by VA when deciding other contemporaneous 

claims, the veteran would have no reason to know that the claim had been decided. As 

such, the CAVC interpreted Deshotel to mean that an RO decision may only constitute an 

adjudication of a claim where the RO decision addresses the claim “in a manner sufficient for 

a claimant to deduce that the claim was adjudicated.” 

Consequently, the CAVC held that a reasonably raised claim remains pending “until there is 

either recognition of the substance of the claim in an RO decision from which a claimant could 

deduce that the claim was adjudicated or an explicit adjudication of a subsequent “claim” for 

the same disability.”

2. Haas v. Nicholson, 20 Vet. App. 207 (2006): The CAVC reversed a Board decision that 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 CAVC 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 CAVC also found 

that neither the statute nor the regulation governing herbicide exposure claims precludes 

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 
9

to herbicides under 38 C.F.R. § 3.307(a)(6)(iii), the CAVC 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 while an appeal 

is being sought to the Federal Circuit, 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. The purpose of this stay action is 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 judicial precedent that may ultimately be overturned on 

appeal. Oral argument in Haas was held before the Federal Circuit on November 7, 2007.

3. Veterans Claims Assistance Act of 2000 (VCAA):

 Mayfield v. Nicholson, 499 F.3d 1317 (Fed. Cir. 2007) (Mayfield IV):

The appellant filed a claim for Dependency and Indemnity Compensation (DIC), claiming 

that her husband’s death was related to his service in the military. In a May 2002 decision 

the Board denied DIC. With respect to the VCAA, the Board found that the duty to notify 

had been satisfied by the combined contents of three documents that had been sent to the 

appellant, including a December 1999 rating decision, a June 2000 Statement of the Case 

(SOC), and a January 2002 SSOC. Although a notice letter had been sent by the regional 

office in March 2001, the Board made no reference to this letter.

In Mayfield I (Mayfield v. Nicholson, 19 Vet. App. 103 (2005)), the CAVC affirmed the 

Board’s May 2002 decision by looking at the March 2001 letter (which the Board had not 

discussed in its May 2002 decision) and concluding that VA had fulfilled its obligations 

under the statutory notice requirements by sending this letter.

In Mayfield II (Mayfield v. Nicholson, 444 F.3d 1328 (Fed. Cir. 2006)), the Federal 

Circuit reversed and remanded, noting that the CAVC’s decision in Mayfield I violated 

the longstanding principle of administrative law that a court reviewing an agency decision 

generally may not sustain the agency’s ruling on a ground different from that invoked by 

the agency (the “Chenery” doctrine). By sustaining the Board’s determination that the 

notification requirement had been satisfied, but basing its ruling on an entirely different 

ground—i.e., the adequacy of the March 2001 notice letter versus the cobbled together 

notice relied upon by the Board—the court violated these principles. The Federal Circuit 

remanded the case for a determination by the Board in the first instance whether the 

March 2001 letter satisfied the notice requirements of the VCAA. In December 2006 the 

Board issued another decision concluding that the March 2001 letter fulfilled VA’s notice 

obligations under the VCAA. In Mayfield III (Mayfield v. Nicholson, 20 Vet. App. 537 

(2006)) the CAVC affirmed the Board’s decision noting that: (1) the March 2001 letter 

provided adequate notice under the VCAA; (2) the January 2002 SSOC was a “subsequent 

decision on her case;” and (3) harmless error was a basis for finding that the notice was 

adequate. 

On appeal for a second time the Federal Circuit affirmed the decision in Mayfield III. 

The Federal Circuit found, in pertinent part, in Mayfield IV that because the March 2001 

letter served as adequate notice under the VCAA, and the January 2002 SSOC served to 

readjudicate the appellant’s claim, there was no deficiency in notice and a harmless error 

analysis was not necessary. 
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 Sanders v. Nicholson, 487 F.3d 881 (Fed. Cir. 2007), and

Simmons v. Nicholson, 487 F.3d 892 (Fed. Cir. 2007):

Both of these decisions addressed the issue of application of the prejudicial error rule in 

the context of the VCAA, including who has the burden of proving before the CAVC that 

any error committed by VA in providing notice of the information and evidence necessary 

to substantiate a claim for benefits under 38 U.S.C. § 5103(a) was prejudicial. 

