69–006 

110TH CONGRESS REPORT " ! HOUSE OF REPRESENTATIVES 2d Session 110–640 

LONGITUDINAL STUDY OF DEPARTMENT OF VETERANS 

AFFAIRS VOCATIONAL REHABILITATION PROGRAMS 

MAY 15, 2008.—Committed to the Committee of the Whole House on the State of 

the Union and ordered to be printed 

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

submitted the following 

R E P O R T 

[To accompany H.R. 3889] 

[Including cost estimate of the Congressional Budget Office] 

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

bill (H.R. 3889) to amend title 38, United States Code, to require 

the Secretary of Veterans Affairs to conduct a longitudinal study 

of the vocational rehabilitation programs administered by the Secretary, having considered the same, report favorably thereon with 

an amendment and recommend that the bill as amended do pass. 

CONTENTS 

Page 

Amendment .............................................................................................................. 2 

Purpose and Summary ............................................................................................ 2 

Background and Discussion .................................................................................... 3 

Hearings ................................................................................................................... 4 

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

Committee Votes ...................................................................................................... 5 

Committee Oversight Findings ............................................................................... 5 

Statement of General Performance Goals and Objectives .................................... 5 

New Budget Authority, Entitlement Authority, and Tax Expenditures ............. 5 

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

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

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

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

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

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

Applicability to Legislative Branch ........................................................................ 7 

Section-by-Section Analysis of the Legislation ...................................................... 7 

Changes in Existing Law Made by the Bill as Reported ...................................... 8 


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AMENDMENT

The amendment is as follows: 

Strike all after the enacting clause and insert the following: 

SECTION 1. LONGITUDINAL STUDY OF DEPARTMENT OF VETERANS AFFAIRS VOCATIONAL 

REHABILITATION PROGRAMS. 

(a) STUDY REQUIRED.—Chapter 31 of title 38, United States Code, is amended by 

adding at the end the following new section: 

‘‘§ 3122. Longitudinal study of vocational rehabilitation programs 

‘‘(a) STUDY REQUIRED.—(1) Subject to the availabilty of appropriated funds, the 

Secretary shall conduct a longitudinal study of a statistically valid sample of each 

of the groups of individuals described in paragraph (2). The Secretary shall study 

each such group over a period of at least 20 years. ‘‘(2) The groups of individuals described in this paragraph are the following: ‘‘(A) Individuals who begin participating in a vocational rehabilitation program under this chapter during fiscal year 2009. ‘‘(B) Individuals who begin participating in such a program during fiscal year 

2011. ‘‘(C) Individuals who begin participating in such a program during fiscal year 

2014. ‘‘(b) ANNUAL REPORTS.—By not later than July 1 of each year covered by the study 

required under subsection (a), the Secretary shall submit to the Committees on Veterans’ Affairs of the Senate and House of Representatives a report on the study during the preceding year. ‘‘(c) CONTENTS OF REPORT.—The Secretary shall include in the report required 

under subsection (b) any data the Secretary determines is necessary to determine 

the long-term outcomes of the individuals participating in the vocational rehabilitation programs under this chapter. The Secretary may add data elements from time 

to time as necessary. In addition, each such report shall contain the following information: ‘‘(1) The number of individuals participating in vocational rehabilitation programs under this chapter who suspended participation in such a program during the year covered by the report. ‘‘(2) The average number of months such individuals served on active duty. 

‘‘(3) The distribution of disability rating of such individuals. 

‘‘(4) The types of other benefits administered by the Secretary received by 

such individuals. ‘‘(5) The types of social security benefits received by such individuals. 

‘‘(6) Any unemployment benefits received by such individuals. 

‘‘(7) The average number of months such individuals were employed during 

the year covered by the report. ‘‘(8) The average annual starting and ending salaries such individuals who 

were employed during the year covered by the report. ‘‘(9) The number of such individuals enrolled in an institution of higher learning, as that term is defined in section 3452(f) of this title. ‘‘(10) The average number of academic credit hours, degrees, and certificates 

obtained by such individuals during the year covered by the report. ‘‘(11) The average number of visits such individuals made to Department 

medical facilities during the year covered by the report. ‘‘(12) The average number of visits such individuals made to non-Department 

medical facilities during the year covered by the report. ‘‘(13) The average annual income of such individuals. 

