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GI Bills Enacted Prior to 2008 and Related
Veterans’ Educational Assistance Programs:
A Primer
Cassandria Dortch
Analyst in Education Policy
October 22, 2012November 5, 2014
Congressional Research Service
7-5700
www.crs.gov
R42785
CRS Report for Congress
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GI Bills Enacted Prior to 2008 and Related Veterans’ Educational Assistance Programs
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Summary
The U.S. Department of Veterans Affairs (VA), previously named the Veterans Administration,
has been providing veterans educational assistance (GI Bill®) benefits since 1944. The benefits
have been intended, at various times, to compensate for compulsory service, encourage voluntary
service, avoid unemployment, provide equitable benefits to all who served, and promote military
retention. In general, the benefits provide grant aid to eligible individuals enrolled in approved
educational and training programs. Since three of the GI Bills have overlapping eligibility
requirements and the United States is expected to wind down involvement in active conflicts,
Congress may consider phasing out one or more of the overlapping programs.
This report describes the GI Bills enacted prior to 2008. Although participation in the programs
has ended or is declining, the programs’ evolution and provisions inform current policy. The Post9/11 GI Bill (Title 38 U.S.C., Chapter 33), enacted in 2008, is described along with potential
program issues in CRS Report R42755, The Post-9/11 Veterans Educational Assistance Act of
2008 (Post-9/11 GI Bill): Primer and Issues, by Cassandria Dortch.
This report provides a description of the eligibility requirements, eligible programs of education,
benefit availability, and benefits. The report also provides some summary statistics, comparisons
between the programs (see Table 2), and brief discussions of related programs. Individuals
currently participate in five GI Bills enacted prior to 2008:
•
The most popular program prior to the Post-9/11 GI Bill was the Montgomery GI
Bill-Active Duty (MGIB-AD), which provides a monthly allowance primarily to
veterans and servicemembers who enter active duty after June 30, 1985.
•
The Montgomery GI Bill-Selected Reserve (MGIB-SR) provides a lower
monthly allowance than the MGIB-AD to reservists who enlist, re-enlist, or
extend an enlistment after June 30, 1985.
•
The Reserves Educational Assistance Program (REAP) provides a monthly
allowance that is higher than the MGIB-SR but lower than the MGIB-AD to
reservists with active duty service.
•
The program with the fewest individuals receiving benefits is the Post-Vietnam
Era Veterans’ Educational Assistance Program (VEAP), which provides a
monthly allowance to veterans who first entered active duty service on or after
January 1, 1977, and before July 1, 1985.
•
The dependents of individuals with military service may be eligible for the
Survivors’ and Dependents’ Educational Assistance (DEA) program, which
provides benefits to the spouse and children of servicemembers who, as a result
of service, are seriously disabled, die, or are detained.
Other educational support is available to veterans using these benefits. Participants may also
request academic and vocational counseling before and while using their GI Bill benefits.
Participants on a growing number of pilot campuses have access to the VetSuccess on Campus
program, which provides on campus counseling and referral services. In addition to counseling
support, some participants may participate in the Veterans Work Study Program to receive
additional financial assistance in exchange for work while attending school.
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Contents
Introduction...................................................................................................................................... 1
History of the Programs ................................................................................................................... 2
Montgomery GI Bill—Active Duty (MGIB-AD)................Survivors’ and Dependents’ Educational Assistance Program (DEA) ............................................................ 7
Eligible Individuals ................................................................................................................... 87
Eligible Programs of Education, Institutions, and Establishments ............................................ 8 10
Benefit Payments ..................................................................................................................... 1210
Monthly Allowance ........................................................................................................... 12
Tuition Assistance “Top-Up” Program10
Special Assistance to the Educationally Disadvantaged ................................................... 11
Special Restorative Training ........................... 13
Advance Payments .................................................................. 11
Tutorial Assistance .......................................... 13
Accelerated Payments .................................................................. 11
Licensing and Certification Test Fees ..................................... 13
Tutorial Assistance .......................................... 12
National Admissions and Course Credit Tests .................................................................. 13
Licensing and Certification Test Fees12
Benefit Availability and Duration ............................................................................... 14
National Admissions and Course Credit Tests .......................... 12
Montgomery GI Bill—Active Duty (MGIB-AD)..................................................... 14
Supplemental Assistance ..................... 12
Eligible Individuals .............................................................................. 14
Increase for Post-Korean Conflict GI Bill-Eligible Participants ....................................... 14
Buy Up Program13
Eligible Programs of Education, Institutions, and Establishments .......................................... 15
Benefit Payments ...................................................................... 15
Benefit Availability and Duration ............................................... 16
Monthly Allowance ............................................. 15
MGIB-AD Death Benefit .............................................................. 17
Tuition Assistance “Top-Up” Program ............................................. 15
Transferability to Dependents................................. 17
Tutorial Assistance ................................................................. 16
Survivors’ and Dependents’ Educational Assistance Program (DEA) ........................................... 16
Eligible Individuals ............18
Supplemental Assistance ..................................................................................................... 16
Eligible Programs of Education, Institutions, and Establishments . 18
Increase for Post-Korean Conflict GI Bill-Eligible Participants ......................................... 17
Benefit Payments ..... 18
Buy Up Program................................................................................................................ 18
Monthly Allowance ...............Benefit Availability and Duration ............................................................................................ 18
Special Assistance to the Educationally Disadvantaged19
MGIB-AD Death Benefit ................................................... 19
Special Restorative Training ..................................................... 19
Transferability to Dependents........................................ 19
Benefit Availability and Duration ............................................................................................ 19 20
Montgomery GI Bill—Selected Reserve (MGIB-SR) ................................................................... 1920
Eligible Individuals ................................................................................................................. 20
Eligible Programs of Education, Institutions, and Establishments .......................................... 2021
Benefit Payments ..................................................................................................................... 2021
Benefit Availability and Duration ............................................................................................ 21
Transferability to Dependents.................................................................................................. 2122
Reserve Educational Assistance Program (REAP) ........................................................................ 2122
Eligible Individuals ................................................................................................................. 22
Eligible Programs of Education, Institutions, and Establishments .......................................... 22
Benefit Payments ..................................................................................................................... 2223
Benefit Availability and Duration ............................................................................................ 23
Transferability to Dependents.................................................................................................. 23
Post-Vietnam Era Veterans Educational Assistance Program (VEAP) .......................................... 2324
Eligible Individuals ................................................................................................................. 2324
Eligible Programs of Education, Institutions, and Establishments .......................................... 2425
Benefit Payments ..................................................................................................................... 25
Benefit Availability and Duration of Use ................................................................................ 26
Combination and Comparison of GI Bill Programs ...................................................................... 26
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Related Department of Veterans Affairs Programs ........................................................................ 30
Veterans Counseling ................................................................................................................ 30
VetSuccess on Campus ............................................................................................................ 30
Vocational Rehabilitation and Employment Program (VR&E) ............................................... 31
Veterans Work Study Program................................................................................................. 32
Participation and Cost .................................................................................................................... 33
Figures
Figure 1. Total Veterans, Active-Duty Servicemembers, Reservists, and Dependents
Receiving VEAP, MGIB-AD, MGIB-SR, REAP, DEA, and Post-9/11 GI Bill Education
Benefits each Year (1978-2011).................................................................................................. 34
Tables
Table 1. Chronology of Educational Assistance Programs Administered by the VA....................... 4
Table 2. Selected Characteristics of Veterans’ Educational Assistance Programs ......................... 27
Table 3. Obligations and Participation of Selected Programs
Administered by the VA: FY2011FY2013 .............................................................................................. 35
Table A-1. Original GI Bill Participation ....................................................................................... 39
Table B-1. Korean Conflict GI Bill Participation .......................................................................... 43
Table C-1. Post-Korea and Vietnam Era GI Bill Participation ...................................................... 49
Appendixes
Appendix A. Educational Assistance Under the Original GI Bill of Rights .................................. 36
Appendix B. Korean Conflict GI Bill ............................................................................................ 40
Appendix C. Post-Korea Conflict and Vietnam Era GI Bill .......................................................... 44
Appendix D. Veterans and Dependents Education Loan Program ................................................ 50
Contacts
Author Contact Information........................................................................................................... 50
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Introduction
This report provides a detailed description of five of the six educational assistance programs (GI
Bills)®)1 that are curently available to veterans or other eligible individuals through the U.S.
Department of Veterans Affairs (VA). The GI Bills provide financial assistance while enrolled in
approved programs of education or training programs to individuals whose eligibility is based on
the individuals’ service in the uniformed services. The sixth program, which is the most recently
enacted, is the
Post-9/11 GI Bill (Title 38 U.S.C., Chapter 33). It is described along with potential
program program
issues in CRS Report R42755, The Post-9/11 Veterans Educational Assistance Act of
2008 (Post-9Post9/11 GI Bill): Primer and Issues, by Cassandria Dortch.
Congress may consider consolidating, phasing out, or amending one or more of the educational
assistance programs with overlapping eligibility requirements.12 Individuals with active duty
military service after September 10, 2001, may be eligible for three programs: the Montgomery
GI Bill-Active Duty (MGIB-AD), the Reserves Educational Assistance Program (REAP), and the
Post-9/11 GI Bill. Most Post-9/11 GI Bill-eligible veterans are expected to choose the Post-9/11
GI Bill, which generally provides more comprehensive benefits and higher payments in
comparison to the other programs. There are five potential reasons for phasing out one or more of
the overlapping programs.
•
By statutory provisions, monetary contributions to secure MGIB-AD eligibility
are automatically deducted from the pay of all new recruits to the regular Armed
Forces unless they decline the benefit. This reduction in pay is a burden for some
new enlistees, and the amount may never be recouped if individuals do not use
MGIB-AD benefits or exhaust Post-9/11 GI Bill benefits.
•
Potential eligibility for multiple programs has caused some participants
confusion when trying to choose which program(s) will be the most
advantageous to their situation.
•
With the plannedcontinued withdrawal of U.S. troops from active conflicts, Congress may
may consider offering future recruits a program of peacetime benefits.
•
The administration of several GI Bills with different payment and eligibility
structures is resource intensive.
•
The resulting GI Bill(s) may balance recruitment, retention, and reward in a way
that more aptly reflects Congressional policy objectives.
Since the original World War II GI Bill, Congress has phased out each GI Bill by limiting the
eligibility service period, establishing a final date for the receipt of program benefits, and/or
limiting the period for individuals to receive benefits. As currently enacted, the MGIB-AD,
REAP, and Post-9/11 GI Bill programs are permanently authorized because the periods of
1
1
GI Bill® is a registered trademark of the United States Department of Veterans Affairs (VA).
2
This issue has been raised during Congressional testimony: U.S. Congress, Senate Committee on Veterans’ Affairs,
Hearing: Legislative Presentation by AMVETS, National Association of State Directors of Veterans Affairs, Non
Commissioned Officers Association, Gold Star Wives, The Retired Enlisted Association, Fleet Reserve Association,
Vietnam Veterans of America, Iraq and Afghanistan Veterans of America, Testimony by Duane Miskulin, National
Commander, AMVETS, 111th Cong., 2nd sess., March 18, 2010 and U.S. Congress, Senate Committee on Veterans’
Affairs, Pending Legislation Hearing, 111th Cong., 2nd sess., May 19, 2010, S.Hrg. 111-623 (Washington: GPO, 2010),
p. 57; and proposed in H.R. 6430 in the 111th Congress.
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Veterans’ service organizations have made related
recommendations at Military Officers Association of America, “Veterans Benefits Improvements,” press release, July
1, 2014, http://www.moaa.org/Main_Menu/Take_Action/Top_Issues/Enjoying_Retirement/
Veterans_Benefits_Improvements.html.
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Since the original World War II GI Bill, Congress has phased out each GI Bill by limiting the
eligibility service period, establishing a final date for the receipt of program benefits, and/or
limiting the period for individuals to receive benefits. As currently enacted, the MGIB-AD,
REAP, and Post-9/11 GI Bill programs are permanently authorized because the periods of
eligibility are unrestricted into the future, and Congress has not specified an end date after which
no benefits would not be paid.
Over the decades during which the GI Bill programs have been in existence, two themes have
been emphasized. The benefits promote development of work-related skills to facilitate entry or
re-entry into the workforce, and the base benefit is equitable regardless of rank or military
occupation specialty. This is in contrast to educational assistance programs offered by the U.S.
Department of Defense (DOD), which are targeted to servicemembers and potential
servicemembers that are critically needed. All of the educational assistance programs
administered by the VA require
some period of military service before benefits can be received.
The most salient ongoing
discussions have been related to how much eligible individuals should
contribute to their
education in time or money, which types of service warrant a benefit, and how
liberal (i.e.,
valuable) the benefit should be.
All of the benefit programs provide eligible persons an entitlement to educational assistance. This
entitlement is measured in dollars and/or time—months and days. A dollar value is also
associated with each month and day of entitlement. Educational assistance payments reduce the
may reduce
the dollars of entitlement remaining, if applicable. Educational assistance payments also reduce the
or the remaining entitlement period at a rate of one month per
payment or in proportion to a base
payment amount. Eligible persons may run out of dollars of
entitlement before running out of the
entitlement period or vice versa. Once either runs out, the
total entitlement is exhausted. In
general, once the entitlement period or dollars of entitlement are
exhausted eligible persons
continue receiving educational assistance through the end of the
academic term if more than
halfway through, or for up to a 12-week period if not on an academic
term schedule. Neither the
entitlement period nor the dollars of entitlement are reduced if an
individual is called to active
duty and if, as a result, the individual must discontinue studies and
fails to receive credit or
training time.2
The3
This report describes the five GI Bills with the lowest participation numbers and related veterans’
educational assistance programs. It is organized into five sections. The first section provides an
explanation of the rationale and impetus behind veterans’ educational assistance programs. The
second section describes the eligibility requirements and benefits of the GI Bills enacted prior to
2008. The GI Bills are discussed in descending order based on the number of current participants.
The third section reviews the linkages and commonalities between the programs. A summary of
selected characteristics of the various programs is presented in Table 2. The fourth section
provides a brief overview of related VA programs. The final section provides information on
participation and expenditures for the programs. A detailed look at earlier GI Bills that are no
longer available to participants and the lessons learned are available in the appendices.
History of the Programs
Since the Revolutionary War, the United States has provided benefits to injured or disabled war
veterans; however for much of this period, benefits were not provided to the same extent to ablebodied veterans. Prior to World War II (WWII), “poor, jobless, and disgruntled veterans … had
led to unrest and fear of revolt throughout American history.” In 1932, after World War I, the
2
3
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military was called in to forcibly remove 20,000 still unemployed and often homeless veterans
and burn their encampment near the Capitol and White House.3
Despite the draft in earlier4
In early U.S. history, military service was thought of as “a fundamental
obligation of [male]
citizenship.”45 Because the 16.1 million personnel5personnel6 who served in the U.S.
Armed Forces6Forces7 during
WWII accounted for over one-third of the 41.1 million7million8 working-age males
(between 20 and 64
years of age) in 1947, fears of the consequences of mass unemployment were
legitimate feared. Before the end of
WWII, Congress and the American Legion8Legion9 worked together to pass
the original GI Bill, or
Serviceman’s Readjustment Act of 1944 (P.L. 78-346).910 The act provided a
full range of
resources to veterans including the construction of additional hospitals; educational
assistance to
non-disabled veterans; home, business, and farm loans; job counseling and
employment employment
placement services; and an unemployment benefit.
The original GI Bill was generally considered successful in averting unemployment, raising the
educational level and thus the productivity of the U.S. workforce, and confirming the value that
Americans place on those that provide military service.1011 Subsequent GI Bills providing
educational assistance have been passed (Table 1). The Korean Conflict GI Bill was enacted
under the Veterans’ Readjustment Assistance Act of 1952 (P.L. 82-550) and codified in Title 38,
U.S.C., Chapter 33. The purpose of the program was to prepare returning veterans to enter the
workforce. It allowed the same types of education and training as the original GI Bill—on-the-job
training, on-the-farm training, correspondence courses,11 and traditional college education.
Several provisions were also added to prevent avocational or recreational educational pursuits and
to ensure the quality of education provided.
312
4
Edward Humes, “The Greatest Generation: The Accidental Remaking of America,” in Over Here: How the G.I. Bill
Transformed the American Dream, 1st ed. (Orlando, FL: Harcourt, Inc., 2006), pp. 4-20.
45
Suzanne Mettler, Soldiers to Citizens: The G.I. Bill and the Making of the Greatest Generation (New York: Oxford
University Press, 2005), p. 26.
56
Facts for Features, U.S. Census Bureau, April 29, 2004, http://www.census.gov/Press-Release/www/2004/cb04ffse07.pdf.
67
The Armed Forces are the Army, Navy, Air Force, Marine Corps, and Coast Guard of the United States.
78
U.S. Census Bureau, Table 1. Years of School Completed by Persons 14 Years Old and Over, by Age, Color, and
Sex, for the United States: Civilian Population, April 1947, and Total Population, April 1940.
89
The American Legion was chartered by Congress in 1919 as a patriotic wartime veterans organization devoted to
mutual helpfulness. It is a not-for-profit community-service organization.
910
Suzanne Mettler, Soldiers to Citizens: The G.I. Bill and the Making of the Greatest Generation (New York: Oxford
University Press, 2005), pp. 18-22.
1011
U.S. Congress, House Committee on Veterans’ Affairs, Readjustment Benefits: General Survey and Appraisal, A
Report on Veterans’ Benefits in the United States, committee print, prepared by The President’s Commission on
Veterans’ Pensions, 84th Cong., 2nd sess., September 11, 1956, House Committee Print No. 289 (Washington: GPO,
1956), pp. 107-142.
11
Individuals in correspondence training usually receive lessons in the mail and have a certain amount of time to
complete and return them for a grade.12
This table includes legislation enacted through 2014.
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Table 1. Chronology of Educational Assistance Programs Administered by the VA
Year
Enacted
Common Name
Establishing Legislation
U.S. Code
Currently
Paying Benefits
1944
Original GI Billa
Serviceman’s Readjustment Act of 1944
Title 38, Chapter 12
No
1952
Korean Conflict GI Billa
Veterans’ Readjustment Assistance Act of 1952
Title 38, Chapter 33
(repealed in 1966)
No
1956
DEA (Survivors’ and Dependents Educational
Assistance)b
War Orphans’ Educational Assistance Act of 1956
Title 38, Chapter 35
NoYes
1966
Post-Korean Conflict and Vietnam Era GI Billa
Veterans Readjustment Benefits Act of 1966
Title 38, Chapter 34
No
Veterans’ Readjustment Assistance Act of 1974
Title 38, Chapter 36
(repealed in 1981)
No
Programa
1974
Veterans and Dependents Education Loan
1976
VEAP (Post-Vietnam Era Veterans Educational
Assistance)b
Veterans’ Education and Employment Assistance Act of
1976
Title 38, Chapter 32
Yes
1981
Educational Assistance Test Program (Sec. 901)c
Department of Defense Authorization Act, 1981
Title 10, Chapter 106A
Yes
1981
Educational Assistance Pilot Program (Sec. 903)d
Department of Defense Authorization Act, 1981
Title 10 U.S.C. §2141(a)
No
1983
Veterans’ Job Training Acte
Emergency Veterans’ Job Training Act of 1983
Title 29 U.S.C. §1721
note (repealed in 2000)
No
1985
MGIB-AD (Montgomery GI Bill-Active Duty)b
Department of Defense Authorization Act, 1985
Title 38, Chapter 30
Yes
1985
MGIB-SR (Montgomery GI Bill-Selected Reserve)b
Department of Defense Authorization Act, 1985
Title 10, Chapter 1606
Yes
1990
Refunds for Certain Service Academy Graduatesf
Department of Veterans Affairs Nurse Pay Act of 1990,
Section 207
Title 38 U.S.C. §1622
note
No
1992
Service Members Occupational Conversion and
Training Act of 1992 (SMOCTA)g
National Defense Authorization Act for Fiscal Year
1993 (P.L. 102-484)
Title 10 U.S.C. §1143
note
No
2005
REAP (Reserves Educational Assistance Program)b
Ronald W. Reagan National Defense Authorization Act
for FY2005, Sec. 527
Title 10, Chapter 1607
Yes
2008
Post-9/11 GI Billh
Post-9/11 Veterans Educational Assistance Act of 2008
Title 38, Chapter 33
Yes
2009
Marine Gunnery Sergeant John David Fry
Scholarshiph
Supplemental Appropriations Act of 2009 (P.L. 111-32)
Title 38, Chapter 33
Yes
Source: Prepared by CRS based on a review of the legislation.
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a.
See Appendix B for a full program description.
b.
For a program description, see the entitled report section.
CRS-4
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c.
