The IL "track"-one of five tracks within VA's VR&E
program-provides a range of benefits to help veterans with
service-connected disabilities live independently when employment
is not considered feasible at the time they enter the VR&E
program. These benefits can include counseling, assistive devices,
and other services or equipment. GAO was asked to review issues
related to the IL track. This report examines (1) the
characteristics of veterans in the IL track, and the types and
costs of benefits they were provided; (2) the extent to which their
IL plans were completed, and the time it took to complete them; and
(3) the extent to which the IL track has been administered
appropriately and consistently across regional offices. To conduct
this work, GAO analyzed VA administrative data from fiscal years
2008 to 2011, and reviewed a random, generalizable sample of 182
veterans who entered the IL track in fiscal year 2008. In addition,
GAO visited five VA regional offices; interviewed agency officials
and staff; and reviewed relevant federal laws, regulations, and
agency policies and procedures. Of the 9,215 veterans who entered
the Department of Veterans Affairs' (VA) Independent Living (IL)
track within the Vocational Rehabilitation and Employment
(VR&E) program in fiscal years 2008 to 2011, most were male
Vietnam era veterans in their 50s or 60s. Almost 60 percent served
in the U.S. Army, and fewer than 1 percent served in the National
Guard or Reserve. The most prevalent disabilities among these
veterans were post-traumatic stress disorder and tinnitus. GAO's
review of 182 IL cases from fiscal year 2008 found that VR&E
provided a range of IL benefits to veterans. Among these cases, the
most common benefits were counseling services and computers. Less
common benefits included gym memberships, camping equipment, and a
boat. GAO estimated that VR&E spent nearly $14 million on
benefits for veterans entering the IL track in fiscal year 2008-an
average of almost $6,000 per IL veteran. Most veterans completed
their IL plans, which identify their individual goals to live
independently and the benefits VR&E will provide. About 89
percent of fiscal year 2008 IL veterans were considered by VR&E
to be "rehabilitated," that is, generally, to have completed their
IL plans by the end of fiscal year 2011. VR&E discontinued or
closed about 5 percent of cases for various reasons, such as the
veteran declined benefits. Six percent of cases were open at the
end of fiscal year 2011. Because the complexity of IL cases varied
depending on veterans' disabilities and needs, some cases were
fairly simple for VR&E to close. For example, one IL case only
called for the installation of door levers and a bathtub rail.
Another more complex case involved the provision of a range of IL
benefits, including home modifications. Rehabilitation rates across
regions varied from 0 to 100 percent, and regions with larger IL
caseloads generally rehabilitated a greater percentage of IL
veterans. While IL plans nationwide were completed in 384 days, on
average, completion times varied by region, from 150 to 895 days.
VR&E exercises limited oversight to ensure appropriate and
consistent administration of the IL track across its regions. While
the law currently allows 2,700 veterans to enter the IL track
annually, data used to monitor the cap are based on the number of
IL plans developed, not on the number of individual veterans
admitted. Veterans can have more than one plan in a fiscal year, so
one veteran could be counted multiple times towards the cap.
GAO-13-474
General
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