In Sanders, the United States Court of Appeals for the Federal Circuit held that any 

error by VA in providing the notice required by 38 U.S.C. § 5103(a) and 38 C.F.R. § 

3.159(b)(1) is presumed prejudicial, and that once an error is identified by the CAVC 

as to any of the four notice elements the burden shifts to VA to demonstrate that the 

error was not prejudicial to the appellant. The Federal Circuit stated that requiring an 

appellant to demonstrate prejudice as a result of any notice error is inconsistent with 

the purposes of both the VCAA and VA’s uniquely pro-claimant benefits system.

Instead, the Federal Circuit held in Sanders that all VCAA notice errors are presumed 

prejudicial and require reversal unless VA can show that the error did not affect the 

essential fairness of the adjudication. To do this, VA must show that the purpose of 

the notice was not frustrated, such as by demonstrating that any defect was cured by 

actual knowledge on the part of the claimant, or that a reasonable person could be 

expected to understand from the notice what was needed, or that benefits could not 

have been awarded as a matter of law.

In Simmons, the Federal Circuit, in applying the holdings in the concurrently issued 

decision in Sanders, affirmed the CAVC holding that an error by VA in providing 

notice of the information and evidence necessary to substantiate a claim under 38 

U.S.C. § 5103(a) is presumptively prejudicial, and that in such a case the burden 

shifts to VA to demonstrate that the error was not prejudicial to the appellant. 

 Hupp v. Nicholson, 20 Vet. App. 1 (2006):

In this significant case, the CAVC addressed VA’s section 5103(a) notice obligations 

in the context of a claim for DIC benefits. In the context of DIC claims, the CAVC 

held that section 5103(a) notice must include: (1) a statement of the conditions, if 

any, for which a veteran was service-connected at the time of his or her death; (2) 

an explanation of the evidence and information required to substantiate a DIC claim 

based on a previously service-connected condition; and (3) an explanation of the 

evidence and information required to substantiate a DIC claim based on a condition 

not yet service-connected. In addition, the content of the section 5103(a) notice letter 

will depend upon the information provided in the claimant’s application. While VA 

is not required to assess the weight, sufficiency, credibility, or probative value of any 

assertion made in the claimant’s application for benefits, the CAVC noted that VCAA 

notice letters for DIC claims should be “tailored,” and must respond to the particulars 

of the application submitted.

Assistance to VBA Regional Offices and VHA

During the past year the Board continued its efforts to help 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 per judge 

is scheduled each week. During the course of the week the attorneys usually have time to provide 

various types of assistance and training to the RO staff. 
11

In Fiscal Year 2007, 137 attorneys provided assistance to 55 ROs. The attorneys conducted training 

for adjudication personnel at 49 of the ROs visited. Additionally, the attorneys, on request, provided 

non-binding legal advice to adjudicators in 587 cases that were informally reviewed. 

The Board participated in conference calls with the VHA employees across the country who handle 

appeals to discuss issues of concern relating to the processing of claims and appeals. In addition, the 

Board provided training on medical center appeals at several locations.

Veterans Service Organization (VSO) Forums and 

Global Training 

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

VSO Forums. These meetings address questions that are raised by representatives and also facilitate 

the exchange of ideas and information. An update on the Board’s activities is provided, and matters 

of general interest are addressed. 

The Board 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 proudly supports veterans and their families and educates VA employees by creating 

educational exhibits at the Board on subjects such as the Vietnam War, Korean Conflict, Operation 

Iraqi Freedom, female veterans and 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

1. Leadership Initiative: The Leadership Initiative (LI) provides opportunities for all Board 

employees, as well as employees of other organizations within and outside of VA, to improve 

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

Year 2007 included programs where Senior Counsel shared their insights and experiences 

with regard to career development, a book discussion focusing on leadership, networking 

breakfasts, and a service event to provide comfort items for active duty personnel stationed 

in Iraq and Afghanistan. 