Section 901 of the Department of Defense Authorization Act, 1981 (P.L. 96-342) authorized the Department of Defense to test the feasibility and effectiveness to
recruitment and retention of a noncontributory educational assistance program, the Educational Assistance Test Program. The program was only eligible to individuals
who enlisted or reenlisted for service on active duty after September 30, 1980, and before October 1, 1981. Certain individuals were permitted to transfer their
entitlement to their spouses or children. The program is funded by DOD, but paid through the VA.
d.
Section 903 of the Department of Defense Authorization Act, 1981 (P.L. 96-342) authorized the Educational Assistance Pilot Program - Noncontributory VEAP to test
the feasibility and effectiveness to recruitment and retention of offering the VEAP program without requiring a monetary contribution from servicemembers. The
program was only eligible to individuals who enlisted or reenlisted in the Armed Forces after September 30, 1980, and before October 1, 1981. Certain individuals
were permitted to transfer their entitlement to their spouses or children. The program is funded by DOD, but paid through the VA.
e.
The Emergency Veterans’ Job Training Act of 1983 (P.L. 98-77) was enacted “to address the problem of severe and continuing unemployment among veterans.”
Unemployed Korean Conflict and Vietnam Era veterans were eligible for up to 15 months of assistance while training for high growth, high demand, or high technology
occupations on or after October 1, 1983, and for programs beginning before April 1, 1990. The program paid to employers offering job training programs 50% of the
veterans’ wages, up to $10,000.
f.
Section 207 of the Department of Veterans Affairs Nurse Pay Act of 1990 (P.L. 101-366) provided a one-year period during which eligible pre-1979 service academy
graduates and Senior Reserve Officers’ Training Corps completers could make an irrevocable election to disenroll from VEAP and receive the amount of educational
assistance benefits the individual would have received under the Post-Korean Conflict and Vietnam Era GI Bill.
g.
SMOCTA was enacted to facilitate the drawdown of the Armed Forces by providing eligible individuals not less than 6 months or more than 18 months of job training
in a field of employment providing a reasonable probability of stable, long-term employment. Eligible individuals were discharged on or after August 2, 1990, and were
unemployed, had an occupational specialty that did not readily transfer to the civilian workforce, or were entitled to veterans’ disability compensation. The program
paid to employers offering job training programs 50% of the veterans’ wages, up to $12,000, and up to $500 for tools and other work-related materials. Assistance was
available beginning in December 1992, and for programs beginning before October 1, 1995.
h.
For a program description, see CRS Report R42755, The Post-9/11 Veterans Educational Assistance Act of 2008 (Post-9/11 GI Bill): Primer and Issues, by Cassandria Dortch.
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The Korean Conflict GI Bill was enacted under the Veterans’ Readjustment Assistance Act of
1952 (P.L. 82-550) and codified in Title 38, U.S.C., Chapter 33. The purpose of the program was
to prepare returning veterans to enter the workforce.
In 1956, the War Orphans’ Educational Assistance Act of 1956 (P.L. 84-634) was passed to
provide educational assistance to the children of servicemembers who died as a result of injury or
disability incurred in the line of duty. This program was later expanded to include spouses and
children of servicemembers who died, became permanently or totally disabled, were missing-inaction, were captured, or were hospitalized as a result of service.
The Post-Korean Conflict and Vietnam Era GI Bill was enacted under the Veterans Readjustment
Benefits Act of 1966 (P.L. 89-358) and codified in Title 38, U.S.C., Chapter 34. In addition to
providing benefits to veterans, it provided benefits to active duty servicemembers to encourage
retention in the Armed Forces. The Veterans’ Readjustment Assistance Act of 1974 (P.L. 93-508)
created a short-lived veterans and dependents education loan program to cover educational costs
not provided for under the GI Bill. It was codified in Title 38, U.S.C., Chapter 36 before being
repealed in 1981.
Beginning with the Korean Conflict GI Bill, there has been much debate on the level of
educational assistance that should be provided to veterans and servicemembers. Some believed
that requiring individuals to make a monetary contribution in addition to their military service
would increase their sense of responsibility and purpose. Some believed that the educational
assistance benefits were a necessary compensation for compulsory service or reimbursement for
voluntary service. Some believed that high levels of assistance promote attrition from the
military. And some believed that the benefits are a necessary recruitment tool.
Congress allowed the compulsory military draft to expire on June 30, 1973. The educational
assistance programs enacted subsequently were designed to encourage recruitment and retention
of high-quality military personnel while still providing a considerable benefit to those who
choose to leave active duty military service. Since 1973 upon initial enactment of new GI Bills,
Congress has generally limited the approved programs of education to a more traditional college
education. As the programs mature, other types of education and training such as apprenticeships
and flight training wereare added.
Currently, there are several educational assistance programs available to veterans,
servicemembers, and their spouses and children. The oldest of these programs for veterans and
servicemembers is the Post-Vietnam Era GI Bill, enacted in 1976. About 10060 individuals are still
receiving benefits from this program, which provides educational assistance in direct proportion
to contributions deducted from servicemembers’ pay while on active duty. The Montgomery GI
Bill-Active Duty (MGIB-AD) requires most servicemembers to contribute an established amount,
although the eventual benefits are not related to the contribution. The Montgomery GI BillSelected Reserve (MGIB-SR) only provides educational assistance to those currently serving in
the Selected Reserve.1213 Because reliance on the Reserves and National Guard increased after
September 11, 2001, the Reserves Educational Assistance Program (REAP), enacted in 2005,
allows reservists to receive an increased educational assistance benefit in comparison to the
13
The Selected Reserve contains those units and individuals most essential to wartime missions. They generally
perform one weekend of training each month and two weeks of training each year for which they receive pay and
benefits.
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MGIB-SR after serving on active duty. The Survivors’ and Dependents’ Educational Assistance
(DEA) program, previously War Orphans’ Educational Assistance, provides benefits to the
spouses and children of servicemembers who, as a result of service, are seriously disabled, die, or
are detained. Finally in comparison to the MGIB-AD, the Post-9/11 GI Bill increased the
12
The Selected Reserve contains those units and individuals most essential to wartime missions. They generally
perform one weekend of training each month and two weeks of training each year for which they receive pay and
benefits.
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educational assistance benefit for all individuals with active duty service after September 10,
2001, in recognition that the United States has not been at peace since 2001.
The following sections describe the active programs in greater detail, in descending order based
on the number of current participants. A description of the inactive programs is provided in the
appendices.
Montgomery GI Bill—Active Duty (MGIB-AD)
House hearings examining the possible need for a new GI Bill in the early 1980s focused on the
difficulties the military was experiencing in recruiting and retaining a highly qualified allvolunteer force: active duty, Reserves, and National Guard.13 Although recruiting problems were
not uniformly distributed by branch, rank, grade, or military occupational specialty (MOS), some
suggested reinstating the draft. DOD was concerned about the high cost of recruiting and training
new servicemembers and the loss of experience and expertise when servicemembers leave the
service. Some witnesses argued for the elimination of the servicemember’s monetary contribution
toward educational benefits because retention rates were not appreciably increased by the prior
GI Bill, VEAP, which required a contribution from servicemembers. Only 20-25% of new recruits
contributed to VEAP, and 40% had disenrolled from the program to recoup their contribution,
which equaled 5% to 20% of the after-tax pay for some enlisted members. Despite a strong desire
to increase retention by allowing universal transfer of dollars of entitlement and the entitlement
period to spouses and children after ten years of service, such a proposal was deemed too
expensive.14
The Montgomery GI Bill-Active Duty (MGIB-AD)—originally called the All-Volunteer Force
Educational Assistance Program—was initially enacted as part of the Department of Defense
Authorization Act, 1985 (P.L. 98-525), as a three-year pilot program.15 The program was finally
codified in Title 38, U.S.C., Chapter 30. The original purpose of the permanent program was to
provide educational readjustment assistance and to aid in the recruitment and retention of highly
qualified personnel for both the active and reserve components of the Armed Forces. It was also
expected to promote and assist the All-Volunteer Force program and the Total Force Concept of
the Armed Forces16 based upon service on active duty or a combination of service on active duty
and in the Selected Reserve, including the National Guard. To ensure the recruitment of highly
13
Honorable Bob Edgar indicated in his prepared statement that “up to an estimated one-third of active duty male first
term enlistees from fiscal year 1976 to fiscal year 1978 failed to complete three years of initial service.” U.S. Congress,
House Committee on Armed Services, Subcommittee on Military Personnel and Compensation, New Educational
Assistance Program for the Military to Assist Recruiting, 97th Cong., 1st and 2nd sess., June 24, September 10, 16, 17,
24, 30, October 1, 7, 21, 28, November 17, 1981, and March 11, 1982, HRG-1981-ASH-0030 (Washington: GPO,
1982).
14
U.S. Congress, House Committee on Armed Services, Subcommittee on Military Personnel and Compensation, New
Educational Assistance Program for the Military to Assist Recruiting, 97th Cong., 1st and 2nd sess., June 24, September
10, 16, 17, 24, 30, October 1, 7, 21, 28, November 17, 1981, and March 11, 1982, HRG-1981-ASH-0030 (Washington:
GPO, 1982).
15
The New GI Bill Continuation Act (P.L. 100-48) permanently authorized the All-Volunteer Force Educational
Assistance Program and the Selected Reserve Component. It also changed the name of the program to the Montgomery
GI Bill.
16
Secretary of Defense Melvin Laird introduced the Total Force Concept of the Armed Forces in 1970 to reduce
military expenditures by calling on the Reserves and National Guard to serve an increased active duty role.
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capable individuals who were more likely to stay in the military, the program requires that all
individuals complete a high school diploma, its equivalent, or 12 credit hours of postsecondary
education in order to be eligible for benefits.17educational assistance benefit for all individuals with active duty service after September 10,
2001, in recognition that the United States has not been at peace since 2001.
The following sections describe the active programs in greater detail, in descending order based
on the number of current participants. A description of the inactive programs is provided in the
appendices.
Survivors’ and Dependents’ Educational Assistance
Program (DEA)
The Survivors’ and Dependents’ Educational Assistance Program (DEA) was first established by
the War Orphans’ Educational Assistance Act of 1956 (P.L. 84-634). The DEA program is
codified under Title 38 U.S.C., Chapter 35. The benefit allows eligible individuals to attain the
education they would have or maintain the standard of living they would have if the
servicemember had not become disabled or delayed,14 or died as a result of military service.
Eligible Individuals
Educational assistance benefits are available to
•
the children and surviving spouse of a veteran who died of a service-connected
disability;
•
the children of a veteran who died while having a disability evaluated as a total
permanent disability resulting from a service-connected disability;15
•
the children and spouse of a veteran or servicemember who has a total permanent
disability resulting from a service-connected disability;16
•
the children and spouse of an active duty servicemember who is, and has been for
more than 90 days, listed as missing in action, captured in the line of duty by a
hostile force, or forcibly detained or interned in the line of duty by a foreign
government or power; and
•
the surviving spouse of a veteran who died while having a disability evaluated as
a total permanent disability resulting from a service-connected disability, arising
out of active military, naval, or air service.
14
A servicemember is delayed if the person is listed as missing in action, captured in the line of duty, or forcibly
detained as a result of active duty service.
15
A total permanent disability is any disability rated total for the purposes of disability compensation, which is based
on an impairment reasonably certain to continue throughout the life of the disabled person.
16
Children of Commonwealth Army veterans and New Philippine Scouts who meet the requirements of serviceconnected disability or death are also eligible.
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Children must be under the age of 26 at the time of the above eligibility event. The military
service of the person who was disabled or delayed, or died must not have terminated under
dishonorable conditions. Children include acknowledged children born out of wedlock, children
adopted legally, stepchildren who are members of the eligible individual’s household, children of
any marital status, and unmarried children who became permanently incapable of self-support
before the age of 18. Neither the spouse nor child may receive educational assistance under DEA
while in the Armed Forces or if released under dishonorable conditions.
An individual who is eligible for both the Post-9/11 GI Bill Marine Gunnery Sergeant John David
Fry Scholarship (Fry Scholarship) and DEA benefits based on the death of the same parent must
elect the program from which to receive a benefit. The Fry Scholarship is available to the children
of individuals who, on or after September 11, 2001, die in the line of duty while serving on active
duty as a member of the Armed Forces.17
Eligible Programs of Education, Institutions, and Establishments
The eligible programs of education are
•
courses at an educational institution (see below for the definition) that lead to a
predetermined educational, vocational, or professional objective or objectives if
related to the same career (this includes undergraduate and graduate certificate
and degree programs);
•
a preparatory course for a test that is required or used for admission to an
institution of higher education or a graduate school;18
•
licensing or certification tests for a predetermined vocation or profession,
provided such tests and the licensing or credentialing organizations or entities
that offer such tests are approved;
•
national tests for admission to IHLs or graduate schools (such as the Scholastic
Aptitude Test (SAT));
•
national tests providing an opportunity for course credit at IHLs (such as the
Advanced Placement (AP) exam);
•
cooperative programs;
•
apprenticeship or other on-the-job training programs at a training establishment
(see below for the definition);
17
For more information on the Fry Scholarship, see CRS Report R42755, The Post-9/11 Veterans Educational
Assistance Act of 2008 (Post-9/11 GI Bill): Primer and Issues, by Cassandria Dortch.
18
The term institution of higher education (IHE) means either: (1) An educational institution located in a state that
admits as regular students only persons who have a high school diploma, or its recognized equivalent, or persons who
are beyond the age of compulsory school attendance in the state in which the educational institution is located; offers
postsecondary level academic instruction that leads to an associate or baccalaureate degree; and is empowered by the
appropriate state to grant such degrees, or in the absence of state law is accredited for such degree programs by a
recognized accrediting agency; or (2) an educational institution, not located in a state, that offers a course leading to an
undergraduate standard college degree or the equivalent and is recognized as an institution of higher education by the
secretary of education (or comparable official) of the country or other jurisdiction in which the educational institution is
located.
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.
•
secondary education for those without a high school diploma or its equivalent or
in preparation for postsecondary education;
•
specialized vocational courses required because of a mental or physical handicap;
and
•
special restorative training.19
The eligible programs of education must be approved by a state approving agency (SAA) or the
VA, or must be deemed approved by statutory provisions. SAAs are federally authorized state
entities that approve programs of education for the GI Bills. The VA provides some cost
reimbursement of salaries and travel for the SAAs.
Educational institutions are defined as
•
public or private elementary or secondary schools;
•
vocational, correspondence,20 business, normal, or professional schools;
•
colleges or universities;
•
scientific or technical institutions;
•
other institutions offering education for adults;
•
state-approved alternative teacher certification program providers;
•
private entities that offer courses toward the attainment of a license or certificate
generally recognized as necessary for a profession or vocation in a high
technology occupation; and
•
qualified providers of entrepreneurship courses.
A training establishment is defined as
•
an establishment providing apprentice or other on-the-job training;
•
an establishment providing self-employment on-the-job training consisting of
full-time training for a period of less than six months that is needed or accepted
for purposes of obtaining licensure to engage in a self-employment occupation or
required for ownership and operation of a franchise that is the objective of the
training;
•
a state board of vocational education;
•
a federal or state apprenticeship registration agency;
•
the sponsor of a program of apprenticeship; and
•
an agency of the federal government authorized to supervise such training.
19
Special restorative training is used to overcome, or lessen, the effects of a physical or mental disability that would
handicap an eligible person in the pursuit of a program of education.
20
Individuals in correspondence training usually receive lessons in the mail and have a certain amount of time to
complete and return them for a grade.
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Benefit Payments
Most DEA participants receive a monthly allowance. Special assistance is available to
educationally disadvantaged individuals. Additional payments are available for tutorial assistance,
licensing or certification tests, and national admissions and course credit tests.
For those children and spouses who may also be eligible for a VA-administered pension,21
compensation,22 or dependency and indemnity compensation,23 legislation bars some recipients
from accepting DEA and pension, compensation, or dependency and indemnity compensation. A
spouse, a child under 18 years of age, and a helpless child may receive DEA and pension,
compensation, or dependency and indemnity compensation concurrently. Once a child over 18
years of age begins receiving DEA, the child can no longer receive payment or increased rates, or
additional amounts of pension, compensation, or dependency and indemnity compensation based
on school attendance.24
Monthly Allowance
A monthly allowance for subsistence, tuition and fees, supplies, books, and equipment is paid
directly to recipients. Maximum monthly benefit amounts may be adjusted at any time by
Congress and are adjusted annually according to the consumer price index (all items, U.S. city
average). Effective October 1, 2014, individuals receive up to $1,018.00 monthly according to a
schedule based on full-time, three-quarter-time, and half-time institutional enrollment. Individuals
enrolled less than half-time at an institution receive no more than actual tuition and fees. For
individuals in apprenticeship or on-the-job training, the monthly allowance is $743.00, $557.00,
$367.00, and $186.00 for the first six months, second six months, third six months, and thereafter,
respectively.25 Individuals receive up to $819.00 monthly according to a schedule based on fulltime, three-quarter-time, and half-time farm cooperative training. Only spouses may pursue
education exclusively by correspondence, and they receive 55% of the institution’s established
charges for completed courses.26
Participants may choose to receive the monthly allowance in the form of an advance payment or
accelerated payment if they meet the following requirements:
21
Certain low-income dependent children of certain veterans may be eligible to receive a pension. For information on
VA-administered pension programs, see CRS Report RS22804, Veterans’ Benefits: Pension Benefit Programs, by
Umar Moulta-Ali and Carol D. Davis.
22
Disability compensation provides a monthly cash benefit to certain veterans who are at least 10% disabled from a
service-connected disability. For information on the VA-administered compensation program, see CRS Report R41405,
Veterans Affairs: Presumptive Service Connection and Disability Compensation, coordinated by Sidath Viranga
Panangala.
23
Certain surviving children of servicemembers killed while on active military duty may receive the monthly
dependency and indemnity compensation (DIC) cash payment while under the age of 18, or between 18 and 23 while a
student. For information on the VA-administered DIC program, see CRS Report R40757, Veterans’ Benefits:
Dependency and Indemnity Compensation (DIC) for Survivors, by Umar Moulta-Ali.
24
38 C.F.R. §21.3023.
25
For apprentice or on-the-job training, an individual’s entitlement period is reduced one month each time the
collective amount paid is equal to the full-time institutional monthly benefit. Individuals working/training fewer than
120 hours monthly have their payment and entitlement period usage proportionately reduced.
26
The individual’s entitlement period is reduced one month each time the collective amount paid is equal to $1,018.00.
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.
Advance Payments
An advance payment is the first partial and first full month of the monthly allowance and is
available to individuals who are planning to enroll more than half-time and who have not
received educational assistance benefits in 30 days or more. Advance payments are sent to the
educational institution for disbursal to the student within 30 days of the start of the academic
term.
Accelerated Payments
An accelerated payment of the monthly allowance is available for education leading to
employment in a high-technology occupation in a high-technology industry. If the costs of the
program of education are more than double the monthly assistance allowance to which the
individual would have been entitled, the individual may receive the lessor of 60% of the
program’s costs for the term or the individual’s remaining dollars of entitlement. The individual’s
entitlement period is reduced in proportion to the amount that the payment is to the monthly
assistance allowance to which the individual would have been entitled.
Special Assistance to the Educationally Disadvantaged
Special assistance to the educationally disadvantaged allows individuals who do not have a high
school diploma or its equivalent and who are in need of some secondary school preparation in
order to pursue a postsecondary education to receive a monthly educational assistance allowance.
Benefits do not reduce the basic entitlement period for the first five months. Individuals pursuing
a high school diploma may receive the lesser of actual tuition and fees or the full-time
institutional monthly rate.
Special Restorative Training
Special restorative training is available to overcome, or reduce, the effects of a manifest physical
or mental disability which would handicap a person (other than the spouse of a person delayed) in
the pursuit of a program of education. The entitlement period may be extended beyond 45 months
to accomplish the special restorative training. Individuals receive $1,018.00 monthly for fulltime27 special restorative training and an increased amount equal to the amount that the tuition
and fees for the training exceeds $315 monthly.28
Tutorial Assistance
An individual is entitled to payment for tutorial assistance, not to exceed $100 monthly and up to
a maximum of $1,200 over the course of the entitlement period. The individual must be enrolled
at least half-time, and the educational institution must certify as to the necessity and customary
nature of the cost. Entitlement is not charged for tutorial assistance under DEA.
27
28
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Full-time training is determined by the capacities of the individual. Only full-time restorative training is eligible.
An individual’s entitlement period is reduced one day for each $33.93 in increase.
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Licensing and Certification Test Fees
A fee of up to $2,000 may be reimbursed for each approved licensing or certification test as long
as the payment does not exceed the individual’s remaining DEA entitlement. The benefit is
available regardless of whether the individual passes the test. An individual’s entitlement period is
reduced one month for each amount paid that is equal to the monthly benefit otherwise payable to
such individual.