‘‘(14) The average total household income of such individuals for the year covered by the report. ‘‘(15) The percentage of such individuals who own their principal residences. 

‘‘(16) The average number of dependents of each such veteran.’’. (b) CLERICAL AMENDMENT.—The table of sections at the beginning of such chapter 

is amended by adding at the end the following new item: 

‘‘3122 Longitudinal study of vocational rehabilitation programs.’’. 

PURPOSE AND SUMMARY

H.R. 3889 was introduced on October 18, 2007, by Representative 

John Boozman of Arkansas, the Ranking Member of the Subcommittee on Economic Opportunity of the Committee on Veterans’

Affairs. The legislation would authorize the Secretary of the DeVerDate Aug 31 2005 01:32 May 17, 2008 Jkt 069006 PO 00000 Frm 00002 Fmt 6659 Sfmt 6602 E:\HR\OC\HR640.XXX HR640

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partment Veterans Affairs (VA) to develop a database of outcomes 

experienced by those who participate in the VA’s Vocational Rehabilitation and Employment (VR&E) program. 

BACKGROUND AND DISCUSSION

Currently, there is relatively little data on how the VR&E program improves the lives of our more seriously injured veterans. 

Conducting a 20-year longitudinal study that requires annual reports to Congress will assist the VA in making management decisions and help guide Congressional legislative deliberations. 

VR&E PROGRAM

The VR&E program has two primary objectives. First, VR&E 

seeks to put eligible disabled veterans back to work through one of 

five tracks. The VR&E program uses a five track model that consists of (1) reemployment with a former employer; (2) rapid employment services for new employment; (3) self-employment; (4) employment through long-term services; and, (5) independent living 

services. Historically, 85 to 90 percent of participants enter longterm services to pursue an academic degree to achieve certification 

in a skill and the remaining elect on-the-job training, apprenticeship programs, or other non-degree training. 

The second objective is to provide independent living skills to 

veterans whose disabilities will likely prevent them from re-entering the workforce. Those veterans may later be able to participate 

in employment tracks if their disability permits. 

To qualify for the VR&E program, a veteran must have a serviceconnected disability rated at 20 percent or more and have a barrier 

to employment. A veteran with a 10 percent service-connected disability may qualify if the veteran has a serious barrier to employment. The existence and severity of employment barriers are determined by VR&E staff through interviews and testing. 

In addition to paying for all expenses such as tuition, the program also provides funds for various types of ancillary items such 

as computers and other equipment needed to complete the rehabilitation program, as well as providing a living stipend based on the 

type of program and the number of dependents. Currently, the 

maximum stipend is $761.18 for a veteran with two dependents 

plus $55.49 for each additional dependent. 

THE NEED FOR QUANTITATIVE INFORMATION

To understand the value added by the VR&E program, VA must 

be able to compare the economic achievements of those who participate in the program with veterans and disabled veterans who do 

not. 

VA currently collects data that does not accurately demonstrate 

the long-term results of participation in, or completion of, the 

VR&E program. Typically, VA knows how long a veteran spends in 

the various phases in long-term training (usually a degree program) and the costs related to that participation. However, VA does 

not collect data on earnings, promotions, and other long-term employment-related data following completion. VA also does not collect data on those who may qualify for the program but do not complete the track appropriate to their situation. The Committee beVerDate Aug 31 2005 23:59 May 16, 2008 Jkt 069006 PO 00000 Frm 00003 Fmt 6659 Sfmt 6602 E:\HR\OC\HR640.XXX HR640

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lieves that collecting these types of data is vital to understanding 

the program’s strengths and weaknesses and that a longitudinal 

study of several cohorts of participants is the appropriate way to 

understand the program’s effectiveness. 