2. Non-BVA Training Initiatives: The Board sends high producing, high quality attorneys, 

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

and programs offered through the Office of Personnel Management (OPM) Federal 

Executive Institute (FEI) and the Management Development Centers. Two employees were 
12

competitively selected to attend Leadership VA during the past year, 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, provide 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 FEI. This comprehensive four-week course 

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

organizations, and the policy framework in which government leadership occurs. Finally, 

the Board sent six employees to OPM’s Management Development Centers to participate 

in courses such as the “Supervisory Leadership Seminar: Learning to Lead”, and to other 

leadership development courses. All of these training courses are an integral part of the 

Board’s plan to develop its future leaders.

3. Facilities: The Board has been advised that a building move will not occur during Fiscal 

Year 2008 or 2009. The Board continues to work with GSA and VA Facilities Management 

to upgrade the current location at the Lafayette Building at 811 Vermont Ave, NW, as well as 

to seek to obtain additional office space within the building. 
13

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

Michelle L. Kane, Chief Member

Robert E. Sullivan, Chief Member

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

Steven L. Cohn, Chief Member

Mark W. Greenstreet, Chief Member

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

Cheryl L. Mason, Chief Member

David C. Spickler, 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 Kathleen Gallagher Kimberly E. Osborne

Marjorie A. Auer Mary Gallagher Kalpana M. Parakkal

Kathy A. Banfield George E. Guido, Jr. Alan S. Peevy

Barry F. Bohan Mark F. Halsey Renee M. Pelletier

Derek R. Brown Milo H. Hawley Ursula R. Powell

Anna M. Bryant Mark D. Hindin Harvey P. Roberts

Vito A. Clementi Vicky L. Jordan Ronald W. Scholz

Barbara B. Copeland Susan L. Kennedy Howard N. Schwartz

Cherry O. Crawford Michael E. Kilcoyne George R. Senyk

John J. Crowley Michael D. Lyon Deborah W. Singleton

Thomas J. Dannaher James L. March Charles W. Symanski

Jonathan E. Day Joy A. McDonald Susan S. Toth

Paula M. DiLorenzo Jacqueline E. Monroe Stephen L. Wilkins

Shane A. Durkin Andrew J. Mullen Richard F. Williams

Frank J. Flowers John E. Ormond, Jr.
14

PART II

STATISTICAL DATA

FISCAL YEAR 2007

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 2007: 39,817

Number of cases added to docket by filing appeal during FY 2007: 44,337

38 U.S.C. § 7101(d)(2)(B)

Cases pending before the Board at the start of FY 2007: 40,265*

Cases pending before the Board at the end of FY 2007: 39,031*

*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 FY 

2007.

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

Month FY04 FY05 FY06 FY07 FY04 FY05 FY06 FY07

October 1,572 2,664 3,750 3,206 3,855 3,566 3,700 3,341

November 1,152 2,171 3,610 2,754 2,932 3,708 3,631 3,321

December 1,583 3,264 3,182 3,275 3,341 3,695 3,559 3,196

January 2,616 3,202 4,142 2,949 3,632 3,543 3,899 3,615

February 3,519 3,562 3,886 3,404 4,380 3,786 3,871 3,519

March 3,996 4,124 4,293 3,498 5,291 4,552 4,357 4,085

April 2,975 3,055 2,575 2,854 4,920 3,461 3,615 3,694

May 4,856 3,104 3,093 3,532 4,397 4,331 4,115 4,170

June 4,359 4,730 3,341 3,190 4,881 4,334 4,381 3,963

July 5,371 4,655 2,941 3,695 4,264 3,445 3,531 3,855

August 4,637 3,890 3,313 4,281 3,909 4,378 3,920 3,993

September 3,320 3,395 3,676 3,179 3,836 4,337 3,497 3,585

FY Total 39,956 41,816 41,802 39,817 49,638 47,136 46,076 44,337
15

43,000

41,802 39,817 39,956 41,816

0

5,000

10,000

15,000

20,000

25,000

30,000

35,000

40,000

45,000

50,000

FY 04 FY 05 FY 06 FY 07 FY 08 Estimate

Cases Received at BVA FY 04 - FY 07

New Appeals (VA Form 9) Filed FY 04 - FY 07

48,000

44,337 46,076 47,136

49,638

0

5,000

10,000

15,000

20,000

25,000

30,000

35,000

40,000

45,000

50,000

FY 04 FY 05 FY 06 FY 07 FY 08 Estimate
16

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 2007: 56 members

The number of professional, administrative, clerical, and other personnel employed by the Board at 

the end of FY 2007: 423 employees not including 56 members above.