National Admissions and Course Credit Tests
An individual may receive reimbursement for a national test for admissions to an IHL and a
national test providing an opportunity for course credit at an IHL. An individual’s entitlement
period is reduced one month for each amount paid that is equal to the monthly benefit otherwise
payable to such individual.
Benefit Availability and Duration
Educational benefits may be paid to the spouse for 10 years from the date of eligibility or from
the date of VA notification of eligibility.29 If the servicemember dies on active duty, or total
permanent disability as a result of a service-connected disability is determined within three years
of discharge, the spouse may use the benefits for 20 years. Generally, educational benefits may be
paid to children after they achieve a high school diploma or its equivalent, or after they reach 18
years of age, but before they reach 26 years of age.30 Special restorative or specialized vocational
training may begin if the child is at least 14 years of age. Individuals are entitled to 45 months (or
the equivalent in part-time attendance) of educational and training benefits.31
Montgomery GI Bill—Active Duty (MGIB-AD)
House hearings examining the possible need for a new GI Bill in the early 1980s focused on the
difficulties the military was experiencing in recruiting and retaining a highly qualified allvolunteer force: active duty, Reserves, and National Guard.32 Although recruiting problems were
not uniformly distributed by branch, rank, grade, or military occupational specialty (MOS), some
suggested reinstating the draft. DOD was concerned about the high cost of recruiting and training
new servicemembers and the loss of experience and expertise when servicemembers leave the
service. Some witnesses argued for the elimination of the servicemember’s monetary contribution
toward educational benefits because retention rates were not appreciably increased by the prior
29
A spouse who is incapable of beginning education as a result of a physical or mental disability, active duty service,
or involuntary full-time National Guard duty may be granted an extension of the 10-year entitlement period.
30
There are several allowable exceptions. See 38 U.S. Code § 3512.
31
VA may provide special restorative training in excess of 45 months where an additional period of time is needed to
complete the training.
32
Honorable Bob Edgar indicated in his prepared statement that “up to an estimated one-third of active duty male first
term enlistees from fiscal year 1976 to fiscal year 1978 failed to complete three years of initial service.” U.S. Congress,
House Committee on Armed Services, Subcommittee on Military Personnel and Compensation, New Educational
Assistance Program for the Military to Assist Recruiting, 97th Cong., 1st and 2nd sess., June 24, September 10, 16, 17,
24, 30, October 1, 7, 21, 28, November 17, 1981, and March 11, 1982, HRG-1981-ASH-0030 (Washington: GPO,
1982).
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.
GI Bill, VEAP, which required a contribution from servicemembers. Only 20-25% of new recruits
contributed to VEAP, and 40% had disenrolled from the program to recoup their contribution,
which equaled 5% to 20% of the after-tax pay for some enlisted members. Despite a strong desire
to increase retention by allowing universal transfer of dollars of entitlement and the entitlement
period to spouses and children after ten years of service, such a proposal was deemed too
expensive.33
The Montgomery GI Bill-Active Duty (MGIB-AD)—originally called the All-Volunteer Force
Educational Assistance Program—was initially enacted as Title VII of the Department of Defense
Authorization Act, 1985 (P.L. 98-525), as a three-year pilot program.34 The program was finally
codified in Title 38, U.S.C., Chapter 30. The original purpose of the permanent program was to
provide educational readjustment assistance and to aid in the recruitment and retention of highly
qualified personnel for both the active and reserve components of the Armed Forces. It was also
expected to promote and assist the All-Volunteer Force program and the Total Force Concept of
the Armed Forces35 based upon service on active duty or a combination of service on active duty
and in the Selected Reserve, including the National Guard. To ensure the recruitment of highly
capable individuals who were more likely to stay in the military, the program requires that all
individuals complete a high school diploma, its equivalent, or 12 credit hours of postsecondary
education in order to be eligible for benefits.36
Eligible Individuals
Educational assistance benefits are available to individuals defined in four categories.
•
Category 1 individuals entered active-duty for the first time after June 30, 1985,
as well as Commissioned officers of the Public Health Service (PHS) and the
National Oceanic Atmospheric Association (NOAA). Category 1 individuals
must meet one of three service requirements. The first requires that individuals
serve a minimum of three continuous years on active duty, or two continuous
years if the initial obligated period of active duty was less than three years. The
second requires that individuals serve a minimum of 30 months on active duty, or
20 months if the initial obligated period of active duty was less than three years,
before being discharged with a service-connected disability, hardship, preexisting condition, certain reductions-in-force, a physical or mental condition that
did not result from the individual’s own willful misconduct, or for the
government’s convenience. The third requires that Selected Reservists and
33
U.S. Congress, House Committee on Armed Services, Subcommittee on Military Personnel and Compensation, New
Educational Assistance Program for the Military to Assist Recruiting, 97th Cong., 1st and 2nd sess., June 24, September
10, 16, 17, 24, 30, October 1, 7, 21, 28, November 17, 1981, and March 11, 1982, HRG-1981-ASH-0030 (Washington:
GPO, 1982).
34
The New GI Bill Continuation Act (P.L. 100-48) permanently authorized the All-Volunteer Force Educational
Assistance Program and the Selected Reserve Component. It also changed the name of the program to the Montgomery
GI Bill.
35
Secretary of Defense Melvin Laird introduced the Total Force Concept of the Armed Forces in 1970 to reduce
military expenditures by calling on the Reserves and National Guard to serve an increased active duty role.
36
U.S. Congress, House Committee on Armed Services, Subcommittee on Military Personnel and Compensation, New
Educational Assistance Program for the Military to Assist Recruiting, 97th Cong., 1st and 2nd sess., June 24, September
10, 16, 17, 24, 30, October 1, 7, 21, 28, November 17, 1981, and March 11, 1982, H.A.S.C. 97-45 (Washington: GPO,
1982).
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.
National Guard members serve two continuous years of honorable active duty
service upon first entry into the military after June 30, 1985, and serve a
minimum of four continuous years of service in the Reserves beginning within a
year of completing the active duty service. For reservists and National Guard
members, the active duty service period includes only duty under Title 10 U.S.C.
and certain full-time National Guard duty for the purpose of organizing,
administering, recruiting, instructing, or training the National Guard under Title
32 U.S.C. However, individuals who receive an officer’s commission after
December 31, 1976, following graduation from one of the service academies18academies37 or
following graduation as a Reserve Officer Training Corps (ROTC) scholarship
recipient are not eligible.19
38
•
Category 2 individuals had a remaining period of entitlement under the PostKorean Conflict GI Bill (see Appendix C) as of December 31, 1989, and were
on active duty after June 30, 1985.2039 Category 2 individuals exclude individuals
17
U.S. Congress, House Committee on Armed Services, Subcommittee on Military Personnel and Compensation, New
Educational Assistance Program for the Military to Assist Recruiting, 97th Cong., 1st and 2nd sess., June 24, September
10, 16, 17, 24, 30, October 1, 7, 21, 28, November 17, 1981, and March 11, 1982, H.A.S.C. 97-45 (Washington: GPO,
1982).
18
who receive an officer’s commission after December 31, 1976, following
graduation from one of the service academies or following graduation as a
Reserve Officer Training Corps (ROTC) scholarship recipient are not eligible.40
•
Category 3 individuals elected MGIB-AD before receiving an involuntary
separation, voluntary separation incentive, or special separation benefit.
•
Category 4 individuals are VEAP participants who either had a remaining period
of entitlement; were on active duty on October 9, 1996; or elected to transfer to
the MGIB-AD by October 9, 1997; and made the requisite $1,200 contribution.
VEAP participants who served on active duty from October 9, 1996, through
April 1, 2000; elected to transfer to the MGIB-AD by October 31, 2001; and
made a $2,700 contribution are also in Category 4. A small group of National
Guard members who first served on full-time National Guard active duty under
Title 32 U.S.C. between June 30, 1985, and November 29, 1989, were eligible to
make the requisite $1,200 contribution during an open period from October 9,
1996, to June 8, 1997.
37
The applicable service academies are the United States Military Academy (USMA), the United States Naval
Academy (USNA), the United States Air Force Academy (USAFA), or the Coast Guard Academy (USCGA).
1938
Reserve Officer Training Corps (ROTC) scholarship recipients are not eligible if they enter active duty before
October 1, 1996, and they are not eligible if they enter active duty after September 30, 1996, and received more than
$3,400 for each year as a scholarship recipient.
2039
Individuals eligible for the Post-Korean Conflict GI Bill who have been on continuous active duty since October 19,
1984, and served at least three years of continuous active duty after June 30, 1985, or were discharged or released from
active duty after June 30, 1985, for a service-connected disability or hardship, or were discharged for the government’s
convenience after serving a minimum of 30 months active duty after June 30, 1985, are also eligible to MGIB-AD
educational benefits. Category 2 individuals also include reservists eligible for the Post-Korean Conflict GI Bill who
serve two continuous years of honorable active duty service in the military after June 30, 1985, and who serve a
(continued...)
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who receive an officer’s commission after December 31, 1976, following
graduation from one of the service academies or following graduation as a
Reserve Officer Training Corps (ROTC) scholarship recipient are not eligible.21
•
Category 3 individuals elected MGIB-AD before receiving an involuntary
separation, voluntary separation incentive, or special separation benefit.
•
Category 4 individuals are VEAP participants who either had a remaining period
of entitlement; were on active duty on October 9, 1996; or elected to transfer to
the MGIB-AD by October 9, 1997; and made the requisite $1,200 contribution.
VEAP participants who served on active duty from October 9, 1996, through
April 1, 2000; elected to transfer to the MGIB-AD by October 31, 2001; and
made a $2,700 contribution are also in Category 4. A small group of National
Guard members who first served on full-time National Guard active duty under
Title 32 U.S.C. between June 30, 1985, and November 29, 1989, were eligible to
make the requisite $1,200 contribution during an open period from October 9,
1996, to June 8, 1997minimum of four continuous years of service in the Reserves immediately following the active duty service. Category 2
includes individuals eligible for the Post-Korean Conflict GI Bill who were not on active duty on October 19, 1984, but
re-enlisted and served three continuous years on active duty or were discharged or released for reasons similar to those
of other individuals eligible for the Post-Korean Conflict GI Bill.
40
Reserve Officer Training Corps (ROTC) scholarship recipients are not eligible if they enter active duty before
October 1, 1996, and they are not eligible if they enter active duty after September 30, 1996, and received more than
$3,400 for each year as a scholarship recipient.
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.
The active duty service period requirements exclude time assigned to an education or training
program similar to those offered to civilians unless assigned by the military full-time, exclude
time spent as a cadet or midshipman at one of the service academies, and exclude the initial 12week period of active duty for training in the National Guard and the Reserves. The active duty
service period requirements include time spent organizing, administering, recruiting, instructing,
or training the National Guard while on full-time Army National Guard or Air National Guard
duty and include time spent at a service academy or preparing to attend a service academy if the
individual fails and returns to active duty. Individuals in all categories must have completed a
high school diploma, its equivalent, or 12 semester hours in a program of education leading to a
standard college degree. Also, all individuals must continue on active duty or in the Reserves, as
appropriate; be discharged under fully honorable conditions; be placed on the retired or
temporary disability retired list; or be transferred to certain reserve components.
To become eligible for MGIB-AD benefits, Category 1 individuals must not decline the benefit in
writing, and must allow the first 12 months of their military pay to be reduced by $100 per
month.2241 This is in contrast to the VEAP, which required servicemembers to elect to participate by
making contributions. In certain circumstances, servicemembers who initially declined the benefit
were allowed to enroll in the program.2342 To discourage experienced personnel from leaving the
(...continued)
minimum of four continuous years of service in the Reserves immediately following the active duty service. Category 2
includes individuals eligible for the Post-Korean Conflict GI Bill who were not on active duty on October 19, 1984, but
re-enlisted and served three continuous years on active duty or were discharged or released for reasons similar to those
of other individuals eligible for the Post-Korean Conflict GI Bill.
21
Reserve Officer Training Corps (ROTC) scholarship recipients are not eligible if they enter active duty before
October 1, 1996, and they are not eligible if they enter active duty after September 30, 1996, and received more than
$3,400 for each year as a scholarship recipient.
22
military, servicemembers remaining in service are eligible to receive educational benefits after
serving two continuous years on active duty.
Eligible Programs of Education, Institutions, and Establishments
MGIB-AD benefits can be used to support students pursuing approved programs of education at a
variety of training establishments and educational institutions, including institutions of higher
learning (IHLs).43 The eligible programs of education are
•
courses at an educational institution that lead to a predetermined educational,
vocational, or professional objective or objectives if related to the same career
(this includes traditional undergraduate and graduate programs);
41
Selected Reservists may make a one-time lump-sum contribution or 12-monthly contributions totaling $1,200 after
completing two years of active duty service. In the event of an individual’s service-connected death while on active
duty, the designated beneficiary, surviving spouse, children, or parents will be reimbursed any contribution by the
servicemember that had not already been used.
2342
Servicemembers were allowed to withdraw their election to not enroll in the program during an open period between
December 1, 1988, and June 30, 1989; before being involuntarily separated; and before separating from the active
service with an honorable discharge and receiving certain voluntary separation incentives.
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military, servicemembers remaining in service are eligible to receive educational benefits after
serving two continuous years on active duty.
Eligible Programs of Education, Institutions, and Establishments
MGIB-AD benefits can be used to support students pursuing approved programs of education at a
variety of training establishments and educational institutions, including institutions of higher
learning (IHLs).24 The eligible programs of education are
•
courses at an educational institution (see below for the definition) that lead to a
predetermined educational, vocational, or professional objective or objectives if
related to the same career (this includes traditional undergraduate and graduate
programs);
•
courses required by the Administrator of the Small Business Administration as a
condition for obtaining financial assistance under the provisions of section 7(i)(1)
of the Small Business Act (15 U.S.C. 636(i)(1));
•
licensing or certification tests for a predetermined vocation or profession,
provided such tests and the licensing or credentialing organizations or entities
that offer such tests are approved;
•
courses offered by a qualified provider of entrepreneurship courses;
•
national tests for admission to IHLs or graduate schools (such as the Scholastic
Aptitude Test (SAT));
•
national tests providing an opportunity for course credit at IHLs (such as the
Advanced Placement (AP) exam);
•
a preparatory course for a test that is required or used for admission to an
institution of higher education or a graduate school;25
24
43
An institution of higher learning (IHL) is an institution offering postsecondary level academic instruction that leads
to an associate’s or higher degree if the school is empowered by the appropriate state education authority under state
law to grant an associate’s or higher degree, or in the absence of a state education authority, if the school is accredited
for degree programs by a recognized accrediting agency. Institutions of higher learning are also hospitals offering
educational programs at the postsecondary level and foreign educational institutions that offer courses leading to a
standard college degree, or the equivalent, and that are recognized as such by the secretary of education (or a
comparable official) of the country or other jurisdiction in which the institution is located. A standard college degree is
an associate’s or higher degree awarded by (1) an IHL that is accredited as a collegiate institution by a recognized
regional or national accrediting agency; (2) an IHL that is a “candidate” for accreditation as that term is used by the
regional or national accrediting agencies; or (3) an IHL upon completion of a course that is accredited by an agency
recognized to accredit specialized degree-level programs.
25
The term institution of higher education (IHE) means either: (i) An educational institution located in a state that
admits as regular students only persons who have a high school diploma, or its recognized equivalent, or persons who
are beyond the age of compulsory school attendance in the state in which the educational institution is located; offers
postsecondary level academic instruction that leads to an associate or baccalaureate degree; and is empowered by the
appropriate state to grant such degrees, or in the absence of state law is accredited for such degree programs by a
recognized accrediting agency; or (ii) an educational institution, not located in a state, that offers a course leading to an
undergraduate standard college degree or the equivalent and is recognized as an institution of higher education by the
secretary of education (or comparable official) of the country or other jurisdiction in which the educational institution is
located.
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•
full-time programs of apprentice or other on-the-job training at a training
establishment (see below for the definition), for individuals not on active duty;
•
cooperative programs26 for individuals not on active duty;
•
a refresher, remedial, or deficiency course;27
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.
•
courses required by the Administrator of the Small Business Administration as a
condition for obtaining financial assistance under the provisions of section 7(i)(1)
of the Small Business Act (15 U.S.C. 636(i)(1));
•
licensing or certification tests for a predetermined vocation or profession,
provided such tests and the licensing or credentialing organizations or entities
that offer such tests are approved;
•
courses offered by a qualified provider of entrepreneurship courses;
•
national tests for admission to IHLs or graduate schools (such as the Scholastic
Aptitude Test (SAT));
•
national tests providing an opportunity for course credit at IHLs (such as the
Advanced Placement (AP) exam);
•
a preparatory course for a test that is required or used for admission to an
institution of higher education or a graduate school;
•
full-time programs of apprentice or other on-the-job training at a training
establishment, for individuals not on active duty;
•
cooperative programs44 for individuals not on active duty;
•
a refresher, remedial, or deficiency course;45
•
preparatory or special education or training courses necessary to enable the
individual to pursue another approved program of education; and
•
a course for which the individual is receiving Tuition Assistance from DOD (see
the section entitled Tuition Assistance “Top-Up” Program).
The eligible programs of education must be approved by a state approving agency (SAA) or the
VA, or must be deemed approved by statutory provisions. SAAs are federally authorized state
entities that approve programs of education for the GI Bills. The VA provides some cost
reimbursement of salaries and travel for the SAAs.
Educational institutions are defined as
•
public or private elementary or secondary schools;
•
vocational, correspondence, business, normal, or professional schools;
•
colleges or universities;
•
scientific or technical institutions;
•
other institutions offering education for adults;
•
state-approved alternative teacher certification program providers;
•
private entities that offer courses toward the attainment of a license or certificate
generally recognized as necessary for a profession or vocation in a high
technology occupation; and
•
qualified providers of entrepreneurship courses.
A training establishment is defined as
•
an establishment providing apprentice or other on-the-job training;
•
an establishment providing self-employment on-the-job training consisting of
full-time training for a period of less than six months that is needed or accepted
for purposes of obtaining licensure to engage in a self-employment occupation or
26Benefit Payments
Several types of benefit payments are available to MGIB-AD participants depending on the type
of education and training, other benefits received, and decisions made while serving in the
Armed Forces. MGIB-AD participants, like DEA participants, are eligible for benefit payments
for licensing or certification tests, national tests for admission to an IHL, and a national test
providing an opportunity for course credit at an IHL.
44
A cooperative program is a full-time program of education, which consists of institutional courses and alternate
phases of training in a business or industrial establishment with the training in a business or industrial establishment
being strictly supplemental.
2745
A refresher course is a course at the elementary or secondary level that reviews or updates material previously
covered in a course that has been satisfactorily completed, or a course which permits an individual to update knowledge
and skills or be instructed in the technological advances which have occurred in the individual’s field of employment
during and since the period of the individual’s active military service. A remedial course is a course designed to
overcome a deficiency at the elementary or secondary level in a particular area of study, or a handicap, such as in
speech. A deficiency course is any secondary level course or subject not previously completed satisfactorily, which is
specifically required for pursuit of a postsecondary program of education.
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required for ownership and operation of a franchise that is the objective of the
training;
•
a state board of vocational education;
•
a federal or state apprenticeship registration agency;
•
the sponsor of a program of apprenticeship; and
•
an agency of the federal government authorized to supervise such training.
Benefit Payments
Several types of benefit payments are available to MGIB-AD participants depending on the type
of education and training, other benefits received, and decisions made while serving in the
Armed Forces.
Monthly Allowance
Most MGIB-AD participants receive a monthly allowance for subsistence, tuition and fees,
supplies, books, and equipment. The monthly allowance is paid directly to recipients. Beginning
in FY2010, and unless Congress changes the amount, the maximum monthly benefit amount is
adjusted annually based on the annual percentage increase in the average cost of undergraduate
tuition in the United States, as determined by the National Center for Education Statistics
(NCES).2846 Effective October 1, 20122014, veterans may receive up to $1,564717.00 monthly for full-time
training.2947 A reduced allowance is provided for less than full-time training and for those who
served less than three continuous years on active duty. Individuals on active duty and those
training less than half-time receive actual tuition and fees or the monthly allowance, whichever is
less. For an individual in apprenticeship or on-the-job training, the monthly allowance is 75%,
55%, and 35% of the monthly benefit otherwise payable to that individual for the first six months,
second six months, and thereafter, respectively.3048 Individuals in cooperative training receive 80%
of the monthly allowance.3149 Individuals pursuing education exclusively by correspondence
receive 55% of the institution’s established charges for completed courses, and individuals
28
pursuing education consisting exclusively of flight training receive 60% of the institution’s
established charges for completed courses.50 MGIB-AD participants, like DEA participants, may
choose to receive the monthly allowance in the form of an advance payment or accelerated
payment.
