VA Disability Benefits: Veterans Benefits Administration Could Enhance Management of Claims Processor Training
GAO-21-348
Published: Jun 07, 2021. Publicly Released: Jul 07, 2021.
Fast Facts
The Veterans Benefits Administration has over 9,000 claims processors for disability compensation. In 2019, VBA processed over 1.4 million claims and provided $88 million in benefits to veterans with disabilities.
Training is key to ensuring processors have the skills to effectively and efficiently handle claims—especially as VBA hires more staff, implements new initiatives, and changes eligibility criteria for assigning a degree of disability and compensation level.
VBA followed some leading practices for training, but needs a comprehensive plan and performance goals for its training program. Our recommendations address this and other issues.
Highlights
What GAO Found
The Veterans Benefits Administration (VBA) has over 9,000 employees who process veterans' claims for disability compensation. To ensure claims processors have the skills needed to handle disability claims efficiently and effectively, training is a key strategy. Training is particularly important as VBA hires more staff and implements new initiatives.
GAO assessed VBA's training program for disability claims processors against leading practices for training related to planning, design, implementation, and evaluation. GAO found that VBA partially applied these leading practices.
- Planning. VBA's planning included some efforts to determine the skills and competencies needed for a trained workforce to process claims, consistent with leading practices. However, it lacks an integrated and comprehensive plan to ensure training improves individual and agency performance. Specifically, VBA's planning has not been guided by training program goals or a governance structure that sets priorities with a strategic focus on how efforts will contribute to results. Instead, VBA has used a project-by-project planning approach.
- Design. In designing its training program, VBA has used a variety of training delivery mechanisms, consistent with leading practices. For example, mechanisms include self-paced and instructor-led classroom training and software to manage and deliver training. However, VBA lacks criteria to inform its selection of the most appropriate mechanism to deliver each course.
- Implementation. Regional offices and VBA headquarters work together to deliver training, per leading practices. However, VBA's policies to monitor the extent to which claims processors have received required training are incomplete. Specifically, it lacks policies requiring VBA to identify and correct deficiencies in completing annual training for experienced claims processors.
- Evaluation. VBA collects and incorporates some stakeholder feedback about training and recently finalized plans to evaluate certain training, consistent with leading practices. However, VBA's efforts do not include key stakeholder perspectives, such as those of experienced staff and their supervisors, and VBA does not have policies to ensure evaluations are consistently planned and conducted. GAO's prior work indicates that evaluation has been a consistent gap in VBA's management of training.
VBA officials described several challenges to fully applying leading practices for planning, such as other higher priorities and the frequency with which the agency is tasked with urgent or emerging training needs. VBA also stated that it has some specific strategies in place to guide training efforts, such as setting annual training requirements. Nevertheless, fully applying leading practices for training would provide VBA greater assurance that its workforce is sufficiently skilled to efficiently and effectively process disability claims and provides high-quality service to veterans.
Why GAO Did This Study
In fiscal year 2019, VBA processed over 1.4 million claims for disability compensation and provided about $88 billion in benefits to veterans injured in service to their country. Claims processors receive training to help them determine veterans' eligibility for these benefits.
GAO was asked to review VBA's management of training for disability claims processors. This report examines the extent to which VBA applied relevant leading practices identified by GAO for planning, designing, implementing, and evaluating training, among other objectives.
GAO reviewed relevant federal laws, regulations, policies, and training materials; assessed VBA's efforts against relevant leading practices for training in the federal government; and interviewed officials from VBA headquarters and managers and claims processors at four regional offices, selected for variation on office size, region, and claims workload.
Recommendations
GAO is making 10 recommendations, including that VBA establish an integrated and comprehensive plan and performance goals for its training program; document and use criteria to inform its selection of training delivery mechanisms; develop policies to monitor compliance with required training; collect and incorporate stakeholder feedback; and evaluate training on a recurring basis. VA generally concurred with GAO's recommendations.
Recommendations for Executive Action
| Agency Affected | Recommendation | Status |
|---|---|---|
| Veterans Benefits Administration | The Under Secretary for Benefits should establish performance goals for VBA's training program for disability claims processors. These program-level goals should have specific targets to provide a basis for comparing actual program performance with expected results. (Recommendation 1) |
Open – Partially Addressed
VA agreed with this recommendation. VBA developed a FY 2023 comprehensive training plan for disability compensation claims processors. The plan includes performance goals for each component of the VBA training program. The goals focus on providing training to entry-level and experienced claims processor within specified timeframes, and include targets for training completion. For example, the plan includes a goal to achieve an 80 percent completion rate for one-time mandated training courses for entry-level claims processors. However, the identified targets do not provide a meaningful measure for whether expected results are being achieved because they do not align with VA's policy that all claims processors should complete required training. VBA has also recently drafted a charter to establish a Training Oversight Council intended to advise VBA leadership on issues such as performance metrics to measure the value of training. As of April 2023, the charter is under review by VA leadership, and VA expects to finalize the charter by the end of June 2023. We will consider closing this recommendation when the targets established in VBA's training plan better align with its policy and expected results for the training program.
