To be entitled to VR&E services and related benefits, veterans generally must (1) have at least a 20 percent disability rating from the VA and (2) be in need of rehabilitation because of an employment handicap caused in substantial part by a service-connected disability. If needed to achieve employment, entitled veterans may receive a maximum of 48 months of vocational rehabilitation services and an additional 18 months of employment services, which include counseling, placement, and postplacement services. Veterans are typically eligible to receive these services within a 12-year period beginning on either: (1) the date of separation from military service, or (2) the date the veteran received a disability rating from VA, whichever is later. In certain circumstances, the 48-month limit and the 12-year period of eligibility may be extended. Under certain circumstances, veterans who have successfully completed a VR&E program and achieved rehabilitation may qualify for additional VR&E benefits and services. Prior to the VOW Act, veterans who successfully completed a VR&E program could receive additional services if (1) their service-connected condition worsened to the extent that they could no longer perform the duties of the occupation for which they were previously rehabilitated, or (2) their occupation was no longer suitable because of their current capabilities and employment handicap. The VOW Act created another pathway for previously rehabilitated veterans to receive additional services. Under section 233 of the VOW Act, veterans who have exhausted their right to regular unemployment compensation under state law may receive up to 12 additional months of VR&E services and benefits following a successful rehabilitation, as long as they are otherwise eligible and they begin the additional program within 6 months after they exhausted unemployment compensation.This provision took effect on June 1, 2012, and veterans must apply no later than March 31, 2014 to qualify. Within VA’s Veterans Benefits Administration’s (VBA) Office of Economic Opportunity in Washington D.C., the central VR&E Office is responsible for overseeing the VR&E program. VR&E services are provided by managers and staff at 57 regional offices and 179 satellite offices, under the management of VBA’s central Office of Field Operations, which manages workload and performance to achieve targets set in coordination with the central VR&E Office. VR&E positions typically include (1) a VR&E officer who oversees the VR&E field office and its staff; (2) vocational rehabilitation counselors (VRC) who work directly with veterans to assess their entitlement, develop their rehabilitation plans, and manage their progress; (3) employment coordinators (EC) who focus on assisting veterans with job search and placement, which also includes employer outreach to facilitate contact between veterans and employers; and (4) other staff to support the administration of the program. VR&E field staff are also located at select college campuses to help veterans successfully complete their training and become employed, and at military sites to help servicemembers with disabilities as they begin their transition to veteran status and the civilian workforce. As of March 2013, 1,281 field staff were administering the VR&E program, of which about 70 percent (890) were VRCs. VR&E’s total caseload has generally increased every year from 98,015 at the end of fiscal year 2008 to 124,100 on March 31, 2013. Over the same period, the number of VRCs has also generally been growing. As shown in figure 1, the increase in staffing has helped to bring down the average caseload per VRC, which grew from 137 cases to 152 cases between fiscal years 2008 and 2009, then steadily decreased to 139 cases as of March 31, 2013. The provision of services under the VR&E program begins with the veteran’s application for services, a determination of entitlement and eligibility, and a visit to a regional or satellite office for further assessment. If a veteran is entitled and eligible to receive VR&E services and found to be employable, the case manager, VRC and veteran will work together to select one of the four VR&E employment tracks best suited for the veteran, to identify a suitable employment goal, and to incorporate that goal and the needed services and benefits to achieve it into a rehabilitation plan. VA measures the performance of its VR&E program across several dimensions, and uses performance goals and data to help manage the program. VA provides transparency on its performance through (1) its annual performance and accountability report; (2) its annual budget VA’s submission to the Congress; and (3) a database on VA’s website.VR&E measures cover the dimensions of program outcomes, timeliness, and accuracy (see table 1). VA also holds the regional offices that administer the VR&E program accountable through performance goals, both for regional VR&E management and for individual VRC and EC staff members. To accomplish this, VA uses the above goals, as well as additional measures and goals. For example, individual VRCs are evaluated on case production and participants’ outcomes based on the general and serious employment handicap rehabilitation rates; the number of successful rehabilitations they complete; and the percentage of their