Tuition Assistance “Top-Up” Program
The Tuition Assistance “Top-Up” program was established under the Floyd D. Spence National
Defense Authorization Act for Fiscal Year 2001 (P.L. 106-398) to promote retention. Through
Tuition Assistance (TA) programs, military service branches may pay a certain amount of tuition
and expenses for the off-duty education and training of active duty personnel. Under Tuition
Assistance Top-Up, MGIB-AD servicemembers who have served for at least two years on active
duty and who are approved for TA benefits may elect to receive MGIB-AD benefits to pay for
education and training expenses above the amount paid by their military service branch. Use of
46
Prior to FY2010, the maximum monthly benefit amounts could be adjusted at any time by Congress or be adjusted
annually according to the consumer price index for all urban consumers (CPI-U).
2947
The benefit payment has been increased several times since the program’s enactment. When the MGIB-AD program
was enacted in 1985, the maximum monthly benefit was $300. The maximum monthly benefit was increased to $400
by the Veterans’ Benefits Act of 1992 (P.L. 102-568), to $528 by the Transportation Equity Act for the 21st Century
(P.L. 105-178) in 1998, and to $650 by the Veterans Benefits and Health Care Improvement Act of 2000 (P.L. 106419). The Veterans Education and Benefits Expansion Act of 2001 (P.L. 107-103) provided three increases: $800 for
months beginning on or after January 1, 2002; $900 for months occurring during FY2003; and $985 for months
occurring during FY2004. For FY2009, the monthly benefit amount was increased to $1,321 by the Supplemental
Appropriations Act, 2008 (P.L. 110-252).
3048
For apprentice or on-the-job training, an individual’s entitlement period is respectively reduced 0.75, 0.55, or 0.35
months for each month of educational assistance received, depending on the payment. Individuals working/training
fewer than 120 hours monthly have their payment and entitlement period usage proportionately reduced.
31
The individual’s entitlement period is reduced at 0.8 months for each month of cooperative educational assistance
received.
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pursuing education consisting exclusively of flight training receive 60% of the institution’s
established charges for completed courses.32
Tuition Assistance “Top-Up” Program
The Tuition Assistance “Top-Up” program was established under the Floyd D. Spence National
Defense Authorization Act for Fiscal Year 2001 (P.L. 106-398) to promote retention. Through
Tuition Assistance (TA) programs, military service branches may pay a certain amount of tuition
and expenses for the education and training of active duty personnel. Under Tuition Assistance
Top-Up, MGIB-AD servicemembers who have served for at least two years on active duty and
who are approved for TA benefits may elect to receive MGIB-AD benefits to pay for education
and training expenses above the amount paid by their military service branch. Use of the Top-Up
benefit reduces the individuals’ MGIB-AD entitlement period at a rate determined by dividing the
amount of the Top-Up payment by the individuals’ full-time monthly rate.
Advance Payments
An advance payment is the first partial and first full month of the monthly allowance and is
available to individuals who are planning to enroll more than half-time and who have not
received educational assistance benefits in 30 days or more. Advance payments are sent to the
educational institution for disbursal to the student within 30 days of the start of the academic
term.
Accelerated Payments
Individuals may receive an accelerated payment of the monthly allowance for education leading
to employment in a high technology occupation in a high technology industry. If the costs of the
program of education are more than double the monthly assistance allowance to which the
individual would have been entitled, the individual may receive the lesser of 60% of the
program’s costs for the term or the individual’s remaining dollars of entitlement. The individual’s
entitlement period is reduced in proportion to the amount that the payment is to the monthly
assistance allowance to which the individual would have been entitled.
Tutorial Assistance
An individual is entitled to payment for tutorial assistance, not to exceed $100 monthly and up to
a maximum of $1,200 over the course of the entitlement period. The individual must be enrolled
at least half-time, and the educational institution must certify as to the necessity and customary
nature of the cost. The first $600 does not reduce the entitlement period; however, the subsequent
$600 reduces the entitlement period by one month for each amount paid, which is equal to the
monthly benefit otherwise payable to that individual.
32
49
The individual’s entitlement period is reduced at 0.8 months for each month of cooperative educational assistance
received.
50
The individual’s entitlement period is reduced one month for each educational assistance payment that equals the
monthly assistance allowance to which the individual would have been entitled. Individuals may only receive payment
for the minimum number of solo flying hours required by the Federal Aviation Administration for the desired flight
rating or certification.
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Licensing and Certification Test Fees
A fee of up to $2,000 may be reimbursed for each approved licensing or certification test as long
as the payment does not exceed the individual’s remaining MGIB-AD entitlement. The benefit is
available regardless of whether the individual passes the test. An individual’s entitlement period is
reduced one month for each amount paid that is equal to the monthly benefit otherwise payable to
such individual.
National Admissions and Course Credit Tests
An individual may receive reimbursement for a national test for admissions to an IHL and a
national test providing an opportunity for course credit at an IHL. An individual’s entitlement
period is reduced one month for each amount paid that is equal to the monthly benefit otherwise
payable to such individual.
the Top-Up benefit reduces the individuals’ MGIB-AD entitlement period at a rate determined by
dividing the amount of the Top-Up payment by the individuals’ full-time monthly rate.
Tutorial Assistance
Unlike DEA, the first $600 does not reduce the entitlement period; however, any amount in
excess of $600 reduces the individual’s entitlement period by one month for each amount paid
that is equal to the amount of monthly educational assistance the individual is otherwise eligible
to receive for full-time pursuit of a residence course.
Supplemental Assistance
Military service branches use supplemental assistance for additional years of service and
supplemental assistance for critical skills (Kickers) to recruit and retain highly capable
individuals in the armed forces. The promised and expected benefit amount is deposited into the
DOD Educational Benefits Trust Fund until the individuals take advantage of the benefit, at
which time the benefit amount is transferred to the VA for payment.3351 The supplemental
assistance, up to $950, is added to the individuals’ monthly housing allowance. The amount may
be reduced in proportion to the enrollment rate and the type of training.
Supplemental assistance for additional years of service may be offered to either an individual in
the active component who agrees to remain on active duty for at least five additional continuous
years, or to an individual in the Selected Reserve who agrees to serve at least two additional
consecutive years on active duty and at least four additional consecutive years in the Selected
Reserve.3452 Supplemental assistance for critical skills may be offered either to recruit into the
regular armed forces an enlistee with critical skills or to gain agreement from an individual with
critical skills to serve in the Selected Reserve after separating honorably from the regular Armed
Forces. A critical skill is a skill or specialty in which there is a critical shortage or for which it is
difficult to recruit or, in the case of critical units, retain personnel.
Increase for Post-Korean Conflict GI Bill-Eligible Participants
Category 2 individuals receive an increase to the monthly allowance, depending on the type of
training, rate of pursuit, and number of dependents, for as many months as the individual has
remaining Post-Korean Conflict GI Bill entitlement. For example, effective October 1, 20122014, an
individual in full-time institutional training with two dependents may receive an additional $255
monthly for a total monthly allowance of $1,819.
33a total monthly
allowance of $1,972.00.
Buy Up Program
Servicemembers may also contribute up to an additional $600 while on active duty in $20
monthly increments and receive up to an additional $5 monthly for each $20 contributed over the
51
Funding may also be paid from Department of Homeland Security (DHS) appropriations.
Upon completing the additional years of active duty service and Selected Reserve service, if applicable, the
individual must remain on active duty; be discharged honorably; be placed on the retired or temporary disability retired
list, or be transferred to the Reserves.
3452
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Buy Up Program
Servicemembers may also contribute up to an additional $600 while on active duty in $20
monthly increments and receive up to an additional $5 monthly for each $20 contributed over the
life of their entitlement period under what is known as the $600 Buy Up Program. In other words,
each dollar contributed by an individual is matched by the federal government with an additional
$9 in benefits. This benefit could equal up to $5,400 over 36 months for a $600 investment.
Benefit Availability and Duration
For members of the active component, no educational benefits under the MGIB-AD can be paid
after the delimiting date─more than ten years after discharge or release from active duty. For
members of the Selected Reserve, no educational benefits under the MGIB-AD can be paid more
than ten years after completing the required four-year Selected Reserve duty.3553 Most individuals
are entitled to 36 months (or the equivalent in part-time attendance) of educational assistance.
Category 1 active duty servicemembers discharged or released (other than for the convenience of
the government) before serving the minimum two or three years of active duty service are entitled
to educational benefits for a period equal to one month for each month of active duty service, but
no more than 36 months. Reservists are entitled to one month for each month of active duty
service and one month for each four months served in the Selected Reserves, but no more than 36
months.3654
MGIB-AD Death Benefit
The MGIB-AD death benefit is available to certain beneficiaries of an MGIB-AD-eligible
individual and to certain beneficiaries of an individual who served after June 30, 1985, and who
died for service-connected reasons while on active duty or who died for service-connected
reasons within one year of discharge or release from active duty. The beneficiaries are the
beneficiaries of the individual’s Servicemembers’ Group Life Insurance policy. If the life
insurance beneficiaries are no longer living, the death benefit is paid to the surviving spouse. If
the spouse is no longer living, the death benefit is split between the individual’s surviving
children. If the children are no longer living, the death benefit is split between the individual’s
surviving parents. The benefit, up to $1,200, is equal to the amount the servicemember
35
contributed in order to be eligible for the MGIB-AD less the proportion of entitlement used by the
servicemember.
53
There are exceptions to the ten-year benefit availability period. Veterans who were ineligible for the program on
discharge or release but whose discharge status was later amended to make them eligible for the program are allowed
benefits for up to 10 years after the discharge status was amended. The 10-year period excludes periods detained by a
foreign government or power and any recovery period in a hospital. Veterans who were incapable of beginning
education as a result of a physical or mental disability can be granted an extension for the period of incapacity.
Individuals who were the primary caregiver according to the family caregiver assistance program (38 U.S.C.
§1720G(a)) after July 31, 2011, can extend the 10-year period of benefit availability for as long as they were incapable
of pursuing their chosen program of education as a result of being the primary caregiver. The 10-year period is reduced
for individuals eligible for the Post-Korean Conflict GI Bill by the length of time not on active duty service between
January 1, 1977, and October 18, 1984. Also, the 10-year period begins after discharge or release from active duty or
on January 1, 1990, whichever is later, for Post-Korean Conflict GI Bill participants who were on active duty after
October 18, 1984. For Post-Korean Conflict GI Bill participants who were not on active duty on October 19, 1984, the
10-year period begins on December 27, 2001.
3654
Reservists who are discharged or released with a service-connected disability or pre-existing medical condition
during the four-year Reserve period are eligible for 36 months of educational assistance.
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contributed in order to be eligible for the MGIB-AD less the proportion of entitlement used by the
servicemember.
Transferability to Dependents
Each DOD service branch is authorized to allow eligible individuals to transfer up to 18 months
of their MGIB-AD educational assistance benefits to family members. Both the Army and Air
Force offered pilot programs to test how effective transferability could be in increasing the
retention of highly qualified, specialized, and experienced servicemembers. Both branches have
discontinued the pilots. Therefore, transferability is not currently available to new individuals
under the MGIB-AD.
Montgomery GI Bill—Selected Reserve (MGIB-SR)
The Montgomery GI Bill-Selected Reserve55 (MGIB-SR), passed under section 705 of the same
legislation as the MGIB-AD, is a Title 10 U.S.C. DOD program administered by the VA.56 Each
service component of the Selected Reserve is required to establish an educational assistance
program to encourage membership in the Selected Reserve: Army, Navy, Air Force, Marine
Corps, and Coast Guard Reserve; Army National Guard; and the Air National Guard. The benefit
is an incentive to stay in the Reserves and was established in recognition of the fact that many
states offer educational assistance to reservists.57
Eligible Individuals
The MGIB-SR program is available to individuals serving in the Selected Reserve, including the
National Guard, who agree to a six-year service obligation. Educational assistance benefits are
available to Selected Reservists who enlist, re-enlist, or extend an enlistment for six years after
June 30, 1985, and reserve officers who agree to serve an additional six years above any existing
obligation.58under the MGIB-AD.
Survivors’ and Dependents’ Educational Assistance
Program (DEA)
The Survivors’ and Dependents’ Educational Assistance Program (DEA) was first established by
the War Orphans’ Educational Assistance Act of 1956 (P.L. 84-634). The DEA program is
codified under Title 38 U.S.C., Chapter 35. The benefit allows eligible individuals to attain the
education they would have or maintain the standard of living they would have if the
servicemember had not become disabled, delayed,37 or died as a result of military service.
Eligible Individuals
Educational assistance benefits are available to the child or spouse of a person who
•
died of a service-connected disability resulting from service in the active
military;
•
has a total permanent disability38 as a result of a service-connected disability that
occurred while in the active military;
•
died while the service-connected disability that was the result of active military
service was being evaluated;39
•
has been listed as missing in action, captured in the line of duty, or forcibly
detained as a result of active duty military service; or
•
is hospitalized or receiving outpatient medical care, services, or treatment as a
result of a total permanent disability incurred in or aggravated by service in the
active military and who is likely to be discharged or released as a result of the
disability.
37
A servicemember is delayed if the person is listed as missing in action, captured in the line of duty, or forcibly
detained as a result of active duty service.
38
A total permanent disability is any disability rated total for the purposes of disability compensation, which is based
on an impairment reasonably certain to continue throughout the life of the disabled person.
39
Children of Commonwealth Army veterans and New Philippine Scouts who meet the requirements of serviceconnected disability or death are also eligible.
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The military service of the person who was disabled, delayed, or died must not have terminated
under dishonorable conditions. Children include acknowledged children born out of wedlock,
children adopted legally, stepchildren who are members of the eligible individual’s household,
children of any marital status, and unmarried children who became permanently incapable of selfsupport before the age of 18. Neither the spouse nor child may receive educational assistance
under DEA while in the Armed Forces or if released under dishonorable conditions.
An individual who is eligible for both the Post-9/11 GI Bill Marine Gunnery Sergeant John David
Fry Scholarship (Fry Scholarship) and DEA benefits based on the death of the same parent must
elect the program from which to receive benefit. The Fry Scholarship is available to the children
of individuals who, on or after September 11, 2001, die in the line of duty while serving on active
duty as a member of the Armed Forces.40
Eligible Programs of Education, Institutions, and Establishments
The eligible programs of education are
•
courses at an educational institution that lead to a predetermined educational,
vocational, or professional objective or objectives if related to the same career
(this includes traditional undergraduate and graduate programs);
•
a preparatory course for a test that is required or used for admission to an
institution of higher education or a graduate school;
•
licensing or certification tests for a predetermined vocation or profession,
provided such tests and the licensing or credentialing organizations or entities
that offer such tests are approved;
•
national tests for admission to IHLs or graduate schools (such as the Scholastic
Aptitude Test (SAT));
•
national tests providing an opportunity for course credit at IHLs (such as the
Advanced Placement (AP) exam);
•
cooperative programs;
•
programs of apprentice or other on-the-job training at a training establishment;
•
secondary education for those without a high school diploma or its equivalent or
in preparation for postsecondary education;
•
specialized vocational courses required because of a mental or physical handicap;
and
•
special restorative training.41
40
For more information on the Fry Scholarship, see CRS Report R42755, The Post-9/11 Veterans Educational
Assistance Act of 2008 (Post-9/11 GI Bill): Primer and Issues, by Cassandria Dortch.
41
Special restorative training is used to overcome, or lessen, the effects of a physical or mental disability that would
handicap an eligible person in the pursuit of a program of education.
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Benefit Payments
Most DEA participants receive a monthly allowance. Additional assistance is available to
disadvantaged individuals. Similar to the MGIB-AD, additional payments are available for
certain purposes, and the monthly allowance may be increased under certain circumstances (see
Table 2).
For those children and spouses who may also be eligible for a VA-administered pension,42
compensation,43 or dependency and indemnity compensation,44 the legislation bars some
recipients from accepting DEA educational assistance and pension, compensation, or dependency
and indemnity compensation. A spouse, a child under 18 years of age, and a helpless child may
receive DEA educational assistance and pension, compensation, or dependency and indemnity
compensation concurrently. Once a child over 18 years of age begins receiving DEA educational
assistance, the child can no longer receive payment or increased rates, or additional amounts of
pension, compensation, or dependency and indemnity compensation based on school
attendance.45
Monthly Allowance
A monthly allowance for subsistence, tuition and fees, supplies, books, and equipment is paid
directly to recipients. Maximum monthly benefit amounts may be adjusted at any time by
Congress and are adjusted annually according to the consumer price index (all items, U.S. city
average). Effective October 1, 2012, individuals receive up to $987.00 monthly according to a
schedule based on full-time, three-quarter-time, and half-time institutional enrollment. Individuals
enrolled less than half-time but more than quarter-time at an institution receive the lesser of actual
tuition and fees or $491.00 monthly, and individuals enrolled quarter-time or less receive the
lesser of actual tuition and fees or $246.75 monthly. Individuals receive up to $794.00 monthly
according to a schedule based on full-time, three-quarter-time, and half-time farm cooperative
training. Only spouses may pursue education exclusively by correspondence, and they receive
55% of the institution’s established charges for completed courses.46 For individuals in
apprenticeship or on-the-job training, the monthly allowance is $720.00, $540.00, $356.00, and
$180.00 for the first six months, second six months, third six months, and thereafter,
respectively.47
42
Certain low-income dependent children of certain veterans may be eligible to receive a pension. For information on
VA-administered pension programs, see CRS Report RS22804, Veterans’ Benefits: Pension Benefit Programs, by
Christine Scott and Carol D. Davis.
43
Disability compensation provides a monthly cash benefit to certain veterans who are at least 10% disabled from a
service-connected disability. For information on the VA-administered compensation program, see CRS Report R41405,
Veterans Affairs: Presumptive Service Connection and Disability Compensation, coordinated by Sidath Viranga
Panangala.
44
Certain surviving children of servicemembers killed while on active military duty may receive the monthly
dependency and indemnity compensation (DIC) cash payment while under the age of 18, or between 18 and 23 while a
student. For information on the VA-administered DIC program, see CRS Report R40757, Veterans’ Benefits:
Dependency and Indemnity Compensation (DIC) for Survivors, by Christine Scott.
45
38 C.F.R. §21.3023.
46
The individual’s entitlement period is reduced one month each time the collective amount paid is equal to $987.00.
47
For apprentice or on-the-job training, an individual’s entitlement period is reduced one month each time the
collective amount paid is equal to the full-time institutional monthly benefit. Individuals working/training fewer than
120 hours monthly have their payment and entitlement period usage proportionately reduced.
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Special Assistance to the Educationally Disadvantaged
Special assistance to the educationally disadvantaged allows individuals who do not have a high
school diploma or its equivalent and who are in need of some secondary school preparation in
order to pursue a postsecondary education to receive a monthly educational assistance allowance.
Benefits do not reduce the basic entitlement period for the first five months. Individuals pursuing
a high school diploma may receive the lesser of actual tuition and fees or the full-time
institutional monthly rate.
Special Restorative Training
Special restorative training is available to overcome, or reduce, the effects of a manifest physical
or mental disability which would handicap a person (other than the spouse of a person delayed) in
the pursuit of a program of education. The entitlement period may be extended beyond 45 months
to accomplish the special restorative training. Individuals receive $987 monthly for full-time48
special restorative training and an increased amount equal to the amount that the tuition and fees
for the training exceeds $305 monthly.49
Benefit Availability and Duration
Educational benefits may be paid to the spouse for ten years from the date of death of the veteran
or from the date of VA notification of eligibility due to the veteran’s condition.50 If the
servicemember dies on active duty, or total permanent disability as a result of a service-connected
disability is determined within three years of discharge, the spouse may use the benefits for 20
years. Educational benefits may be paid to children after they achieve a high school diploma or its
equivalent, or after they reach 18 years of age, but before they reach 26 years of age.51 Individuals
are entitled to 45 months (or the equivalent in part-time attendance) of educational and training
benefits.
Montgomery GI Bill—Selected Reserve (MGIB-SR)
The Montgomery GI Bill-Selected Reserve52 (MGIB-SR), passed under the same legislation as
the MGIB-AD, is a Title 10 U.S.C. DOD program administered by the VA.53 Each service
48
Full-time training is determined by the capacities of the individual. Only full-time restorative training is eligible.
An individual’s entitlement period is reduced one day for each $32.90 in increase.
50
A spouse who is incapable of beginning education as a result of a physical or mental disability may be granted an
extension of the 10-year entitlement period.