HEARINGS

On April 16, 2008, the Subcommittee on Economic Opportunity 

held a legislative hearing on a number of bills, including H.R. 3889. 

The following witnesses testified: The Honorable Bob Filner of California; The Honorable Steve Buyer of Indiana; The Honorable Ciro 

D. Rodriguez of Texas; The Honorable Cliff Stearns of Florida; The 

Honorable John A. Yarmuth of Kentucky; The Honorable Robin 

Hayes of North Carolina; The Honorable Artur Davis of Alabama; 

The Honorable Patrick J. Murphy of Pennsylvania; Mr. Ronald F. 

Chamrin, Assistant Director, Economic Commission, The American 

Legion; Mr. Justin Brown, Legislative Associate, National Legislative Service, Veterans of Foreign Wars; Mr. Richard Daley, Associate Legislative Director, Paralyzed Veterans of America; Mr. Patrick M. Campbell, Legislative Director, Iraq and Afghanistan Veterans of America; Col. Robert F. Norton, USA (Ret.), Deputy Director, Government Relations, Military Officers Association of America; The Honorable Charles S. Ciccolella, Assistant Secretary, Veterans’ Employment and Training Service, U.S. Department of 

Labor; Mr. Thomas L. Bush, Acting Deputy Assistant Secretary of 

Defense for Reserve Affairs, U.S. Department of Defense; Mr. Curtis L. Gilroy, Director for Accession Policy, Office of the Under Secretary of Defense for Personnel and Readiness, U.S. Department of 

Defense; and Mr. Keith Pedigo, Associate Deputy Under Secretary, 

Policy and Program Management, U.S. Department of Veterans Affairs, accompanied by Mr. John Brizzi, Staff Attorney, Office of 

General Counsel, U.S. Department of Veterans Affairs. Those submitting statements for the record included: Mr. Jot D. Carpenter 

Jr., Vice President, Government Affairs, CTIA—The Wireless Association; Mr. Kerry Baker, Associate National Legislative Director, 

Disabled American Veterans; and Mr. Kyle McSlarrow, President 

and Chief Executive Officer, National Cable and Telecommunications Association. 

COMMITTEE CONSIDERATION

On April 23, 2008, the Subcommittee on Economic Opportunity 

met in open markup session and ordered favorably forwarded to 

the full Committee H.R. 3889, as amended, by voice vote. During 

consideration of the bill the following amendment was considered: 

An amendment in the nature of a substitute by Mr. Boozman of 

Arkansas, was agreed to by voice vote. 

On April 30, 2008, the full Committee met in open markup session, a quorum being present, and ordered H.R. 3889, as amended, 

favorably reported to the House of Representatives, by voice vote. 

During consideration of the bill the following amendment was considered: 

An amendment by Mr. Boozman of Arkansas to clarify that funding for the longitudinal study is subject to the availability of appropriated funds, was agreed to by voice vote. 


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COMMITTEE VOTES

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

to report the legislation and amendments thereto. There were no 

record votes taken on amendments or in connection with ordering 

H.R. 3889 reported to the House. A motion by Mr. Buyer of Indiana 

to order H.R. 3889, as amended, reported favorably to the House 

of Representatives was agreed to by voice vote. 

COMMITTEE OVERSIGHT FINDINGS

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

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

descriptive portions of this report. 

STATEMENT OF GENERAL PERFORMANCE GOALS AND OBJECTIVES

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

House of Representatives, the Committee’s performance goals and 

objectives are reflected in the descriptive portions of this report. 

NEW BUDGET AUTHORITY, ENTITLEMENT AUTHORITY, AND TAX

EXPENDITURES

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

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

the Director of the Congressional Budget Office pursuant to section 

402 of the Congressional Budget Act of 1974. 

EARMARKS AND TAX AND TARIFF BENEFITS

H.R. 3889 does not contain any congressional earmarks, limited 

tax benefits, or limited tariff benefits as defined in clause 9(d), 9(e), 

or 9(f) of rule XXI of the Rules of the House of Representatives. 