caseloads in interrupted status. About half of the veterans who entered the VR&E program in fiscal year 2003 and received employment-related services have obtained suitable jobs. Of the 45,520 veterans who applied in fiscal year 2003, 16,726 received some type of employment-related services. Among veterans in this group, 7,686 had achieved the program goal of suitable employment by the end of fiscal year 2012. Many others—4,841—had discontinued (stopped participating) and not yet re-applied. Although these veterans have not achieved suitable employment, a substantial number are considered by VA to have attained MRG and therefore some benefits from participating. In fact, according to VA data, some of these veterans were ultimately placed in a job, but the job was not seen as suitable given their disability. Most of the remaining veterans who started in fiscal year 2003 and received employment-related services were still participating in VR&E services, while a few had transferred to the independent living program within VR&E and achieved rehabilitation. (See fig. 3.) While the amount of time veterans spend in the VR&E program varies substantially among participants, it can be lengthy for many veterans. Among those who started in fiscal year 2003, the average time from application to successful placement in a suitable job was 4 years 7 months. While about half of these veterans completed the program within 3 to 6 years, many took considerably longer (see fig. 4). Furthermore, it appears that time frames for completing the program have not changed substantially for more recent applicants. For example, looking at VR&E participants who successfully attained suitable employment during fiscal year 2012, we found their average time from application to completion was also 4 years 7 months, with a range similar to that for fiscal year 2003 applicants. Meanwhile, among veterans who entered in fiscal year 2003 and have discontinued without yet returning, the average time from application to the final discontinuation was very similar—5 years. Factors contributing to varied but generally lengthy time frames include the services veterans receive, as well as the fact that many extend their overall time in the program by interrupting or discontinuing along the way. Of those veterans who started since fiscal year 2003 and received some employment services, most (about 70 percent) pursued a 4-year college degree, and these veterans typically took longer to complete the program than those who pursued other types of training such as community college degrees or vocational training. In addition, we estimate that among veterans who started since fiscal year 2003 and achieved suitable employment, about one-quarter interrupted their programs at least once. Almost the same proportion discontinued and returned to the program at least once before ultimately achieving success, and some did so two or three times. The small proportion (4 percent) who received job placement assistance only, meanwhile, attained suitable employment more quickly than those who received other types of services. Once veterans attain suitable employment, they rarely come back for additional services, even though they may be entitled to such services if, for example, their disability worsens or they qualify under new expanded criteria established by the VOW Act. Of veterans who entered the program in fiscal year 2003 and were placed in suitable jobs, 4 percent have applied for and 2 percent have actually received additional employment-related VR&E services, with 3 years on average between completing the program and re-applying. The data on applying again following rehabilitation are similar for veterans who entered in fiscal years 2004 and 2005. Moreover, the expanded eligibility criteria authorized by the VOW Act have not so far had a substantial impact on the number of veterans returning for additional services. According to data provided by VA, between May 2012 and April 2013 only 10 veterans nationwide received additional VR&E services under these new VOW Act criteria. Managers or staff in a number of regional offices told us the new criteria would not significantly expand the population of veterans eligible for additional VR&E services: several noted that almost all the veterans who would qualify under the new criteria are already eligible under the old criteria. Some also said it is preferable to obtain additional services under the old criteria, which provide more months of additional services. While veterans may discontinue for a variety of reasons, analysis of administrative data, results from a VA customer satisfaction survey, and our interviews with VR&E staff and participants point to several key challenges that may affect veterans at any stage of the rehabilitation process. VA’s Voice of the Veteran survey measures veterans’ satisfaction with benefits and services received, including through the VR&E program. The results reported here are from the pilot survey fielded in October 2012 to January 2013; VA plans to field the survey on a regular, ongoing basis in the future. More specifically, the results on reasons for withdrawing or interrupting from the program are based on the responses of almost 200 veterans who had withdrawn or interrupted after spending at least 60 days in the program.