51
There are allowable exceptions. The VA may make an exception for a child who is under 18 years of age and whose
parent dies or has a total permanent disability as a result of a service-connected disability or has been delayed. The VA
may allow eight years of eligibility to a child whose parent dies or has a total permanent disability as a result of a
service-connected disability; may allow eight years of eligibility up to age 31 to a child whose parent has been delayed
or after his/her own discharge or release from the Armed Forces; and may allow completion of a program of education
suspended due to conditions beyond the child’s control. A child who suspends a program of education or who is unable
to complete the program during the benefit availability period because the child acted as a primary caregiver according
to the family caregiver assistance program (38 U.S.C. §1720G(a)) after July 31, 2011, can extend the child’s
entitlement period for as long as the suspension or until age 31, whichever is earlier.
52
Members of the Selected Reserve are generally required to participate in at least 48 scheduled drills or training
(continued...)
49
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component of the Selected Reserve is authorized to establish an educational assistance program to
encourage membership in the Selected Reserve: Army, Navy, Air Force, Marine Corps, and Coast
Guard Reserve; Army National Guard; and the Air National Guard. The benefit is an incentive to
stay in the Reserves and was established in recognition of the fact that many states offer
educational assistance to reservists.54
Eligible Individuals
The MGIB-SR program is available to individuals serving in the Selected Reserve, including the
National Guard, who agree to a six-year service obligation. Educational assistance benefits are
available to Selected Reservists who enlist, re-enlist, or extend an enlistment for six years after
June 30, 1985, and reserve officers who agree to serve an additional six years above any existing
obligation.55 The reservists also have to complete the initial period of active duty for training,
complete 180 days of service in the Selected Reserve, have a high school diploma or its
equivalent, and satisfactorily meet the necessary training requirements of the Selected Reserve.
Individuals who fail to satisfactorily meet the training requirements of the Selected Reserve may
be ordered to active duty or required to repay some or all of the educational assistance including
interest. The service requirement excludes full-time active duty or full-time National Guard duty
for the purpose of organizing, administering, recruiting, instructing, or training the reserve
components in a position which is included in the end strength.56
Eligible Programs of Education, Institutions, and Establishments
The eligible programs of education, educational institutions, and training establishments are the
same as under the MGIB-AD.
Benefit Payments
Most MGIB-SR participants receive a monthly allowance. Similar to the MGIB-AD, additional
payments are available for certain purposes, and the monthly allowance may be increased under
certain circumstances (see Table 2).
The educational assistance allowance, paid directly to recipients, is lower than that under the
MGIB-AD. Many states offer educational benefits to National Guard members. Reservists called
to active duty for extended periods may be eligible for increased benefits under the MGIB-AD,
Reserve Educational Assistance Program (discussed later), or Post-9/11 GI Bill. Maximum
(...continued)59
55
Members of the Selected Reserve are generally required to participate in at least 48 scheduled drills or training
periods during each year and serve on active duty for training for at least 14 days annually. See CRS Report RL30802,
Reserve Component Personnel Issues: Questions and Answers, by Lawrence Kapp and Barbara Salazar Torreon.
56.
53
The MGIB-SR program is codified under Title 10 U.S.C., Chapter 1606 (10 U.S.C. §16131 et seq.).
5457
U.S. Congress, House Committee on Armed Services, Subcommittee on Military Personnel and Compensation, New
Educational Assistance Program for the Military To Assist Recruiting, 97th Cong., 1st sess., June 24, 1981, HRG-1981ASH-0030, p. 70.
5558
Individuals receiving financial assistance under the Senior Reserve Officers’ Training Corps are not eligible.
5659
Section 115(a) of Title 10 U.S.C. authorizes the number of military members in every branch and component. This
number is known as end strength.
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.
Eligible Programs of Education, Institutions, and Establishments
The eligible programs of education, educational institutions, and training establishments are the
same as under the MGIB-AD.60
Benefit Payments
Most MGIB-SR participants receive a monthly allowance. Similar to the MGIB-AD, additional
payments are available for certain purposes, and the monthly allowance may be increased under
certain circumstances (see Table 2).
The educational assistance allowance, paid directly to recipients, is lower than that under the
MGIB-AD. Many states offer educational benefits to National Guard members. Reservists called
to active duty for extended periods may be eligible for increased benefits under the MGIB-AD,
Reserve Educational Assistance Program (discussed later), or Post-9/11 GI Bill. Maximum
monthly benefit amounts may be adjusted at any time by Congress and are adjusted annually
according to the consumer price index for all urban consumers (CPI-U). Effective October 1,
20122014, reservists receive up to $356367.00 monthly according to a schedule based on full-time, threequarter-time, half-time, and less-than-half-time enrollment. Individuals enrolled less-than-halftime who are also eligible for DOD tuition assistance cannot receive MGIB-SR benefits. MGIBSR participants are not eligible for Tuition Assistance Top-Up. For an individual in apprenticeship
or on-the-job training, the monthly allowance is 75%, 55%, and 35% of the monthly benefit
otherwise payable to that individual for the first six months, second six months, and thereafter,
respectively.5761 Individuals pursuing education exclusively by correspondence receive 55% of the
institution’s established charges for completed courses, and individuals pursuing education
consisting exclusively of flight training receive 60% of the institution’s established charges for
completed courses.5862
Benefit Availability and Duration
Since the obligatory service of six years is the same for all reservists, the duration of benefits
under MGIB-SR is the same for all reservists—36 months (or the equivalent for part-time
educational assistance). In general, no educational benefits can be paid after separation from the
Selected Reserve unless the separation is involuntary or the result of a disability.59
Transferability to Dependents
Each DOD service branch is authorized to allow eligible individuals to transfer their MGIB-SR
educational assistance benefits to family members, but no branch currently offers such a program.
Reserve Educational Assistance Program (REAP)
The Reserve Educational Assistance Program (REAP) was enacted by the Ronald W. Reagan
63
60
Effective August 1, 2014, section 542 of the National Defense Authorization Act for FY2005 (P.L. 108-375). It is codified in Title 10 U.S.C.,
Chapter 1607.60 Passage of the program was a direct reaction to the increased number and length
of calls to active duty of reservists that occurred as a result of operations in Afghanistan and Iraq.
Reservists must serve at least two continuous years on active duty to receive the MGIB-AD, and
the benefits under the MGIB-SR are lower than under the MGIB-AD. REAP sought to provide
reservists with benefits proportional to their active duty service and commensurate with the
benefits of the regular Armed Forces.
57Fiscal Year 2014 (P.L. 113-66)
limits programs of education to eligible programs at Title IV-participating institutions of higher education, as defined in
the Higher Education Act; licensure or certification programs that meet state requirements; and state approved or
licensed programs leading to state licensure or certification.
61
For apprenticeship or on-the-job training, an individual’s entitlement period is respectively reduced 0.75, 0.55, or
0.35 months for each month of educational assistance, depending on the payment. Individuals working/training fewer
than 120 hours monthly have their payment and entitlement period usage proportionately reduced.
5862
The entitlement period is reduced one month for every amount paid that is equal to the regular full-time monthly
allowance. Individuals may only receive payment for the minimum number of solo flying hours required by the Federal
Aviation Administration for the desired flight rating or certification.
5963
Educational assistance would not end on separation if it was an involuntary separation or resulted from a disability
that was not the result of the individual’s own willful misconduct, the inactivation of the individual’s unit during
certain time periods, or other involuntary reasons. Individuals who were incapable of beginning education as a result of
a physical or mental disability could be granted an extension for the period of incapacity.
60
10 U.S.C. §16161 et seq.
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.
Transferability to Dependents
Each DOD service branch is authorized to allow eligible individuals to transfer their MGIB-SR
educational assistance benefits to family members, but no branch currently offers such a program.
Reserve Educational Assistance Program (REAP)
The Reserve Educational Assistance Program (REAP) was enacted by section 527 of the Ronald
W. Reagan National Defense Authorization Act for FY2005 (P.L. 108-375). It is codified in Title
10 U.S.C., Chapter 1607.64 Passage of the program was a direct reaction to the increased number
and length of calls to active duty of reservists that occurred as a result of operations in
Afghanistan and Iraq. Reservists must serve at least two continuous years on active duty to
receive the MGIB-AD, and the benefits under the MGIB-SR are lower than under the MGIB-AD.
REAP sought to provide reservists with benefits proportional to their active duty service and
commensurate with the benefits of the regular Armed Forces.
The purpose is to provide educational assistance to reserve components called to active duty in
response to a declared call to war or national emergency. REAP, like the MGIB-SR, is a DOD
program administered by the VA. Each DOD branch is required to establish and maintain a
program. The program is permanently authorized.
Eligible Individuals
Educational assistance benefits are available to reservists who have served on active duty in
support of a contingency operation for at least 90 consecutive days after September 10, 2001.6165
Benefits are also available to Army National Guard or Air National Guard members who have
served on full-time National Guard duty under section 502(f) of Title 32 U.S.C. for at least 90
consecutive days after September 10, 2001, when authorized by the President or Secretary of
Defense for the purpose of responding to a national emergency declared by the President and
supported by federal funds. The 90-day service requirement is waived for individuals released
from duty because of an injury, illness, or disease incurred or aggravated in the line of duty.
Increased benefits are available to individuals who serve at least one continuous year, two
continuous years, or three aggregate years.
Eligible Programs of Education, Institutions, and Establishments
The eligible programs of education, educational institutions, and training establishments are the
same as under the MGIB-AD.66
64
10 U.S.C. §16161 et seq.
Individuals receiving financial assistance under the Senior Reserve Officers’ Training Corps are not eligible.
66
Effective August 1, 2014, section 542 of the National Defense Authorization Act for Fiscal Year 2014 (P.L. 113-66)
limits programs of education to eligible programs at Title IV-participating institutions of higher education, as defined in
the Higher Education Act; licensure or certification programs that meet state requirements; and state approved or
licensed programs leading to state licensure or certification.
65
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.
Benefit Payments
Most REAP participants receive a monthly allowance. Similar to the MGIB-AD, additional
payments are available for certain purposes, and the monthly allowance may be increased under
certain circumstances (see Table 2).
The monthly educational allowance for REAP is a percentage of the allowance provided under
the MGIB-AD. Reservists who serve on active duty for at least two continuous years or three
aggregate years may receive 80% of the maximum MGIB-AD allowance for that type of
education or training, and those serving at least one continuous year may receive 60%. Reservists
serving at least 90 consecutive days or released from active duty for an injury, illness, or disease
incurred or aggravated as a result of active duty service before serving 90 consecutive days may
receive 40% of the maximum MGIB-AD allowance for that type of education or training.
Effective October 1, 20122014, the maximum allowance for at least two continuous or three aggregate
years of active duty service under REAP, $1,251.20373.60, is currently lower than the maximum
allowance for at least two years but less than three years of active duty service under the MGIBAD, $1,270.00.
61
Individuals receiving financial assistance under the Senior Reserve Officers’ Training Corps are not eligible.
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395.00.
Benefit Availability and Duration
Most individuals are entitled to educational benefits for a period of up to 36 months (or the
equivalent in part-time educational assistance), regardless of the active duty eligibility period.
In general, no educational benefits can be paid after separation from the Ready Reserve.62 The
Ready Reserve reserves.67 Individuals
called or ordered to active service while serving in the Selected Reserve must remain in the
Selected Reserve. Individuals called or ordered to active service while a member of the Ready
Reserve, excluding the Selected Reserve, must remain in the Ready Reserve. The Ready Reserve
is one of the three major reserve components along with the Standby Reserve and
Retired Retired
Reserve. The Ready Reserve is the primary manpower pool of the Reserves. Ready
Reservists Reservists
will usually be called to active duty before the other components and include Selected
Reservists.6368 However, individuals who complete the 90-day service requirement and who
complete their service contract under honorable conditions remain eligible for benefits for 10
years after separation from the Selected Reserve (separation from other reserve types does not
qualify).69 Also, individuals separated from the Ready Reserve because of a disability which was
not the result of the individual’s own willful misconduct have ten years from becoming eligible
for benefits before the benefits expire.
Transferability to Dependents
Each service branch is authorized to allow eligible individuals to transfer their REAP educational
assistance benefits to family members, but no branch currently offers such a program.
67
Individuals who were incapable of beginning education as a result of a physical or mental disability or as a result of
being a primary caregiver to a veteran or servicemember could be granted an extension for the period of incapacity.
68
See CRS Report RL30802, Reserve Component Personnel Issues: Questions and Answers, by Lawrence Kapp and
Barbara Salazar Torreon.
69
Between October 28, 2004, and January 27, 2008, completion under other than dishonorable conditions qualified.
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GI Bills Enacted Prior to 2008 and Related Veterans’ Educational Assistance Programs
Post-Vietnam Era Veterans Educational Assistance
Program (VEAP)
The Post-Vietnam Era Veterans’ Educational Assistance Program (VEAP) was established under
Title IV of the Veterans’ Education and Employment Assistance Act of 1976 (P.L. 94-502) and
codified in Title 38, U.S.C., Chapter 32. The program was established to make education
affordable and recruit qualified servicemembers. VEAP was designed as a recruitment incentive
for the Armed Forces during peacetime.6470
Eligible Individuals
VEAP was the first GI Bill to make educational benefits available to both active duty and reserve
components simultaneously from the outset.6571 Under VEAP, educational assistance benefits are
available to individuals who entered active duty on or after January 1, 1977, and before July 1,
1985. To be eligible for benefits, veterans must have been discharged or released other than
dishonorably after meeting the active duty service requirement, or they must have been
62
Individuals who were incapable of beginning education as a result of a physical or mental disability could be granted
an extension for the period of incapacity.
63
See CRS Report RL30802, Reserve Component Personnel Issues: Questions and Answers, by Lawrence Kapp.
64
U.S. Congress, Senate Committee on Veterans’ Affairs, Veterans Education and Employment Assistance Act of 1976,
Hearings before the Subcommittee on Readjustment, Education, and Employment of the Committee on Veterans
Affairs on S. 969 and Related Bills, 94th Cong., 1st sess., October 1, 1975, S. Rept 761-4.
65
The Post-Korean Conflict GI Bill (see Appendix C) was amended to include reservists who served on active duty for
over a year.
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discharged or released for a service-connected disability. The active duty service requirement was
a minimum of 24 continuous months or the obligated period of active duty for individuals who
enlist in a regular component of the Armed Forces after September 7, 1980, or who enter on
active duty after October 16, 1981,6672 or a minimum of 181 days of continuous service for other
individuals. Servicemembers remaining in service must have completed their first obligated
period of active duty67duty73 or six years of active duty, whichever is less. The 180-day active duty
service period excludes time assigned to a civilian institution for an education or training program
similar to those offered to civilians, excludes time spent as a cadet or midshipman at one of the
service academies, and excludes periods of receiving an allowance from the College First
Program (10 U.S.C. §511(d)) for a delayed enlistment in the Army National Guard or the Air
National Guard or while a member of the Reserves.
Individuals eligible for the prior GI Bill, the Post Korean Conflict GI Bill (see Appendix C), are
not eligible under VEAP, with one exception. Members of the National Guard68Guard74 or the Reserves
who participated in the College First Program and who served at least one consecutive year of
active duty after completing the period of active duty for training are eligible. The individual
must make an irrevocable decision to receive benefits under VEAP.
Since the benefit was established for an all-volunteer force serving during peacetime, it was
deemed appropriate to require participants to contribute to their educational fund during their
period of service in the military. Program participants had to agree to monthly pay deductions of
at least $25, but not more than $100, during the initial tour of obligated service or six years of
active duty service for a total contribution of up to $2,700.69 After making at least 12
contributions, individuals could withdraw from the program, receiving their contributions in
return and making them ineligible for program benefits.70
Eligible Programs of Education, Institutions, and Establishments
The eligible programs of education are
•
courses which lead to the attainment of a predetermined educational, vocational,
or professional objective or objectives if related to the same career (this includes
traditional undergraduate and graduate programs);
•
courses which lead to a high school diploma;
66
70
U.S. Congress, Senate Committee on Veterans’ Affairs, Veterans Education and Employment Assistance Act of 1976,
Hearings before the Subcommittee on Readjustment, Education, and Employment of the Committee on Veterans
Affairs on S. 969 and Related Bills, 94th Cong., 1st sess., October 1, 1975, S. Rept 761-4.
71
The Post-Korean Conflict GI Bill (see Appendix C) was amended to include reservists who served on active duty for
over a year.
72
An individual is exempt from the 24 month active duty requirement if the individual is discharged or released from
active duty under a hardship discharge (10 U.S.C. 1173), early-out discharge (10 U.S.C. 1171), disability incurred in or
aggravated in line of duty, or service-connected disability. An individual is exempt from the 24 month active duty
requirement if the individual who enters on a period of active duty after October 16, 1981, previously completed 24
continuous months of active duty or received an early-out discharge from a previous period of active duty.
6773
Certain individuals in the Armed Forces who receive educational assistance or other benefits are required to serve an
obligated period of active duty or repay a portion of the benefit.
6874
The National Guard includes the Army National Guard and Air National Guard.
69
In certain circumstances, individuals on active duty could make a lump-sum contribution in lieu of or in addition to
the monthly payments. The lump-sum payment is counted as if the individual made $100 monthly contributions.
70
Individuals on active duty could re-enroll at any time before July 1, 1985.
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.
Since the benefit was established for an all-volunteer force serving during peacetime, it was
deemed appropriate to require participants to contribute to their educational fund during their
period of service in the military. Program participants had to agree to monthly pay deductions of
at least $25, but not more than $100, during the initial tour of obligated service or six years of
active duty service for a total contribution of up to $2,700.75 After making at least 12
contributions, individuals could withdraw from the program, receiving their contributions in
return and making them ineligible for program benefits.76
Eligible Programs of Education, Institutions, and Establishments
The eligible programs of education are
•
courses which lead to the attainment of a predetermined educational, vocational,
or professional objective or objectives if related to the same career (this includes
traditional undergraduate and graduate programs);
•
courses which lead to a high school diploma;
•
courses required by the Administrator of the Small Business Administration as a
condition to obtaining financial assistance under the provisions of section 7(i)(1)
of the Small Business Act (15 U.S.C. 636(i)(1));
•
licensing or certification tests for a predetermined vocation or profession,
provided such tests and the licensing or credentialing organizations or entities
that offer such tests are approved;
•
courses offered by a qualified provider of entrepreneurship courses;
•
national tests for admission to institutions of higher learning or graduate schools
(such as the Scholastic Aptitude Test (SAT));
•
national tests providing an opportunity for course credit at institutions of higher
learning (such as the Advanced Placement (AP) exam);
•
full-time programs of apprentice or other on-the-job training; and
•
cooperative programs71programs77 for individuals not on active duty.7278
Benefit Payments
Most VEAP participants receive a monthly allowance. Similar to the MGIB-AD, additional
payments are available for certain purposes, and the monthly allowance may be increased under
certain circumstances (see Table 2).
The VEAP benefit consists of a monthly allowance for subsistence, tuition and fees, supplies,
books, and equipment paid directly to recipients while enrolled in training or a program of
education. Individuals are entitled to three times their contribution plus any DOD contributions.
The maximum monthly basic educational benefit may not exceed $300.73 The entitlement period
of individuals taking correspondence courses is reduced one month for each month of assistance
regardless of the rate of attendance. Individuals incarcerated for a felony conviction in a federal,
state, local, or other penal institution or correctional facility may only receive an allowance to
cover actual tuition and fees and necessary supplies, books, and equipment.74 Individuals in a
program of education consisting exclusively of flight training receive 60% of the program’s
established charges.75 For an individual in apprentice or on-the-job training, the monthly
71
75
In certain circumstances, individuals on active duty could make a lump-sum contribution in lieu of or in addition to
the monthly payments. The lump-sum payment is counted as if the individual made $100 monthly contributions.
76
Individuals on active duty could re-enroll at any time before July 1, 1985.
77
A cooperative program is a full-time program of education, which consists of institutional courses and alternate
phases of training in a business or industrial establishment with the training in a business or industrial establishment
being strictly supplemental.
7278
All programs of education must be approved by the VA and other relevant approving agencies.
73
To calculate an individual’s monthly allowance, the individual’s contributions are multiplied by three, the DOD
contributions are added to the result, and the sum is divided by the lesser of the number of months of contributions or
36.
74
Veterans benefits cannot duplicate those paid under any other federal, state, or local program.
75
Established charges are the lesser of the charge for the course(s) determined on the basis of the lowest extended time
payment plan offered by the institution and approved by the appropriate State Approving Agency or the tuition and fees
or charges that similarly circumstanced nonveterans enrolled in the same course(s) are required to pay. Individuals may
only receive payment for the minimum number of solo flying hours required by the Federal Aviation Administration
for the desired flight rating or certification. For exclusive flight training, an individual’s entitlement period is reduced
one month for each amount paid that is equal to the monthly benefit otherwise payable to such individual.
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.
The VEAP benefit consists of a monthly allowance for subsistence, tuition and fees, supplies,
books, and equipment paid directly to recipients while enrolled in training or a program of
education. Individuals are entitled to three times their contribution plus any DOD contributions.