38 U.S.C. § 7101(d)(2)(F)

Number of acting members of the Board during FY 2007: 72

Number of cases in which such members participated: 5,757

38 U.S.C. § 7101(c)(2)

Number of acting members of the Board in terms of full-time employee equivalents: 7.7

Time Interval Responsible

Party

Average Elapsed

Processing Time

Notice of Disagreement Receipt 

to Statement of the Case Field Station 213 days

Statement of the Case Issuance 

to Substantive Appeal Receipt Appellant 44 days

Substantive Appeal Receipt to 

Certification of Appeal to BVA Field Station 531 days

Receipt of Certified Appeal to 

Issuance of BVA Decision BVA 273 days

Average Remand Time Factor Field Station 152 days
17

PROJECTIONS FOR FISCAL YEARS 2008 AND 2009

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:

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 2007 decisions (40,401) (divided by) = 155.39 Decisions per Work Day

260 Work Days

 Cases Pending end of FY 2007 (39,031) = 82,031 Total Workload in FY 2008 

+ New Cases expected in FY 2008 (43,000)

Total Workload (82,031) (divided by) = 528 Work Days

Decisions per Work Day (155.39)

Work Days (528) (divided by) = 2.0 Years

260 Work Days 

Work Years (2.0) x 12 (Months) = 24 Months

Fiscal Year 2008:

Cases received at BVA: 43,000

Cases added to BVA Docket: 48,000

Fiscal Year 2009:

Cases received at BVA: 43,000

Cases added to BVA Docket: 48,000
18

ADDITIONAL INFORMATION

Potential BVA Workload in VBA (information)