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| Veterans Benefits Administration | The Under Secretary for Benefits should establish a governance structure that identifies clear lines of authority among the VBA offices responsible for guiding strategic training efforts and establishing clear accountability for the success of these efforts. (Recommendation 2) |
Open – Partially Addressed
VA agreed with this recommendation. In October 2022, VA hired a Senior Executive Service-level VBA Chief Learning Officer. VA also drafted a charter that establishes a VBA training governance structure for guiding strategic training efforts. The draft charter would establish an Executive Training Board responsible for overall strategic direction, such as overseeing the VBA training budget, reviewing performance, and initiating major efforts. The draft charter also would establish a high-level executive review and recommendation body called the Training Oversight Council, which would be overseen by the Executive Training Board. The Council's members include VBA lines of business, such as Compensation Service. One of the Council's duties is to conduct planning to help VBA establish priorities and determine the best ways to leverage training investments. As of April 2023, the charter is under review by VA leadership, and VA expects to finalize the charter by the end of June 2023. We will close this recommendation when the agency has confirmed that the Council is in operation.
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| Veterans Benefits Administration | The Undersecretary for Benefits should develop and document an integrated and comprehensive training plan or strategy for its program for training disability claims processors. The plan should align training program goals with VBA goals and document how program activities will be prioritized to meet goals. (Recommendation 3) |
Open – Partially Addressed
VA agreed with this recommendation. VBA developed a FY 2023 training plan for disability compensation claims processors that identifies goals for the training program, which align with VBA goals. The training plan also states that VBA may conduct training needs assessments to prioritize training opportunities for VBA claims processors, among other purposes. However, this document does not include all elements of a training plan. Specifically, the training plan does not indicate when VBA will conduct needs assessments or other efforts to prioritize program activities to meet program goals. Without completing the assessments, VBA cannot establish priorities among competing demands. In addition, the training plan does not address employee developmental goals or the anticipated benefits and projected costs, and ways to mitigate associated risks. Most notably, the training plan states that priorities for training can change rapidly due to legislative and other developments. However, it does not reflect plans for training on processing PACT Act claims, which VA will began processing after January 1, 2023. VBA plans to establish an Executive Training Board, which according to draft VA documents, would serve as a strategic governance body and perform such functions as overseeing the training budget, reviewing performance, and initiating major training efforts across VBA. VA also plans to establish a Training Oversight Council, intended to consult and assist in development of comprehensive training plans to ensure training goals align with VBA's priorities. In April 2023, VA is developing the charter establishing the VBA learning governance structure and implementation and expects to complete the charter by the end of June 2023. We will consider closing this recommendation when VBA's training plan incorporates the results of its planned assessments, prioritize training needs, and addresses the other gaps we have identified.
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| Veterans Benefits Administration | The Undersecretary for Benefits should document and use criteria to guide analysis for when a given training delivery mechanism should be used. Goals for the training program could be helpful in determining the appropriate criteria. (Recommendation 4) |
Closed – Implemented
VA concurred with this recommendation and has taken action to address it. Specifically, the agency developed the VBA Media Selection Tool, located on the VBA Training Center of Excellence website. This tool provides clear guidance to training developers on determining the most appropriate media or training delivery mechanism. This action addresses the first part of the recommendation to document criteria. VA also addressed the second part of the recommendation by developing and updating courses using the media selection tool. The delivery mechanisms recommended by the tool were based on specific learning objectives and the media needed to achieve each objective. For example, for certain learning objectives where claims processes must demonstrate proficiency on a complex task, the tool recommended interactive software that can also generate an evaluation of student performance, including time and error scores.
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| Veterans Benefits Administration | The Undersecretary for Benefits should establish and monitor minimum training requirements to prepare all course instructors at regional offices to conduct claims processor training. (Recommendation 5) |
Open – Partially Addressed
VA agreed with this recommendation. VA established instructor selection criteria in April 2022 that apply to instructors for new claims processor training. These criteria include claims processing experience with a high level of performance, and require the prospective instructor to provide evidence of their prior experience. However, prior instructor training is not required. In April 2023, VA reported that it updated its guidance on instructor requirements in February 2023. A VA memo states that instructors must now be VA-certified instructors, have completed prior instructor training or completed a new instructor training course. However, this minimum training requirement only applies to instructors of new claims processor training. We will consider closing this recommendation when VA provides information on minimum training requirements for all instructors, including instructors of experienced claims processor training.