COMMITTEE COST ESTIMATE

The Committee adopts as its own the cost estimate on H.R. 3889 

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

CONGRESSIONAL BUDGET OFFICE COST ESTIMATE

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

of Representatives, the following is the cost estimate for H.R. 3889 

provided by the Congressional Budget Office pursuant to section 

402 of the Congressional Budget Act of 1974: 


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U.S. CONGRESS, CONGRESSIONAL BUDGET OFFICE, Washington, DC, May 12, 2008. 

Hon. BOB FILNER, 

Chairman, Committee on Veterans’ Affairs, 

House of Representatives, Washington, DC. 

DEAR MR. CHAIRMAN: The Congressional Budget Office has prepared the enclosed cost estimate for H.R. 3889, a bill to amend title 

38, United States Code, to require the Secretary of Veterans Affairs 

to conduct a longitudinal study of the vocational rehabilitation programs administered by the Secretary. 

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

to provide them. The CBO staff contact is Camille Woodland. 

Sincerely, 

ROBERT A. SUNSHINE

(For Peter R. Orszag, Director). 

Enclosure. 

H.R. 3889—A bill to amend title 38, United States Code, to require 

the Secretary of Veterans Affairs to conduct a longitudinal 

study of the vocational rehabilitation programs administered by 

the Secretary 

H.R. 3889 would require the Department of Veterans Affairs 

(VA) to conduct a longitudinal study of vocational rehabilitation 

programs that would track veterans’ participation and educational 

and employment outcomes for at least 20 years. VA also would be 

required to submit an annual report on the study. Based on information from VA, CBO estimates that designing the study and the 

survey instruments and implementing the study would cost about 

$350,000 in 2009 and $1 million over the 2009–2013 period, assuming appropriation of the estimated amounts. Enacting the bill 

would have no effect on direct spending or revenues. 

H.R. 3889 contains no intergovernmental or private-sector mandates as defined in the Unfunded Mandates Reform Act and would 

impose no cost on state, local, or tribal governments. 

The CBO staff contact for this estimate is Camille Woodland. 

This estimate was approved by Theresa Gullo, Deputy Assistant 

Director for Budget Analysis. 

FEDERAL MANDATES STATEMENT

The Committee adopts as its own the estimate of Federal mandates regarding H.R. 3889 prepared by the Director of the Congressional Budget Office pursuant to section 423 of the Unfunded Mandates Reform Act. 

ADVISORY COMMITTEE STATEMENT

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

Federal Advisory Committee Act would be created by H.R. 3889. 

CONSTITUTIONAL AUTHORITY STATEMENT

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

of Representatives, the Committee finds that the Constitutional auVerDate Aug 31 2005 01:32 May 17, 2008 Jkt 069006 PO 00000 Frm 00006 Fmt 6659 Sfmt 6602 E:\HR\OC\HR640.XXX HR640

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thority for H.R. 3889 is provided by Article I, section 8 of the Constitution of the United States. 

APPLICABILITY TO LEGISLATIVE BRANCH

The Committee finds that the legislation does not relate to the 

terms and conditions of employment or access to public services or 

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

SECTION-BY-SECTION ANALYSIS OF THE LEGISLATION

Section 1. Longitudinal study of vocational rehabilitation programs 

This section would amend chapter 31, title 38, United States 

Code by adding a new section 3122. 

New section 3122 would require the Secretary of the VA to conduct a longitudinal study of a statistically valid sample of each of 

the groups (defined as those who begin participation in the vocational rehabilitation program during fiscal years 2009, 2011, and 

2014) of individuals participating in vocational rehabilitation programs. The Secretary would be required to study these groups for 

at least 20 years. 

Subsection (b) requires the Secretary to submit to the Committees on Veterans’ Affairs of the Senate and House of Representatives a report, no later than July 1 of each year, on the study of 

the preceding year. 

Subsection (c) defines the contents of the report and will authorize the Secretary to include any data the Secretary deems necessary to determine the long-term outcomes of the individuals participating. The data required includes, but is not limited to: 

• The number of individuals participating in the program who 

have suspended their participation. 

