This approach highlights a key  advantage of the BDD program—that it takes less time for the veteran to  receive benefits after discharge. VA officials told us the agency does not measure the timeliness of BDD  claims development for three reasons: (1) VA lacks legal authority to  provide compensation until a servicemember is discharged and becomes a  veteran; (2) VA officials perceive most development activities, such as  obtaining the separation exam and medical records, to be outside of their  control; and (3) VA officials said that a primary objective of the program  was to shorten the time from which the member was entitled to benefits— by definition, after discharge—to the time he or she actually received  them. VA Has Not Fully Evaluated Initiatives to Improve the BDD Program

VA implemented two initiatives to improve the BDD program but did not  fully evaluate either. VA also has not evaluated a second BDD initiative, known as the paperless  claims processing initiative, which is intended to increase the timeliness of  claims processing and security of BDD claims information. However, VA has not evaluated the extent to which  this initiative improved overall timeliness or security. VA’s Review of BDD Operations Has Been Inconsistent, although VA Has Recently Taken Steps to Improve Monitoring

We identified gaps related to VA’s monitoring of the BDD program, but VA  has since taken some steps to address those gaps. Furthermore, VA revised its protocol to require a  review of BDD operations as part of its site visits to monitor regional  offices. VA and DOD Took Steps to Increase Access to the BDD Program, but Some Servicemembers May Still Face Barriers to Participation

		Some Servicemembers Have Limited Access to the BDD Program, but May Participate in the Alternative Quick Start Program

Although the BDD program is designed to provide most servicemembers  with access, some members may be unable to initiate a claim 60 to 180  days prior to discharge or remain within the vicinity of the base long  enough to complete their exams. In April 2007, VA established an alternative predischarge program, now  known as Quick Start, to provide members who cannot participate in the  BDD program an opportunity to initiate disability claims before they are  discharged. We also found that, like BDD claims, timeliness measures for Quick Start  claims do not include days spent developing the claim prior to discharge. However, as with BDD claims, VA told us it has no plans to  measure time spent developing these particular claims, and we continue to  believe it should. VA and DOD Have Coordinated to Provide Briefings with Information about BDD, but Military Duties and Other Factors May Hinder Attendance

VA and DOD have coordinated to provide servicemembers with  information about the BDD program through VA benefits briefings and  other initiatives, but attending these briefings is optional for most  servicemembers. We  recommended that DOD establish a plan with a specific time frame for  meeting this goal, but DOD has not developed such a plan. We continue to  believe that DOD should establish a plan for meeting its goal. DOD recently reported it is working in collaboration  with DOL and VA to determine what improvements can be made in  measuring servicemembers’ participation in all components of TAP. We recommended that VA and DOD identify and disseminate  information on promising practices that address challenges local officials  commonly face in ensuring servicemembers have full access to a  cooperative exam. DOD and VA: Preliminary Observations on Efforts to Improve Care  Management and Disability Evaluations for Servicemembers. GAO-08-207T. Veterans’ Disability Benefits: Processing of Claims Continues to Present  Challenges. Veterans’ Disability Benefits: Claims Processing Challenges and  Opportunities for Improvements. Military and Veterans’ Benefits: Enhanced Services Could Improve  Transition Assistance for Reserves and National Guard. VA and DOD Health Care: Efforts to Coordinate a Single Physical Exam  Process for Servicemembers Leaving the Military.
Why GAO Did This Study

Through the Benefits Delivery at Discharge (BDD) program, the Department of Veterans Affairs (VA) collaborates with the Department of Defense (DOD) to streamline access to veterans' disability benefits by allowing some servicemembers to file a claim and undergo a single collaborative exam process prior to discharge. BDD is designed for servicemembers with conditions that, while disabling, do not generally prevent them from performing their military duties. This program can shorten the time it takes for veterans to receive benefits by several months. GAO was asked to discuss issues surrounding VA's and DOD's BDD program and related Quick Start program, and identify ways VA and DOD could improve these programs for transitioning servicemembers. This statement is based on GAO's September 2008 report (GAO-08-901) that examined (1) VA efforts to manage the BDD program and (2) how VA and DOD are addressing challenges servicemembers face in accessing the BDD program. GAO updated some information to reflect the current status of claims processing and improvement initiatives in the BDD program.

What GAO Found

Although VA awards disability benefits more quickly under BDD than through its traditional disability claims process, gaps in program management and accountability remain. For example, VA does not separately measure the total time its personnel spend developing BDD claims. As a result, VA has limited information on potential problems and improvement opportunities regarding BDD claims. GAO continues to believe that VA should measure BDD development time; however, VA told GAO it has no plans to capture this information. GAO also found that VA implemented two initiatives to improve the BDD program--i.e., consolidating BDD processing in two offices and instituting paperless processing of BDD claims to increase efficiencies and improve security of information--but did not evaluate whether or the extent to which desired improvements resulted. Finally, GAO found that VA was not completely or consistently monitoring BDD operations at all locations. VA has since taken steps to review BDD operations at more sites and has revised its protocols to ensure more consistent reviews of BDD operations. VA and DOD have taken steps to improve servicemembers' access to the BDD program; however, opportunities remain for further improvement. For servicemembers such as National Guard and Reservists who are generally unable to complete the BDD claims process within the required time frame, VA established an alternative predischarge program called Quick Start. Under this program, servicemembers may still initiate a disability application prior to discharge, but can complete the claims process, including medical exams, at another location after discharge. In response to GAO's recommendation, VA has taken steps to collect additional data to determine the extent to which the Quick Start program is helping those with limited or no access to the BDD program. However, as with BDD claims, VA told GAO it has no plans to measure time spent developing these particular claims, and GAO continues to believe it should. VA and DOD have coordinated to increase BDD program awareness through VA benefits briefings for servicemembers, and DOD established a goal that 85 percent of servicemembers attend these non-mandatory briefings. GAO continues to believe that DOD should establish a plan with a specific time frame for meeting this goal, but DOD has not developed such a plan. Finally, GAO found that some bases faced difficulties maintaining local agreements intended to prevent redundancy and inconvenience for servicemembers in obtaining required medical exams. In response to GAO's recommendation, DOD reported that it is working with VA to identify best practices to address local challenges to implementing their cooperative exam process.