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| Veterans Benefits Administration | The Undersecretary for Benefits should develop and implement a policy detailing VBA offices' responsibilities to identify and address any deficiencies in claims processors' completion of annual regional office-selected training hours. (Recommendation 6) |
Closed – Implemented
VA agreed with this recommendation. In 2022, VA established Training Compliance Training Staff Standard Operating Procedures that explains how VBA identifies and addresses claims processor training completion deficiencies, including the frequency of monitoring and steps to ensure that completion deficiencies are addressed. VBA has also incorporated training compliance into the Veteran Service Representative and rater national performance standards. The agency is also monitoring completion of annual regional-office selected training hours.
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| Veterans Benefits Administration | The Undersecretary for Benefits should develop and document a policy and related processes for collecting and incorporating feedback from relevant stakeholders on the strengths and weaknesses of its claims processor training program. This effort could be completed independently or as part of VBA's evaluation planning efforts for disability claims processor training. (Recommendation 7) |
Open – Partially Addressed
VA agreed with this recommendation. VA finalized a FY 2023 Compensation Service Comprehensive Training plan, which states that Compensation Service training evaluation plans include a process for collecting and incorporating stakeholder feedback. The evaluation plans indicate various methods to collect feedback from stakeholders (including participants, supervisors and instructors), which addresses the first part of this recommendation. The plan also cites other mechanisms for collecting feedback on training, such as monthly training manager meetings and a dedicated training mailbox. However, the plans do not indicate how such feedback will be incorporated into the training program for claims processors. In April 2023, VA stated that it is developing a process to ensure VBA training program leaders address training evaluation recommendations for training program improvement. We will consider closing this recommendation when VBA develops and documents a policy and any related procedures for incorporating stakeholder feedback to improve training for disability claims processors.
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| Veterans Benefits Administration | The Undersecretary for Benefits should ensure that Compensation Service completes and implements a plan to evaluate training of disability claims processors that aligns with leading practices, such as those outlined in VBA's strategy for evaluating training. (Recommendation 8) |
Open – Partially Addressed
VA concurred with this recommendation and has taken significant action to address it. VBA has prepared evaluation plans for its training programs for new and experienced claims processors. These plans include a process evaluation to assess the implementation of training, as well as to measure participants' satisfaction, learning, behavior and results. This action addresses the first part of this recommendation. In November 2022, VA provided examples of training evaluation reports for two training programs for new claims processors. VA stated that its Training Oversight Council, established in December 2022, is intended to consult and assist in development of comprehensive training plans to ensure training goals align with VBA's priorities. As of April 2023, VA is developing the charter establishing the VBA learning governance structure and implementation and expects to complete the charter by the end of June 2023. We will consider closing this recommendation when VBA demonstrates that its plans for evaluating training are being implemented.
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| Veterans Benefits Administration | The Undersecretary for Benefits should establish a policy to help ensure recurring training evaluation efforts that align with leading practices, such as those outlined in VBA's strategy for evaluating training. (Recommendation 9) |
Closed – Implemented
VA concurred with this recommendation and has addressed it. On December 9, 2021, VBA published VBA Letter 20-21-19, Evaluation Training Policy and Memorandum. This policy letter establishes requirements, roles and responsibilities for evaluating training programs and training systems sponsored, created, or implemented by VBA. The policy requires evaluation plans for all mission-based training programs, and ensures recurring training evaluation efforts. It also requires VBA business lines to adhere to agency guidance for evaluating training programs and training systems, as presented in VBA's annual training evaluation strategy. It aligns with OMB guidance for implementation of the Foundation for Evidence-Based Policymaking Act of 2018, as well as leading practices for training.
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| Veterans Benefits Administration | The Undersecretary for Benefits should collect, analyze, and share lessons learned from the Blue Water Navy training effort with internal stakeholders, including those from offices responsible for training. (Recommendation 10) |
Closed – Implemented
VA concurred with this recommendation and has significantly addressed it. Specifically, the agency prepared an after-action report summarizing the development, implementation, and results of the Blue Water Navy training effort. This report was discussed at an August 2021 meeting with training stakeholders, including representatives from VBA's Compensation Service, Office of Field Operations, and the Office of Human Capital Services. The report is stored on an internal SharePoint site and, according to VA officials, is easily retrievable to others who may need to produce training under similar circumstances.
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Best practicesClaims processingDisability claimsDisability compensationEmployee developmentHuman capital managementPerformance goalsVeteransVeterans affairsVeterans benefitsVeterans disability benefits