• The average number of months that such individuals served on 

active duty. • The distribution of disability rating of such individuals. • The types of benefits such individuals are receiving from the 

VA. • The types of Social Security benefits such individuals are receiving. • Any unemployment benefits received by such individuals. • The average number of months that such individuals were employed during the year covered by the report. • The average annual starting and ending salaries of such individuals who were employed during the year covered by the report. • The number of such individuals enrolled in an institute of 

higher learning. • The average number of academic credits, degrees, and certificates obtained by such individuals during the year covered by the 

report. • The average number of visits such individuals made to the VA 

medical facilities during the year covered by the report. • The average number of visits such individuals made to non-VA 

medical facilities during the year covered by the report. • The average annual income of such individuals. • The average household income of such individuals for the year 

covered by such report. 


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• The percentage of such individuals who own their principal 

residences. • The average number of dependents of each such veteran. 

CHANGES IN EXISTING LAW MADE BY THE BILL, AS REPORTED

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

House of Representatives, changes in existing law made by the bill, 

as reported, are shown as follows (new matter is printed in italic 

and existing law in which no change is proposed is shown in 

roman): 

TITLE 38, UNITED STATES CODE 

* * * * * * * 

PART III—READJUSTMENT AND RELATED BENEFITS 

* * * * * * * 

CHAPTER 31—TRAINING AND REHABILITATION FOR 

VETERANS WITH SERVICE-CONNECTED DISABILITIES 

Sec. 

3100. Purposes. 

* * * * * * * 

3122. Longitudinal study of vocational rehabilitation programs. 

* * * * * * * 

§ 3122. Longitudinal study of vocational rehabilitation programs 

(a) STUDY REQUIRED.—(1) Subject to the availabilty of appropriated funds, the Secretary shall conduct a longitudinal study of 

a statistically valid sample of each of the groups of individuals described in paragraph (2). The Secretary shall study each such group 

over a period of at least 20 years. 

(2) The groups of individuals described in this paragraph are the 

following: 

(A) Individuals who begin participating in a vocational rehabilitation program under this chapter during fiscal year 2009. 

(B) Individuals who begin participating in such a program 

during fiscal year 2011. 

(C) Individuals who begin participating in such a program 

during fiscal year 2014. 

(b) ANNUAL REPORTS.—By not later than July 1 of each year covered by the study required under subsection (a), the Secretary shall 

submit to the Committees on Veterans’ Affairs of the Senate and 

House of Representatives a report on the study during the preceding 

year. 

(c) CONTENTS OF REPORT.—The Secretary shall include in the report required under subsection (b) any data the Secretary determines is necessary to determine the long-term outcomes of the individuals participating in the vocational rehabilitation programs 

under this chapter. The Secretary may add data elements from time 

to time as necessary. In addition, each such report shall contain the 

following information: 


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(1) The number of individuals participating in vocational rehabilitation programs under this chapter who suspended participation in such a program during the year covered by the report. 

(2) The average number of months such individuals served on 

active duty. 

(3) The distribution of disability rating of such individuals. 

(4) The types of other benefits administered by the Secretary 

received by such individuals. 

(5) The types of social security benefits received by such individuals. 

(6) Any unemployment benefits received by such individuals. 

(7) The average number of months such individuals were employed during the year covered by the report. 

(8) The average annual starting and ending salaries such individuals who were employed during the year covered by the report. 

(9) The number of such individuals enrolled in an institution 

of higher learning, as that term is defined in section 3452(f) of 

this title. 

(10) The average number of academic credit hours, degrees, 

and certificates obtained by such individuals during the year 

covered by the report. 

(11) The average number of visits such individuals made to 

Department medical facilities during the year covered by the report. 

(12) The average number of visits such individuals made to 

non-Department medical facilities during the year covered by 

the report. 

(13) The average annual income of such individuals. 

(14) The average total household income of such individuals 

for the year covered by the report. 

(15) The percentage of such individuals who own their principal residences. 

(16) The average number of dependents of each such veteran. 

* * * * * * * 

Æ 


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