Number of New Notices of Disagreement Received in the Field

Month FY04 FY05 FY06 FY07

October 9,774 8,949 8,967 9,288

November 8,621 8,293 7,989 8,131

December 6,595 8,016 7,594 7,400

January 7,717 9,048 8,715 8,701

February 8,718 9,053 8,322 8,154

March 11,698 10,265 9,815 9,551

April 9,978 9,208 8,122 8,615

May 8,574 9,390 9,093 8,836

June 9,642 9,256 8,700 8,573

July 9,005 8,428 7,630 8,627

August 9,797 9,307 8,576 9,326

September 8,812 7,468 7,717 7,550

FY Total 108,931 106,681 101,240 102,752

100,000

106,681 108,931

101,240 102,752

0

10,000

20,000

30,000

40,000

50,000

60,000

70,000

80,000

90,000

100,000

110,000

120,000

FY 04 FY 05 FY 06 FY 07 FY 08 Estimate

Notices of Disagreement Received FY 04 - FY07
19

Potential BVA Workload in VBA

0

20,000

40,000

60,000

80,000

100,000

120,000

140,000

160,000

180,000

200,000

Oct. 05

Nov. 05

Dec. 05

Jan. 06

Feb. 06

Mar. 06

Apr. 06

May. 06

Jun. 06

Jul. 06

Aug. 06Sep. 06

Oct. 06

Nov. 06

Dec. 06

Jan. 07

Feb. 07

Mar. 07

Apr.07

May 07

Jun .07

Jul. 07

Aug.07

Sep. 07

NODs Form 9s Remands

BVA Dispositions by VA Program FY 2007

APPEAL PROGRAM ALLOWED REMANDED DENIED OTHER TOTAL

No. Percent No. Percent No. Percent N o. Percent No. Percent

Burial Benefits 6 10.3% 7 12.1% 45 77.6% 0 0.0% 58 0.1%

Compensation 8,275 21.6% 13,653 35.6% 15,481 40.4% 957 2.5% 38,366 95.0%

Education 18 9.2% 65 33.3% 107 54.9% 5 2.6% 195 0.5%

Insurance 0 0.0% 3 17.7% 13 76.5% 1 5.9% 17 0.0%

Loan Guaranty 1 14.3% 2 28.6% 4 57.1% 0 0.0% 7 0.0%

Medical 67 15.7% 162 37.9% 172 40.3% 26 6.1% 427 1.1%

Pension 45 7.8% 144 25.0% 368 63.8% 20 3.5% 577 1.4%

VR&C 2 3.4% 24 40.7% 30 50.9% 3 5.1% 59 0.1%

Other Programs 2 6.9% 7 24.1% 17 58.6% 4 10.3% 30 0.1%

BVA Original Jurisdiction 6 6.4% 0 0.0% 62 66.0% 26 27.7% 94 0.2%

Multiple Program Areas 109 19.1% 219 38.4% 232 40.6% 11 1.9% 571 1.4%

GRAND TOTAL 8,531 21.1% 14,286 35.4% 16,531 40.9% 1,053 2.6% 40,401 100.0%
20

BVA Dispositions by 

Representation FY 2007

REPRESENTATION ALLOWED REMANDED DENIED OTHER TOTAL

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

American Legion 1,806 22.4% 2,893 35.9% 3,124 38.7% 240 3.0% 8,063 20.0%

AMVETS 71 28.0% 67 26.4% 110 43.3% 6 2.4% 254 0.6%

Disabled American Veterans 3,187 21.9% 5,180 35.6% 5,885 40.5% 285 2.0% 14,537 36.0%

Military Order of the Purple Heart 106 23.8% 158 35.4% 170 38.1% 12 2.7% 446 1.1%

Paralyzed Veterans of America 93 24.6% 143 37.8% 114 30.2% 28 7.4% 378 0.9%

Veterans of Foreign Wars 640 20.7% 1,003 32.5% 1,363 44.2% 81 2.6% 3,087 7.6%

Vietnam Veterans of America 1,157 20.4% 1,894 33.3% 2,492 43.9% 137 2.4% 5,680 14.1%

State Service Organizations 651 16.8% 1,170 30.2% 1,944 50.2% 105 2.7% 3,870 9.6%

Attorneys 146 18.1% 306 38.0% 336 41.7% 18 2.2% 806 2.0%

Agents 503 19.9% 1,162 45.9% 748 29.6% 116 4.6% 2,529 6.3%

Other Representation 10 16.7% 20 33.3% 28 46.7% 2 3.3% 60 0.1%

No Representation 161 23.3% 290 42.0% 217 31.4% 23 3.3% 691 1.7%

 GRAND TOTAL 8,531 21.1% 14,286 35.4% 16,531 40.9% 1,053 2.6% 40,401 100.0%

BVA DECISIONS

Fiscal Year Decisions Allowed Remanded Denied Other

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%

2007 40,401 21.1% 35.4% 40.9% 2.6%

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

converted to remands.
39,000 40,401 39,076

34,175

38,371

5,000

10,000

15,000

20,000

25,000

30,000

35,000

40,000

45,000

FY 04 FY 05 FY 06 FY 07 FY 08 Estimate

BVA Decisions FY 04 - FY 07

BVA Operating Statistics

FY04 FY05 FY06 FY07

Decisions 38,371 34,175 39,076 40,401

Case Receipts*

Added to Docket 49,638 47,136 46,076 44,337

Received at BVA 39,956 41,816 41,802 39,817

Cases Pending* * 28,815 37,539 40,265 39,031

Hearings - VACO 805 738 554 421

Video 2,108 2,618 2,719 2,870

Field 4,346 5,220 5,885 6,680

TOTAL 7,259 8,576 9,158 9,971

Decisions per FTE 87.8 79.1 86.4 90.3

BVA FTE 440 433 452 447

BVA Cycle Time 98 104 148 136

Cost per Case $1,302 $1,453 $1,381 $1,337

* 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
Department of Veterans Affairs

Board of Veterans’ Appeals

Report of the Chairman

Fiscal Year 2007