The maximum monthly basic educational benefit may not exceed $300.79 The entitlement period
of individuals taking correspondence courses is reduced one month for each month of assistance
regardless of the rate of attendance. Individuals incarcerated for a felony conviction in a federal,
state, local, or other penal institution or correctional facility may only receive an allowance to
cover actual tuition and fees and necessary supplies, books, and equipment.80 Individuals in a
program of education consisting exclusively of flight training receive 60% of the program’s
established charges.81 For an individual in apprentice or on-the-job training, the monthly
allowance is 75%, 55%, and 35% of the monthly benefit otherwise payable to that individual for
the first six months, second six months, and thereafter, respectively.7682
Benefit Availability and Duration of Use
Veterans and servicemembers must use their educational assistance benefits within ten years of
discharge or release from active duty.7783 Under VEAP, individuals are entitled to a maximum of 36
months (or the equivalent for part-time attendance) or the number of months in which
contributions were made, whichever is less.
Combination and Comparison of GI Bill Programs
In general, veterans and servicemembers, many of whom will be eligible for more than one
program, can combine benefit programs administered by the VA to receive no more than 48
months of educational benefits.7884 However, a servicemember who is eligible for two or more of
the GI Bill programs: VEAP, MGIB-AD, MGIB-SR, REAP, or the Post-9/11 GI Bill, based on the
same period of military service must elect the program to which such service is to be credited. In
addition, benefits under more than one program cannot be received concurrently.
DEA-eligible individuals can combine benefits with other VA administered educational assistance
programs to receive up to 81 months of education benefits, but the eligibility events cannot be
duplicative.
Table 2 provides a summary of some of the key characteristics of the active programs. Although
the Post-9/11 GI Bill is not described in this report, the characteristics have been included in the
table for the reader’s reference. The Post-9/11 GI Bill is described in CRS Report R42755, The
Post-9/11 Veterans Educational Assistance Act of 2008 (Post-9/11 GI Bill): Primer and Issues, by
Cassandria Dortch.
76
79
To calculate an individual’s monthly allowance, the individual’s contributions are multiplied by three, the DOD
contributions are added to the result, and the sum is divided by the lesser of the number of months of contributions or
36.
80
Veterans benefits cannot duplicate those paid under any other federal, state, or local program.
81
Established charges are the lesser of the charge for the course(s) determined on the basis of the lowest extended time
payment plan offered by the institution and approved by the appropriate State Approving Agency or the tuition and fees
or charges that similarly circumstanced nonveterans enrolled in the same course(s) are required to pay. Individuals may
only receive payment for the minimum number of solo flying hours required by the Federal Aviation Administration
for the desired flight rating or certification. For exclusive flight training, an individual’s entitlement period is reduced
one month for each amount paid that is equal to the monthly benefit otherwise payable to such individual.
82
For apprentice or on-the-job training, an individual’s entitlement period is respectively reduced 0.75, 0.55, or 0.35
months for each month of educational assistance, depending on the payment. Individuals working/training fewer than
120 hours monthly have their payment and entitlement period usage proportionately reduced.
7783
Veterans who are incapable of beginning education as a result of a physical or mental disability can be granted an
extension for the period of incapacity.
7884
Aggregate educational assistance may not exceed 48 months under the following programs: Parts VII or VIII,
Veterans Regulation numbered 1(a), as amended; Title II of the Veterans’ Readjustment Assistance Act of 1952; the
War Orphans’ Educational Assistance Act of 1956; Chapters 30, 32, 33, 34, and 36 of Title 38 U.S.C. and the former
chapter 33; Chapters 106a, 1606, and 1607 of Title 10 U.S.C.; section 903 of the Department of Defense Authorization
Act, 1981 (10 U.S.C. 2141 note); the Hostage Relief Act of 1980 (5 U.S.C. 5561 note); and the Omnibus Diplomatic
Security and Antiterrorism Act of 1986 (22 U.S.C. 4801). The VA may extend the aggregate entitlement period for
educational assistance in combination with the vocational rehabilitation and employment program (Chapter 31 of Title
38).
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.
same period of military service must elect the program to which such service is to be credited. In
addition, benefits under more than one program cannot be received concurrently.
DEA-eligible individuals can combine benefits with other VA administered educational assistance
programs to receive up to 81 months of education benefits, but the eligibility events cannot be
duplicative.
Table 2 provides a summary of some of the key characteristics of the active programs. Although
the Post-9/11 GI Bill is not described in this report, the characteristics have been included in the
table for the reader’s reference. The Post-9/11 GI Bill is described in CRS Report R42755, The
Post-9/11 Veterans Educational Assistance Act of 2008 (Post-9/11 GI Bill): Primer and Issues, by
Cassandria Dortch.
Table 2. Selected Characteristics of Veterans’ Educational Assistance Programs
Sorted by Participation Level, in Descending Order
Characteristic
Year enacted
Initial
authorization
Post-9/11
GI Bill
MGIB-AD
DEA
MGIB-SR
REAP
VEAP
2008
1984
1956
1984
2004
1976
P.L. 110-252
P.L. 98-525
P.L. 84-634
P.L. 98-525
P.L. 108-375
P.L. 94-502
Eligible Individuals
Period of
qualifying service
After
9/10/2001 to
present
Entered
active duty
after
6/30/1985
After the
beginning of
the Spanish
American
War
7/1/1985 to
present
After
9/10/2001 to
present
On or after
January 1,
1977, and
before July 1,
1985
Minimum
required length
of service
90 aggregate
days of active
duty service
or serviceconnected
disability
after 30
continuous
days
181
continuous
days of active
duty service;
None
Accepted 6year reserve
obligation
after June 30,
1985
90 days of
consecutive
service in a
contingency
operation or
three
aggregate
years of
active duty
service
181
continuous
days of active
duty service,
or
24 months of
active duty if
enlisted after
September 7,
1980
24
continuous
months of
active duty
service, if
enlisted after
September 7,
1980, or
entered after
October 16,
1981
Discharge status
Honorable
discharge or
further
service in the
Reserves
Fully
honorable
discharge or
on active
duty
Other than
dishonorable
or on active
duty
Must remain
with reserve
unit
Honorable
separation or
further
service in the
Reserves
Other than
dishonorable
or on active
duty
Monetary
Contribution
None
Pay
reduction of
$100 per
month for
the first 12
months of
pay
None
None
None
$25 to $100
per month;
$2,700
maximum
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GI Bills Enacted Prior to 2008 and Related Veterans’ Educational Assistance Programs
Characteristic
Post-9/11
GI Bill
MGIB-AD
DEA
MGIB-SR
REAP
VEAP
Honorable
discharge or
on active
duty
Honorable
discharge or
on active
duty
Honorable
separation or
serving in the
reserves
Other than
dishonorable
or on active
duty
Discharge status
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24 months of
active duty if
enlisted after
September 7,
1980
Other than
dishonorable
or on active
duty
Must remain
with reserve
unit
24
continuous
months of
active duty
service, if
enlisted after
September 7,
1980, or
entered after
October 16,
1981
27
GI Bills Enacted Prior to 2008 and Related Veterans’ Educational Assistance Programs
.
Characteristic
Monetary
Contribution
Post-9/11
GI Bill
None
MGIB-AD
Pay
reduction of
$100 per
month for
the first 12
months of
pay
DEA
None
MGIB-SR
None
REAP
VEAP
None
$25 to $100
per month;
$2,700
maximum
Benefit Availability and Duration
Period of use
8/1/2009 to
present
7/1/1985 to
present
1956 to
present
7/1/1985 to
present
12/9/2001 to
present
1/1/1977 to
present
Duration of
benefits
36 months
Lesser of 36
months or
number of
months of
active duty
and onequarter
number of
months of
reserve duty
45 months
36 months
36 months
Lesser of 36
months or
number of
months of
contributions
Delimiting Date
(General time
limitation on use
of benefits)
Within 15
years of
discharge or
release from
active duty
Within 10
years of
discharge or
release from
active duty
or required
reserve duty
For the
spouse:
within 10
years of
eligibility, or
within 20 in
some
instances
While in the
Selected
Reserves
While in the
Ready
Reserves
Within 10
years of
discharge or
release from
active duty
For the child:
after finishing
high school
or reaching
age 18, but
before age
26 for
transferred
benefits or
33 for the
Marine
Gunnery
Sergeant
John David
Fry
Scholarship
Within 10
years of
Selected
Reserves
separation
For the child:
after finishing
high school
or reaching
age 18, but
before
reaching age
26
Within 10
years of
Ready
Reserves
separation
due to
certain
disabilities
Eligible Programs of Education, Institutions, and Establishments
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College or
university
Eligible
Eligible
Eligible
Eligible
Eligible
Eligible
High school
Not eligible
Not Eligible
Eligible
Not eligible
Not eligible
Eligible
Apprentice and
on-the-job
training
Eligible
Eligible
Eligible
Eligible
Eligible
Eligible
Entrepreneurship
training
Eligible
Eligible
Eligible
Eligible
Eligible
Eligible
Cooperative
training
Eligible
Eligible
Not Eligible
Eligible
Eligible
Eligible
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GI Bills Enacted Prior to 2008 and Related Veterans’ Educational Assistance Programs
Characteristic.
Characteristic
Cooperative
training
Post-9/11
GI Bill
Eligible
MGIB-AD
DEA
Eligible
DEA
Eligible
MGIB-SR
REAP
VEAP
Eligible
Eligible
Eligible
Benefit Payments
Maximum
standard benefit
for AY2012-13
$2,8353,744.00
per month
for housing
At a public
IHL,a “actual
net cost for
in-state
tuition and
fees” less
certain
student aid
$1,564717.00
per monthc
for
subsistence,
tuition and
fees, supplies,
books, and
equipment
$987.00 per
month 1,018.00
per month
for
subsistence,
tuition and
fees, supplies,
books, and
equipment
$356367.00 per
monthc for
subsistence,
tuition and
fees, supplies,
books, and
equipment
$1,251.20373.60
per monthd
for
subsistence,
tuition and
fees, supplies,
books, and
equipment
$300.00 per
monthe for
subsistence,
tuition and
fees, supplies,
books, and
equipment
At a private
or foreign
IHL, up to
$18,077.50b20,235.02b
Books and
supplies
Up to $1,000
annually
Not eligible
Not eligible
Not eligible
Not eligible
Not eligible
Relocation
allowance
Up to $500
once
Not eligible
Not eligible
Not eligible
Not eligible
Not eligible
Maximum
tutorial
assistance
$1,200
$1,200
$1,200200f
$1,200
$1,200
$1,200f200
Maximum
licensing and
certification test
fees
$2,000 per
test
$2,000 per
test
$2,000 per
test
$2,000 per
test
$2,000 per
test
$2,000 per
test
Admissions or
course credit
test
Eligible
Actual cost
Eligible
Eligible
Eligible
Actual cost
Advance
payments
EligibleEligibleg
Eligible
Eligible
Eligible
Eligible
Eligible
Accelerated
payments
Not eligible
Eligible
Not eligible
Eligible
Eligible
Not eligible
Tuition
Assistance Top
Up Program
Eligible
Eligible
Not eligible
Not eligible
Not eligible
Not eligible
$600 Buy Up
Program
Not eligible
Eligible
Not eligible
Eligible
Eligible
Not eligible
Supplemental
assistance
Up to $950
per month
Up to $950
per month
Not eligible
Up to $350
per month
Up to $350
per month
Not eligible
Authorized,
not available g
Not
authorized
Transferability to Dependents
Transferability to
dependents
Authorized
and available
Authorized,
not availablegavailableh
Not
authorized
Authorized,
not available gh
h
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GI Bills Enacted Prior to 2008 and Related Veterans’ Educational Assistance Programs
.
Source: Prepared by CRS based on data available from the VA; Title 38 U.S.C., Chapters 30, 32, 33, and 35; and
Title 10 U.S.C., Chapters 1606 and 1607.
a.
IHL is an institution of higher learning.
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GI Bills Enacted Prior to 2008 and Related Veterans’ Educational Assistance Programs
b.
The Restoring GI Bill Fairness Act (P.L. 112-26) allows certain individuals through July 31, 2014, to receive a
tuition and fees benefit equal to the greater of $17,500, reduced according to the length of time served on
active duty, or the amount the individual would have been entitled to in academic year (AY) 2010-2011
before the Improvements Act became effective. To be eligible, the individual must have been enrolled in the
same private or foreign IHL since January 4, 2011, in a state in which the Post-9/11 GI Bill maximum in-state
tuition per credit hour exceeded $700 in AY2010-2011 and the combined amount of tuition and fees for
full-time attendance in the program of education in AY2010-2011 exceeded $17,500.
c.
Amounts shown are for full-time institutional training, and for individuals who completed a minimum of
three years of service. The amounts are less for individuals who served less than three years and who
attend less than full-time. The educational benefits payment rate schedule is available at
http://www.gibill.va.gov/GI_Bill_Info/rates.htm. The MGIB-AD maximum payment does not reflect the
allowance received by Post-Korean Conflict GI Bill recipients who transfer to the program.
d.
The monthly amount is a percentage of the MGIB-AD and is based on the number of continuous days of
active duty service. The amount shown is for full-time institutional training, and for individuals who
completed at least two years of active duty service. The amount is less for individuals who served two years
or less, and who attend less than full-time.
e.
Government matches every $1 the servicemember contributes with $2. The maximum benefit available
under the program is $8,100 ($5,400 federal contribution and $2,700 individual contribution). The total
contribution (servicemember contribution plus government share) is than divided by the number of months
the servicemember contributed to VEAP.
f.
Unlike the other GI Bills, entitlement is not charged for tutorial assistance under DEA.
g.
Although regulations clarify the eligibility requirements for advance payments of the monthly housing
allowance, VA guidance and policy documents indicate that advance payments are not available under the
Post-9/11 GI Bill.
h.
Although the branches of the uniformed services are authorized to permit the transfer of benefits to
dependents, none of the branches are currently permitting the transfer of benefits.
Related Department of Veterans Affairs Programs
Veterans Counseling
For the most part, individuals receiving educational assistance under the VEAP, MGIBs, REAP,
or DEA may request educational and vocational counseling from the VA. The counseling may
include, but is not limited to, assistance selecting a program of education, resolving personal
problems, and resolving academic difficulties. Counseling was provided to all recipients of
educational assistance until 1972. Counseling is still required under DEA for a child who may
require specialized vocational training or special restorative training, or a child who is under 18
years of age and has not completed high school. It is also required for a spouse who desires
specialized vocational training. Counseling is still required under all of the programs if the
individual is rated as incompetent.
VetSuccess on Campus
In an effort to ameliorate the transition from military service to civilian education and ensure GI
Bill participants achieve their educational and employment objectives, the VA initiated the
VetSuccess on Campus program in June 2009. Services are targeted to servicemembers, veterans,
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GI Bills Enacted Prior to 2008 and Related Veterans’ Educational Assistance Programs
.
and their family members who use VA education programs. Each college campus participating in
the VetSuccess on Campus program is assigned a full-time VA Vocational Rehabilitation and
Employment Program (see program description in subsequent section) counselor and a part-time
VA outreach coordinator. The coordinator and counselor ensure veterans are aware of the services
offered, which include career and academic counseling, adjustment counseling, vocational
testing, awareness of and access to VA benefits and services, referral services, and other services.
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GI Bills Enacted Prior to 2008 and Related Veterans’ Educational Assistance Programs
The VA chooses campuses to participate that have high veteran populations. Participating
campuses enter into an agreement with the VA to work directly with the on-campus VA
representatives to coordinate service delivery. The number of participating campuses has
increased from three in 2009 to four in 2010 and eight in 2011 and an estimated 28 in 2012. The
eight in 2011 and 94 in 2014 and 2015. The initiative was
estimated to expend $2.99.0 million in FY2012.79FY2015.85
Vocational Rehabilitation and Employment Program (VR&E)
Individuals entitled to the MGIB-AD may choose to receive the MGIB-AD monthly allowance
and other benefits while pursuing individualized rehabilitation plans under the Vocational
Vocational Rehabilitation and Employment Program (VR&E) program.80 VR&E is an entitlement program
(VR&E) is an entitlement program administered by
the VA that provides job training and other employment-related services to veterans with service-connectedserviceconnected disabilities. To
86 To be entitled to VR&E services, veterans must have received a discharge other than dishonorable
anda veteran must be found to have either
(1) a 20% service-connected disability and an employment handicap,
or (2) a 10% service-connectedserviceconnected disability and a serious employment handicap.8187 After veterans
are found to be entitled
to VR&E benefits, a program , a counselor helps the veteran identify a suitable employment
goal goal
and determines what services (including postsecondary education) will be necessary to achieve that goal. The veterans are then
assigned to one of five reemployment tracks, one of which may include postsecondary or
vocational training.
The reemployment track that includes postsecondary or vocational training, referred to as the
Employment through Long-Term Services track, provides participants up to 48 months (or the
part-time equivalent) to achieve their objective within 12 years of discharge or release. The VA
may extend the entitlement period if necessary to accomplish the rehabilitation program. While
pursuing their objective, the progress of individuals is tracked and reviewed by case managers to
ensure the veterans have all the necessary resources to be successful. The case managers may
authorize equipment, supplies, and incidental goods and services to ensure the veterans’ success
as long as the cost of the incidental goods and services does not exceed 5% of the annual training
cost. After successful completion of the individualized rehabilitation plan, veterans may be
eligible to receive two additional months of the subsistence allowance while receiving
employment placement services.
Effective October 1, 2011, the regular VR&E subsistence allowance for full-time training at an
IHL is up to $828.76 monthly for individuals with two dependents. The allowance is reduced
depending on the number of dependents, type of education or training pursued, and rate of
attendance. VR&E participants who are also entitled to the MGIB-AD may choose to receive the
MGIB-AD monthly allowance and other benefits while pursuing an individualized rehabilitation
plan under VR&E, but they forfeit access to the regular VR&E subsistence allowance, loans,
tutorial assistance, tuition, fees, books, supplies, handling charges, licensing fees, equipment, and
79
U.S. Department of Veterans Affairs, “VA Announces Expansion of VetSuccess on Campus Pilots New Program
Eases Veterans’ Transition to College Life,” press release, October 5, 2010, http://www1.va.gov/opa/pressrel/
pressrelease.cfm?id=1978; U.S. Department of Veterans Affairs, “VA Reaching Out to Veterans on Campus Through
VetSuccess,” press release, March 11, 2011, http://www.va.gov/opa/pressrel/pressrelease.cfm?id=2070; and the
President’s FY2013 Budget Request.
80
that goal.88
Services and benefits under the VR&E programs may include (but are not limited to) tuition, fees,
books, supplies, tutorial assistance, counseling, and other services necessary to meet the veteran’s
employment objective. VR&E beneficiaries may also receive a subsistence allowance while they
are enrolled in the program.89 Typically, VR&E benefits are limited to 48 months, though entitled
veterans may receive benefits longer under certain circumstances.
As discussed earlier, statutory provisions generally prohibit individuals from receiving benefits
under more than one program concurrently. Two partial exceptions to this non-duplication rule
exist:
•
Veterans who are eligible for VR&E as well as the Post-9/11 GI Bill may elect to
receive services and benefits under the VR&E program but receive the Post-9/11
GI Bill housing allowance in lieu of the VR&E subsistence allowance. This
policy was designed to prevent disabled veterans from having to choose between
85
President’s Budget Request, FY2013-FY2015.
For more detailed information on the VR&E program, see CRS Report RL34627, Veterans’ Benefits: The Vocational
Rehabilitation and Employment Program, by Benjamin Collins.
8187
For an in-depth discussion of the VA’s disability evaluation process and policies, see CRS Report RL33991,
Disability Evaluation of Military Servicemembers, by Christine Scott and Don J. Jansen.
88
VR&E programs could have an employment or independent living objective that would not require the veteran to
pursue additional education.
89
The subsistence allowance varies by enrollment status and whether or not the veteran has dependents. For fiscal year
2014, the monthly subsistence allowance for a VR&E beneficiary enrolled full-time at an institution of higher learning
with two dependents was $868.96.
86
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GI Bills Enacted Prior to 2008 and Related Veterans’ Educational Assistance Programs
other training materials. While receiving an allowance under the MGIB-AD, the veteran must
abide by all of the provisions of the MGIB-AD program. Alternatively, VR&E participants who
are also entitled to the Post-9/11 GI Bill may choose to receive the regular VR&E subsistence
allowance or the E-5 with dependents BAH for the zip code in which the rehabilitation program is
located.82
A veteran who is also eligible to receive disability compensation83.
the more intensive VR&E services and higher housing allowance of the Post-9/11
GI Bill.90
•
Veterans who are eligible for VR&E as well as MGIB-AD may begin a
rehabilitation program under VR&E and may subsequently elect to receive
MGIB-AD payments while enrolled in a program that meets the MGIB-AD
criteria. VR&E beneficiaries who subsequently elect to receive MGIB-AD
payments may not receive tuition, fees, books, supplies, handling charges,
licensing fees, equipment, or individualized tutorial assistance through the VR&E
program. They are also ineligible for a subsistence allowance or loans under the
VR&E program. VR&E participants who elect to receive MGIB-AD payments
remain eligible for educational, vocational, psychological, employment, and
personal adjustment counseling and other disability-related benefits and services
under the VR&E program.91
A veteran who is also eligible to receive disability compensation92 as a result of hospital treatment
or observation may not receive the total VR&E or MGIB-AD allowance and disability
compensation in excess of the greater of 100% disability compensation or the sum of the VR&E
or MGIB-AD allowance and the amount of disability compensation that would be paid to the
veteran if he or she was not receiving compensation at such a rate as the result of that hospital
treatment or observation.
Veterans Work Study Program
The Veterans Work Study Program allows VEAP, MGIB-AD, MGIB-SR, DEA, Post-9/11 GI Bill,
and VR&E participants to receive additional financial assistance through the VA. The program is
codified in Title 38 U.S.C. Section 3485. Veterans and reservists in the VEAP, MGIBs, Post-9/11
GI Bill, and VR&E who are enrolled at least three-quarter-time may take advantage of the workstudy program. Individuals in the DEA who are enrolled at least three-quarter-time in the United
States and are not pursuing a program of special restorative training may also take advantage of
the work-study program. Although veterans with at least a 30% disability rating84rating93 receive priority
in the selection of program participants, the VA also considers the individuals’ need for additional
educational assistance, whether the individuals have the necessary access to transportation to and
from the work site, the individuals’ motivation, and the individuals’ compatibility with the
available work assignments.
An individual will enter into an agreement with the VA to perform a certain number of hours of
work in exchange for compensation. Eligible individuals may work for up to 25 hours times the
number of weeks contained in an enrollment period. They receive the greater of the state’s
minimum wage rate or the national minimum wage rate under section 6(a) of the Fair Labor
Standards Act of 1938 (Title 29 U.S.C. §206(a)). Eligible work-study activities are
•
VA outreach services programs or, prior to June 30, 2013, outreach services to
servicemembers and veterans furnished by employees of a state approving
agency (SAA);85
82
The E-5 with dependents BAH is the monthly basic allowance for housing for a member of the Armed Forces with
dependents in pay grade E-5. BAH is a DOD benefit to uniformed servicemembers to provide housing compensation
when government quarters are not provided. The amount is based on housing costs in local civilian housing markets
and is payable based on geographic duty location, pay grade, and dependency status.
83
38 U.S.C. §3108 et seq.
8490
See 38 U.S.C. 3108(b)(4).
More information on the election to receive MGIB-AD payments by VR&E beneficiaries is at 38 U.S.C. 3104(f) and
38 C.F.R. 21.264 and 21.334.
92
38 U.S.C. §3108 et seq.
93
The VA conducts disability evaluations and assigns disability ratings to servicemembers and veterans. An
individual’s disability rating describes the impact of a disability on gainful employment in the civilian economy. The
lower the rating, the more capable an individual is of maintaining gainful employment. For more information, see CRS
Report RL33991, Disability Evaluation of Military Servicemembers, by Christine Scott and Don J. Jansen.
85
State approving agencies (SAAs) are state agencies authorized under federal statute to approve and review programs
of education for the purpose of receiving veterans educational assistance benefits.91
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GI Bills Enacted Prior to 2008 and Related Veterans’ Educational Assistance Programs
.
•
VA outreach services programs under the supervision of a VA employee;
•
preparation and processing of necessary papers and other documents at
educational institutions or regional offices or facilities of the VA;
•
hospital and domiciliary care and medical treatment at VA facilities, and, prior to
June 30, 2013, care to veterans in a state home;
•
any other activity of the VA as the Secretary determines appropriate;
•
activities related to the administration of MGIB-SR and REAP at DOD, Coast
Guard, or National Guard facilities (for reservists only);
•
prior to June 30, 2013, activities relating to the administration of a national
cemetery or a state veterans’ cemetery;
•
activities of a state veterans agency related to providing assistance to veterans in
obtaining state and VA benefits;
•
a position working in a cooperative program carried out jointly by the VA and an
IHL; and
•
any other veterans-related position in an IHL.
Special provisions of the work-study program allow individuals to receive a lump sum advance
payment after signing a contract to complete a certain number of work-study hours. The advance
may be 40% of the expected allowance or 50 hours of earnings at the minimum wage rate,
whichever is lower.
Participation and Cost
Participation in VEAP, MGIBs, REAP, Post-9/11 GI Bill, and DEA is exhibited in Figure 1. The
following are among the highlights of the figure:
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•
Combined participation in VEAP, MGIBs, REAP, Post-9/11 GI Bill, and DEA
increased 4148% from 541,439 in FY2008 to 923,836 in FY2011800,369 in FY2010, due in large part
to the Post-9/11 GI Bill.
•
Participation in the Post-9/11 GI Bill exceeded 350,000 in FY2010, the first full
year of implementation, and exceeded 550,000 in FY2011increased to over 750,000 in FY2013.
•
The number of participants in the MGIB-AD was moderately stable from 1994
through 2001 at around 290,000 participants; increased from 2002 through
2008—peaking at 354,284 participants; and began to decline in 2009 following
the implementation of the Post-9/11 GI Bill to fewer than 100,000 in FY2013.
•
Likewise REAP participation peaked in 2008—within three years of
implementation—at 44,014 before beginning to decline in 2009, corresponding
to the implementation of the Post-9/11 GI Bill.
•
Participation in VEAP peaked in 1988 at 88,964 and is slowly declining as the
eligible individuals become older, disenroll, or transfer to other programs. The
VA projects that participation will end in 2025.
•
MGIB-SR participation exceeded 100,000 from 1990 through 1994, fell to more
than 80,000 annually from 2001 through 2005, and fell again to more than 60,000
from 2006 through 20112013.
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.
•
Participation cycles in DEA mirror major conflicts with greater participation
around the Vietnam Conflict, 1978-1982, and around the conflicts in Iraq and
Afghanistan, 2004-20112013.
Figure 1.Total Veterans, Active-Duty Servicemembers, Reservists, and Dependents
Receiving VEAP, MGIB-AD, MGIB-SR, REAP, DEA, and Post-9/11 GI Bill Education
Benefits each Year (1978-2011)
1,000
900
Participants (thousands)
800
700
600
500
400
300
200
100
2010
2008
2006
2004
2002
2000
1998
1996
1994
1992
1990
1988
1986
1984
1982
1980
1978
-
Fiscal Year
VEAP
MGIB-AD
MGIB-SR
REAP
DEA
Post-9/112013)
Source: Department of Veterans Affairs’ Annual Reports 1978-1997; data provided to CRS by the Department
of Veterans Affairs, 1998-2008; Department of Veterans Affairs’ Veterans Benefits Administration Annual
Benefits Report FY2010; and the President’s Annual Budget Request, FY2013-FY2015.
Notes: Beneficiaries may receive benefits in more than one year and from more than one program in the same
year.
Table 3 compares participation and cost of selected programs administered by the VA. The
program with the largest participation and obligations in FY2011FY2013 was the Post-9/11 GI Bill, with
over 550750,000 participants and total obligations of almost $7.7over $10 billion. The program with the
smallest smallest
participation was VEAP, with 14778 participants and total obligations of less than $1
million. The
MGIB-AD program provided benefits averaging $7,4838,551 per participant. compared to $13,465 for
the Post-9/11 GI Bill.
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.
Table 3. Obligations and Participation of Selected Programs
Administered by the VA: FY2011
2011FY2013
Program
2013 Obligation
($ thousand)
Participation
2011 Appropriation
per Participant ($)
1,385,943
185,220
7,483
DEAb
462,877
90,657
5,106
MGIB-SRc
201,433
65,216
3,089
95,324
27,302
3,491
620
147
4,218
7,656,490
555,329
13,871
Program
MGIB-ADa
REAPd
VEAPe
Post-9/11 GI
2013 Obligation per
Participant ($)
DEAa
483,281
89,160
5,420
MGIB-ADb
775,382
90,678
8,551
MGIB-SRc
153,465
62,656
2,449
REAPd
69,670
17,297
4,028
VEAPe
160
78
2,051
10,184,499
754,529
13,465
Post-9/11 GI Billf
Source: Department of Veterans Affairs, FY2012 Budget Submission, pp. 2b-2, 2b-3 and 2d-4.
a.
MGIB-AD is the Montgomery GI Bill-Active Duty (38 U.S.C., Chapter 30).
b.
DEA is the Survivors’ and Dependents’ Educational Assistance program (38 U.S.C., Chapter 35FY2015 Budget Submission.
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a.
DEA is the Survivors’ and Dependents’ Educational Assistance program (38 U.S.C., Chapter 35).
b.
MGIB-AD is the Montgomery GI Bill-Active Duty (38 U.S.C., Chapter 30).
c.
MGIB-SR is the Montgomery GI Bill-Selected Reserve (10 U.S.C., Chapter 1606).
d.
REAP is the Reserves Educational Assistance Program (10 U.S.C., Chapter 1607).
e.
VEAP includes data for the Section 901 program. VEAP is the Post-Vietnam Era Veterans Educational
Assistance program (38 U.S.C., Chapter 32).
f.
The Post-9/11 GI Bill is the Post-9/11 Veterans Educational Assistance Act (38 U.S.C., Chapter 33).
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Appendix A. Educational Assistance Under the
Original GI Bill of Rights86Rights94
The original GI Bill, the Servicemen’s Readjustment Act of 1944 (P.L. 78-346), was intended to
help veterans returning from World War II (WWII). The original GI Bill provided unprecedented
benefits: funds to the VA to build and administer additional hospital facilities; extension of
vocational rehabilitation and employment services; educational assistance to non-disabled
veterans; loans for the purchase or construction of homes, farms, and business property at
advantageous terms to veterans; employment services to returning veterans; and unemployment
benefits to veterans. The purpose of the educational assistance program was to avoid high levels
of unemployment as had occurred following World War I, to help servicemembers readjust to
civilian life, and to afford returning veterans an opportunity to receive the education and training
missed while providing compulsory service in the military.8795 From December 1, 1941, through
December 31, 1946, 16.1 million personnel served in the U.S. Armed Forces in WWII.8896 The U.S.
population in 1946 is estimated at 141,388,566.8997
Eligible Individuals
Educational assistance benefits were available to all veterans who served on active duty in the
military or naval service after September 16, 1940, and before the termination of WWII hostilities
(December 31, 1946). Eligible veterans must have been discharged other than dishonorably and
have served a minimum of 90 days or have been discharged or released for a service-incurred
injury or disability. The 90-day service period excluded time spent completing the Army
specialized training program or Navy college training program and excluded time spent as a cadet
or midshipman at one of the service academies.
Benefit Availability and Duration of Use
Eligible veterans were required to begin an education program within two years of discharge or
release or within two years of the end of WWII, whichever was later. The start date was later
extended by P.L. 79-268, enacted in 1945, to four years after discharge or release or December
31, 1950, whichever was later. Veterans were entitled to at least one year of education (or the
equivalent for continuous part-time study) or the length of the chosen education program if that
program was shorter than 12 months. Upon satisfactory completion of the first year (or the period
of a shorter education program), veterans whose education had been interrupted upon entering
military service were entitled to educational benefits for at least as long as they served after
September 16, 1940, and before the end of WWII, but not more than four years. The restriction,
8694
Description prepared by CRS based on a historical review of legislation and other reports.
The draft age was lowered from 20 to 18 years when President Roosevelt signed the Selective Service Act of 1942
(P.L. 77-772).
8896
Facts for Features, U.S. Census Bureau, April 29, 2004, http://www.census.gov/Press-Release/www/2004/cb04ffse07.pdf.
8997
Historical National Population Estimates: July 1, 1900, to July 1, 1999, Source: Population Estimates Program,
Population Division, U.S. Census Bureau, Internet Release Date: April 11, 2000, Revised date: June 28, 2000,
http://www.census.gov/popest/archives/1990s/popclockest.txt.
8795
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which provided no more than one year of educational benefits to certain veterans, was later
removed to provide the same benefits to all veterans.9098 By law, no educational benefits under the
original GI Bill could be paid seven years after the end of WWII, or July 25, 1956.9199
Eligible Programs of Education, Institutions, and Establishments
Initially, the eligible educational institutions were almost any institutions providing education:
public or private elementary, secondary, and other schools furnishing education for adults;
business schools; scientific and technical institutions; colleges and universities; vocational
schools; junior colleges; teachers’ colleges; professional schools; and other educational
institutions. The eligible training establishments were businesses or other establishments offering
apprentice or on-the-job training. Because the quality of some training programs was poor, laws
were enacted establishing approval criteria for training institutions and for-profit schools.92100
Stricter criteria were prescribed for on-the-job and on-the-farm training programs and vocational
schools.93101 Also, avocational and recreational training programs, such as nonvocational flight
training, were eventually prohibited.94102
Benefit Payments
Under the GI Bill, the VA paid up to $500 a year directly to an educational institution for tuition,
books, fees, and other training costs for each enrolled veteran. Institutions providing apprentice or
on-the-job training did not receive this payment. Veterans were required to maintain satisfactory
conduct or progress in their chosen program of education. To increase flexibility, the program was
revised by P.L. 79-268, enacted in 1945, to allow veterans to receive higher annual tuition and
fees payments (accelerated payments) for a corresponding reduction in the period of entitlement.
The VA also paid up to $50 monthly as a subsistence allowance to single veterans, and $75
monthly to veterans with one or more dependents. The monthly payment was eventually
increased to $75 monthly for single veterans, $105 monthly for veterans with one dependent, and
9098
P.L. 79-268, enacted in 1945, removed the restriction limiting benefits beyond the first year to those whose education
had been impaired, delayed, interrupted, or interfered with; those under 25 years of age; or those not pursuing refresher
or retraining courses, thus opening the full program to all veterans.
9199
P.L. 85-807, enacted in 1958, extended benefits for veterans who through 1956 were ineligible for the program but
whose discharge status was later amended to make them eligible for the program, allowing those veterans to begin a
program of education within four years of the amended discharge status but before August 28, 1962, and allowing them
no more than five years of benefits before January 31, 1965.
92100
U.S. Congress, House Committee on Veterans’ Affairs, Readjustment Benefits: General Survey and Appraisal, A
Report on Veterans’ Benefits in the United States, committee print, prepared by The President’s Commission on
Veterans’ Pensions, 84th Cong., 2nd sess., September 11, 1965, H.Prt. 289 (Washington: GPO, 1956), pp. 28-29.
93101
On-the-job training programs were required to gain approval from a state approving agency according to specific
criteria under P.L. 79-679 enacted in 1946. Requirements for on-the-farm training programs were established in P.L.
80-377, enacted in 1947. With regard to vocational schools, P.L. 81-610, enacted in 1950, (1) authorized the VA to
disapprove payment of benefits for training in for-profit vocational schools that had been in existence for less than one
year, (2) prescribed stricter criteria for approval of for-profit schools with fewer than 25 students or one-fourth of the
students enrolled (whichever was larger) paying their own tuition, (3) provided that no new courses could be approved
in for-profit schools where the state approving agency determined that the occupation for which the course was
intended to provide training was crowded in the state and that existing training facilities were adequate, and (4) set
minimum attendance requirements for veterans pursuing trade or technical courses below college level.
94102
P.L. 80-262, enacted in 1949, and P.L. 81-266 and P.L. 81-610, enacted in 1950.
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$120 monthly for veterans with more than one dependent by P.L. 80-411, enacted in 1948.
Veterans who attended part-time or received compensation for apprentice or on-the-job training
received a lower subsistence allowance. In 1945, P.L. 79-268 specifically authorized tuition and
fees payments for correspondence courses but disallowed the subsistence allowance. Later, P.L.
79-679, enacted in 1946, limited total earnings for veterans receiving compensation for apprentice
or on-the-job training. Veterans were limited to a total monthly employment compensation plus
VA subsistence allowance of no more than $175 for single veterans and $200 for veterans with
dependents. This was increased to $210 for single veterans, $270 for veterans with one
dependent, and $290 for veterans with more than one dependent by P.L. 80-512, enacted in 1948.
Lessons Learned
Some important lessons were learned in the implementation of the original GI Bill, and as the
result of several studies.95103 Paying tuition and fees directly to educational institutions led to
overpayments and excessive payments to for-profit vocational training programs in particular.96104
Some institutions were created solely to profit from the program.97105 It was necessary to define and
establish standards for the eligible training establishments and educational institutions to ensure
adequate quality of the educational programs and to define and remunerate responsibility for
evaluating them.98106 There was considerable objection to the use of the GI Bill for avocational and
recreational purposes since one of the stated purposes of the program was workforce
preparation.99107 The third mechanism for ensuring proper use of the GI Bill educational assistance
was the importance placed on veterans’ identifying and adhering to an educational objective.
Finally, it was necessary to increase the benefits as the cost of living and education increased.
Participation and Costs
In the end, the nation spent $14.5 billion ($114.7 billion in 2008 inflation adjusted dollars) to
provide education and training to 7.8 million WWII veterans (Table A-1).100108 The total
expenditure per participant was $1,859 ($14,700 in 2008 inflation adjusted dollars).
95
103
The studies include a February 1950 joint report by the VA and the Bureau of the Budget, two reports issued in
January 1951 and February 1952, by a House Select Committee to Investigate the Educational and Training Program
under the GI Bill and a survey by the General Accounting Office of the education and training operations of the VA in
seven states issued in July 1951.
96104
U.S. Congress, House Committee on Veterans’ Affairs, Readjustment Benefits: General Survey and Appraisal, A
Report on Veterans’ Benefits in the United States, committee print, prepared by The President’s Commission on
Veterans’ Pensions, 84th Cong., 2nd sess., September 11, 1965, H.Prt. 289 (Washington: GPO, 1956), p. 30.
97105
U.S. Congress, House Committee of the Whole House on the State of the Union, Education and Other Benefits for
Veterans of Service After January 31, 1955, Report to accompany H.R. 12410, 89th Cong., 2nd sess., February 3, 1966,
Report No. 1258, p. 3.
98106
U.S. Congress, House Committee on Veterans’ Affairs, Readjustment Benefits: Education and Training, and
Employment and Unemployment, A Report on Veterans’ Benefits in the United States, committee print, prepared by
The President’s Commission on Veterans’ Pensions, 84th Cong., 2nd sess., September 12, 1956, H.Prt. 291
(Washington: GPO, 1956), pp. 55-59.
99107
U.S. Congress, House Committee on Veterans’ Affairs, Readjustment Benefits: General Survey and Appraisal, A
Report on Veterans’ Benefits in the United States, committee print, prepared by The President’s Commission on
Veterans’ Pensions , 84th Cong., 2nd sess., September 11, 1965, H.Prt. 289 (Washington: GPO, 1956), p. 29.
100108
The 2008 inflation adjusted number for total expenditures was calculated by inflating $14.5 billion in 1956 dollars
to 2008 using the U.S. Department of Labor’s Bureau of Labor Statistics’ Consumer Price Index-All Urban Consumers
- (CPI-U) U.S. city average as reported at ftp://ftp.bls.gov/pub/special.requests/cpi/cpiai.txt.
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Table A-1. Original GI Bill Participation
Number
Veteran Population
Total trained
College and other school trainees
15,440,000
7,800,000
5,710,000
College trainees
2,230,000
Other school trainees
3,480,000
On-the-job trainees
On-the-farm trainees
1,400,000
690,000
Source: Veterans Administration, Veterans Benefits under Current Educational Programs, Fiscal Year 1984,
Washington, 1984, p. 28.
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Appendix B. Korean Conflict GI Bill101Bill109
The Veterans’ Readjustment Assistance Act of 1952 (P.L. 82-550, also known as the Korean
Conflict GI Bill) was authorized to help veterans returning from the Korean Conflict adjust to
civilian life. The program was codified in Title 38 U.S.C., Chapter 33, before its subsequent
repeal. The expected number of Korean Conflict veterans─less than 6 million (or 4%) of a
national population of 157,552,740 in 19521021952110─was lower than the number of WWII veterans,
reducing the risk of high national unemployment in comparison to the post-WWI and post-WWII
eras. The Korean Conflict GI Bill was intended to provide veterans the education forestalled by
compulsory service and provide equitable benefits, as had been afforded the WWII veterans. The
bill was also written in an effort to avoid many problems encountered in the implementation of
the original GI Bill.103111
Eligible Individuals
Veteran eligibility was essentially the same for the Korean GI Bill as the original GI Bill except
that only those members of the Armed Forces who served on active duty during the Korean
Conflict (on or after June 27, 1950, and before the termination of hostilities on January 31,
19551041955112) were eligible. Veterans still had to be discharged other than dishonorably and serve a
minimum of 90 days, or be discharged or released for a service-incurred injury or disability. The
90-day service period excluded time assigned to an education or training program similar to those
offered to civilians and excluded time spent as a cadet or midshipman at one of the service
academies.
Benefit Availability and Duration of Use
While WWII veterans were afforded up to four years of education benefits, Korean Conflict
veterans were limited to 36 months, which is substantially equivalent for students attending
traditional postsecondary schools with summers off. Eligible veterans were required to begin an
education program within two years (later extended to three years by P.L. 83-610, enacted in
1954) of discharge or release or before August 21, 1954, whichever was later. Veterans were
entitled to educational benefits for a period equal to 1½ times the duration of their active duty
service between June 27, 1950, and the termination of hostilities, but no more than 36 months.
Veterans enrolled entirely in correspondence courses were entitled to educational benefits for a
period equal to six times the duration of their active duty service. Veterans could combine
benefits with the VR&E program or the original GI Bill to receive up to 48 months of educational
benefits. By law, no educational benefits under the Korean Conflict GI Bill could be paid seven
101109
Description prepared by CRS based on a historical review of legislation and other reports.
Historical National Population Estimates: July 1, 1900, to July 1, 1999, Source: Population Estimates Program,
Population Division, U.S. Census Bureau, Internet Release Date: April 11, 2000, Revised date: June 28, 2000,
http://www.census.gov/popest/archives/1990s/popclockest.txt.
103111
U.S. Congress, House Committee on Veterans’ Affairs, Readjustment Benefits: General Survey and Appraisal, A
Report on Veterans’ Benefits in the United States, committee print, prepared by The President’s Commission on
Veterans’ Pensions, 84th Cong., 2nd sess., September 11, 1965, H.Prt. 289 (Washington: GPO, 1956), p. 30.
104112
The January 31, 1955, termination date for eligibility was established by P.L. 84-7 enacted in 1955.
102110
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years after discharge or release or upon the termination of hostilities, whichever was earlier.105113
This was later extended to eight years after discharge or release or January 31, 1965, by P.L. 84-7,
enacted in 1955.
Eligible Programs of Education, Institutions, and Establishments
The list of eligible educational institutions and training establishments did not change from the
original GI Bill except that institutions listed on the Attorney General’s List of Subversive
Organizations106Organizations114 were not eligible. States were requested to create state approving agencies
(SAAs) to approve educational courses and provide lists of eligible institutions. The VA provided
some cost reimbursement of salaries and travel for these state agencies.
To ensure the benefits were used for workforce preparation and to avoid some of the misuse
experienced under the original GI Bill, several provisions were added or changed from the
original GI Bill. Veterans were required to declare an educational objective or certificate/degree.
They were allowed to change their educational objective only once, only if not making
satisfactory progress by no fault of misconduct, neglect, or lack of application, and if the new
program fit their aptitude or previous education or the new program was a normal progression
from the existing program. The legislation specifically prohibited veterans from receiving
benefits for avocational and recreational courses in bartending, dance, photography, music, sports,
and personal development.107115
The criteria and standards for approving training establishments and educational institutions were
bolstered in comparison to the original GI Bill. Veterans could not enroll in non-accredited
courses below the college level at institutions that received more than 85% of their funding from
the VA through either the VR&E or the original GI Bill. Substantially new courses at private
institutions (later applied to only private for-profit institutions by P.L. 84-847, enacted in 1956)
that had been offered for fewer than two years were not eligible to veterans. Amendments to the
original GI Bill establishing stringent standards for apprentice, on-the-job, and on-the-farm
training were expanded under the Korean Conflict GI Bill to include courses already approved by
nationally recognized accrediting agencies and certain courses without accreditation.
Benefit Payments
The Korean Conflict GI Bill made payments only to veterans, as opposed to the payments made
to veterans and educational institutions under the original GI Bill. The U.S. House of
Representatives’ Select Committee to Investigate Educational, Training, and Loan Guaranty
Programs under the GI Bill (1950-1952) indicated that direct payments to educational institutions
105As originally enacted, the Korean GI Bill
disapproved new enrollments of veterans in non-accredited courses below the college level
offered by a private for-profit or nonprofit educational institution if more than 85% of the
enrolled students had all or part of their educational charges paid to or for them by the
educational institution, VR&E, or the original GI Bill. The act included an additional provision
disapproving the enrollment of veterans in any course that was offered by an educational
institution that had not been in operation for at least two years unless either the educational
institution was public, the educational institution had been in operation for more than two years
and the course was similar to instruction previously given, or the institution relocated locally and
had offered the course for more than two years. Amendments to the original GI Bill establishing
stringent standards for apprentice, on-the-job, and on-the-farm training were expanded under the
Korean Conflict GI Bill to include courses already approved by nationally recognized accrediting
agencies and certain courses without accreditation.
113
P.L. 85-807 enacted in 1958 extended benefits for veterans who through 1956 were ineligible for the program but
whose discharge status was later amended to make them eligible for the program allowing those veterans to begin a
program of education within three years of the amended discharge status but before August 28, 1961, and allowing
them no more than five years of benefits.
106114
The Attorney General’s List of Subversive Organizations was prepared according to section three of part III of
Executive Order 9835, which established a loyalty program to the federal government to thwart communism.
107115
U.S. Congress, House Committee on Veterans’ Affairs, Readjustment Benefits: General Survey and Appraisal, A
Report on Veterans’ Benefits in the United States, committee print, prepared by The President’s Commission on
Veterans’ Pensions, 84th Cong., 2nd sess., September 11, 1965, H.Prt. 289 (Washington: GPO, 1956), pp. 28-31, 153154.
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Benefit Payments
The Korean Conflict GI Bill made payments only to veterans, as opposed to the payments made
to veterans and educational institutions under the original GI Bill. The U.S. House of
Representatives’ Select Committee to Investigate Educational, Training, and Loan Guaranty
Programs under the GI Bill (1950-1952) indicated that direct payments to educational institutions
led to abuse.116led to abuse.108 A 1956 House Report determined that because the original GI Bill was generous,
some veterans used the benefits for income rather than to achieve an employment goal.109117 It was
also believed that if veterans were responsible for paying a portion of the cost of their own
education that this, in combination with the payment of benefits directly to veterans, would
encourage more careful spending.110118
Since maximum benefits were offered to veterans in full-time study, the legislation provided a
uniform definition of full-time for below college-level trade, technical, and institutional courses
offered on the clock-hour basis and for undergraduate courses offered at colleges and universities.
The benefit provided an allowance for subsistence, tuition, fees, supplies, books, and equipment
of up to $110 monthly to single veterans, $135 monthly to veterans with one dependent, and $160
monthly to veterans with more than one dependent. Veterans who attended institutional training
less then full-time, attended on-the-farm training at least half-time, or attended cooperative
training full-time received a lower allowance. As a result of the determination that some veterans
were overpaid from the original GI Bill,111119 veterans who attended apprentice or on-the-job
training received an allowance, which could not exceed $310 monthly in combination with the
veterans’ employment compensation. Veterans completing all coursework through
correspondence courses or on a less-than-half-time basis were only reimbursed for the cost of
completed courses. Veterans in flight training received 75% of the cost of flight training unless
the program of education combined flight training with other coursework.112120
An allowance was not paid if veterans were absent from unaccredited courses or apprentice or onthe-job training for more than 30 days. Veterans could not suspend their education for longer than
12 months without a waiver from the VA. Veterans and their institutions were required to certify
attendance, lessons completed, and/or satisfactory progress. The law disallowed veterans from
receiving duplicate benefits from the Korean Conflict GI Bill and any other educational benefit
from the U.S. Treasury.
Participation and Cost
In the end, the nation spent $4.5 billion ($30.8 billion in 2008 inflation adjusted dollars) to
provide education and training to almost 2.4 million Korean Conflict veterans (Table B-1). The
total expenditure per participant was $1,882 ($12,867 in 2008 inflation adjusted dollars).
108116
Starr, Paul, The Discarded Army, p. 237.
U.S. Congress, House Committee on Veterans’ Affairs, Readjustment Benefits: General Survey and Appraisal, A
Report on Veterans’ Benefits in the United States, committee print, prepared by The President’s Commission on
Veterans’ Pensions, 84th Cong., 2nd sess., September 11, 1965, H.Prt. 289 (Washington: GPO, 1956), pp. 37-40.
110118
U.S. Congress, House Committee on Veterans’ Affairs, Readjustment Benefits: General Survey and Appraisal, A
Report on Veterans’ Benefits in the United States, committee print, prepared by The President’s Commission on
Veterans’ Pensions, 84th Cong., 2nd sess., September 11, 1965, H.Prt. 289 (Washington: GPO, 1956), p.154.
111119
U.S. Congress, House Committee on Veterans’ Affairs, Readjustment Benefits: General Survey and Appraisal, A
Report on Veterans’ Benefits in the United States, committee print, prepared by The President’s Commission on
Veterans’ Pensions, 84th Cong., 2nd sess., September 11, 1965, H.Prt. 289 (Washington: GPO, 1956), p. 30.
112120
Veterans pursuing programs of education that combined flight training and other coursework could be reimbursed
for 75% of the cost of flight training and receive a monthly allowance. Their entitlement period was reduced at a rate of
one day for every $1.25 in payments.
109117
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Participation and Cost
In the end, the nation spent $4.5 billion ($30.8 billion in 2008 inflation adjusted dollars) to
provide education and training to almost 2.4 million Korean Conflict veterans (Table B-1). The
total expenditure per participant was $1,882 ($12,867 in 2008 inflation adjusted dollars).
Table B-1. Korean Conflict GI Bill Participation
Number
Veteran Population
Total trained
College and other school trainees
College trainees
Other school trainees
5,509,000
2,391,000
2,073,000
1,213,000
860,000
On-the-job trainees
223,000
On-the-farm trainees
95,000
Source: Veterans Administration, Veterans Benefits under Current Educational Programs, Fiscal Year 1984,
Washington, 1984, p. 28.
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Appendix C. Post-Korea Conflict and Vietnam Era
GI Bill113Bill121
Once fighting and ground troop deployment escalated in Vietnam, the Veterans Readjustment
Benefits Act of 1966 (P.L. 89-358), better known as the Post-Korean Conflict and Vietnam Era114Era122
GI Bill, was passed. The program is codified in Title 38 U.S.C., Chapter 34. Congress passed the
bill unanimously despite reservations by President Lyndon B. Johnson that the cost was too
high.115123 The benefits were designed to help recruit new servicemembers, extend benefits to all
who fulfilled their compulsory service, and afford returning veterans an opportunity to receive the
education and training missed while providing compulsory service in the military. Although the
benefits were initially intended to provide “considerably less liberal treatment” to non-war
veterans,116124 over time Congress expanded the benefits and liberalized eligibility. Incidentally,
these veterans were eligible for other federal education benefits available to the general public
and passed through the recently enacted Higher Education Act of 1965.
Eligible Individuals
The minimum active duty eligibility period was 180 days. Educational assistance benefits were
available to all veterans who served on active-duty after January 31, 1955 and entered military
service before January 1, 1977, who were discharged other than dishonorably and served a
minimum of 180 days, or were discharged or released for a service-connected disability. The 180day service period excluded time assigned to an education or training program similar to those
offered to civilians, time spent as a cadet or midshipman at one of the service academies, time
spent in college for a delayed enlistment in the Army National Guard or Air National Guard, and
service in the National Guard and the Reserves. The program was later amended by P.L. 93-508,
enacted in 1974, so that members of the National Guard and the Reserves were eligible if the
active duty period after the initial active duty training period was at least one year.
Servicemembers that otherwise met the eligibility requirements were also eligible for benefits
while on active duty after serving two continuous years on active duty. This provision responded
to concerns by the DOD that benefits available to veterans only would be counter to retention
efforts.117
113125
121
Description prepared by CRS based on a historical review of legislation and other reports.
By presidential proclamation, the Vietnam Era began on February 28, 1961, and terminated on May 7, 1975, for
veterans who served in the Republic of Vietnam during that period, and the Vietnam Era began on August 5, 1964, and
ended on May 7, 1975, in all other cases.
115123
John T. Woolley and Gerhard Peters, The American Presidency Project [online], Santa Barbara, CA: University of
California (hosted), Gerhard Peters (database). http://www.presidency.ucsb.edu/ws/?pid=27461.
116124
U.S. Congress, Senate Committee on Labor and Public Welfare, Cold War Veterans’ Readjustment Assistance Act;
report to accompany S. 9. Senate Report No. 89-269, 89th Congress, 1st Session, (Washington: GPO, 1965), p. 15.
117125
U.S. Congress, Senate Committee on Labor and Public Welfare, Subcommittee on Veterans’ Affairs, Cold War GI
Bill - 1965, S. 9: A Bill to Provide Readjustment Assistance to Veterans who Serve in the Armed Forces During the
Induction Period, 89th Cong., 1st sess., February 8, 18, 19, 24, 26, March 1, 9, 1965, (Washington: GPO, 1965), pp. 6667.
114122
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Benefit Availability and Duration of Use
Although the bill was not passed until 1966, the benefits retroactively covered active duty
servicemen since 1955 such that there would be no period of ineligibility of educational
assistance benefits since September 16, 1940. However, no educational benefits were paid until
June 1, 1966.
Initially, the Post-Korean Conflict GI Bill provided one month of entitlement for each month of
active duty service, up to 36 months. P.L. 90-631, enacted in 1968, increased the period of
entitlement to 1½ months of benefits for every month of service, with those serving 18 months or
more being entitled to the full 36 months of benefits. Later, the entitlement period was increased
to 45 months for those pursuing a standard undergraduate college degree by P.L. 93-508, enacted
in 1974, and finally to 45 months for all eligible persons by P.L. 94-502, enacted in 1976.
By law, no educational benefits under the Post-Korean Conflict GI Bill could be paid eight years
(later extended to ten years by P.L. 93-337, enacted in 1974) after discharge or release or eight
years after the Bill’s enactment, whichever was later.118126 P.L. 94-502, enacted in 1976 provided
that no educational benefits could be paid after December 31, 1989.
As originally enacted, Post-Korean Conflict GI Bill veterans could combine benefits with other
educational benefit programs administered by the VA to receive up to 36 months of educational
benefits. P.L. 90-631, enacted in 1968, increased this allowance to 48 months.
Eligible Programs of Education, Institutions, and Establishments
Upon initial enactment, the eligible programs of education were courses pursued at an educational
institution─secondary school, vocational school, college or university, scientific or technical
institution, or any other institution offering education at the secondary school level or above. For
example, flight training courses had to be offered by IHLs and lead to a standard college degree
(later revised to the standard college degree the recipient was seeking by P.L. 90-77, enacted in
1967). The list of eligible educational institutions and training establishments was later expanded:
•
Elementary schools, other schools furnishing education for adults, and businesses
or other establishments offering apprenticeships or on-the-job training were later
added.
•
Farm cooperative training requiring 12 weekly hours of institutional agricultural
courses and relevant agricultural employment became eligible under P.L. 90-77.
•
Apprenticeship programs that met Department of Labor published standards were
allowed under P.L. 90-77.
118126
Veterans who were ineligible for the program on discharge or release but whose discharge status was later amended
to make them eligible for the program were allowed benefits for up to eight years (later extended to 10 years by P.L.
93-337, enacted in 1974) after the discharge status was amended. Veterans who were incapable of beginning education
as a result of a physical or mental disability could be granted an extension for the period of incapacity according to P.L.
95-202, enacted in 1977. P.L. 97-72, enacted in 1981, authorized the VA to provide educational assistance through
December 31, 1983, to Vietnam Era veterans whose 10-year delimiting date had expired but who had remaining dollars
of entitlement and entitlement period, if the extended eligibility were used for apprentice or on-the-job training, a
program with a vocational objective, or a program of secondary education, and if the VA determined that the veteran
was in need of such a program to achieve a suitable occupational or vocational objective.
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•
On-the-job training programs were allowed under P.L. 90-77 if the programs
provided progression and appointment to the next highest level based on the
skills learned as opposed to length of service; compensation that matched nonveterans; initial compensation of not less than 50% of the final, full wage; a
reasonable guarantee that the job would be available upon completion of the
training period; at least six months of training but no more than two years; and
adequate resources for the training and if the programs qualified the trainee for
the job.
•
Flight training at a non-IHL flight school was added by P.L. 90-77 if the flight
school was approved by the state approving agency (SAA) and Federal Aviation
Administration; if the training was necessary for the attainment of a vocational
objective in aviation; if the individual had a valid private pilot’s license or
sufficient flight training hours for a private pilot’s license (the allowance of
sufficient hours without a license was later deleted by P.L. 91-219, enacted in
1970).
•
Courses required by the Small Business Administration as a condition for
obtaining financial assistance became eligible under P.L. 91-584, enacted in
1970.
Educational institutions received an annual reporting fee for each eligible person119person127 receiving
educational benefits from the VA to facilitate reporting of enrollment, enrollment interruptions,
and enrollment terminations to the VA.
Lessons Learned
Based on the experiences with prior GI Bills and early experience under the Post-Korean Conflict
GI Bill, several provisions were included to ensure benefits were used to promote quality
workforce preparation. Many of the provisions have been incorporated into all subsequent GI
Bills. These provisions include the following:
•
Benefit recipients were only allowed to take courses necessary to fulfill their
declared educational, professional, or vocational objective. Individuals were
allowed to change the objective if not making or likely to not make satisfactory
progress or if the new program better fit their aptitudes.120128
•
Avocational and recreational courses were disallowed.121
119129
127
Eligible individuals include veterans, servicemembers, and surviving spouses and children eligible to receive
benefits under the War Orphans Educational Assistance Program (Title 38 U.S.C., Chapter 35).
120128
Veterans were allowed one change of their educational objective if not making satisfactory progress (by no fault of
misconduct, neglect, or lack of application) and allowed one additional change if the new program fit their aptitude or
if there was a reduced likelihood of not making satisfactory progress as a result of their own misconduct, neglect, or
lack of application.
121129
P.L. 91-219, enacted in 1970, added provisions allowing the disapproval of bartending, personal development, and
sales courses, which do not provide specialized training in a specific vocation. P.L. 96-466, enacted in 1980, further
clarified that over the preceding two years at least 50% of the graduates of vocational programs of education who were
available for employment had to be employed in that vocational area for an average of 10 hours weekly for the
educational program to gain approval. This provision was repealed by P.L. 97-306, enacted in 1982, because it was
determined to no longer be necessary to prevent abuse.
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•
No allowance was paid if veterans were absent for more than 30 days from
courses that did not lead to a standard college degree.
•
Substantially new courses at private for-profit institutions that had been offered
for fewer than two years were not eligible.
•
No on-the-job or on-the-farm course (later expanded to any course by P.L. 90-77,
enacted in 1967) could be offered through open circuit television or radio, and no
program of education leading to a standard college degree could offer the
majority of courses through open circuit television or radio.
•
Benefit recipients could not enroll in unaccredited courses below the college
level at private institutions at which more than 85% of the students received
payments from the institution or the VA.
•
To fight low completion rates, various disclosure and refund requirements for
correspondence schools were prescribed by P.L. 92-540, enacted in 1972.
•
Payments could be suspended for courses where there was a substantial pattern of
ineligible trainees receiving assistance because course approval requirements had
not been met or the institution offering the course had violated recordkeeping
requirements, as enacted in 1982 by P.L. 97-306.
•
Programs of education outside the United States were allowed only if offered at
approved IHLs.
•
Based on poor employment outcomes and overuse, Congress limited benefits for
flight training. In 1970, Congress limited flight training at a non-IHL flight
school to individuals with a valid private pilot’s license. Finally, flight training at
a non-IHL flight school was terminated for new enrollees by P.L. 97-35, enacted
in 1981.122130
Benefit Payments
An allowance for subsistence, tuition and fees, supplies, books, and equipment was paid directly
to recipients. Veterans and servicemembers received up to $150 monthly (eventually increased to
$510 for individuals with two dependents) according to a schedule based on full-time,123131 threequarter-time, or half-time or cooperative program enrollment and the number of dependents.
Active duty servicemembers and students pursuing education on a less-than-half-time basis were
only reimbursed for the cost of completed courses, but no more than $100 monthly (eventually
increased to $376 by P.L. 98-543, enacted in 1984). Students completing all coursework through
correspondence courses were only reimbursed for the cost (eventually reduced to 55% of cost by
P.L. 97-35, enacted in 1981) of completed courses, and their entitlement period was reduced by
122130
A 1979 report by the Government Accountability Office (GAO) concured with a Department of Veterans Affairs
(VA) proposal by recommending that Congress terminate GI Bill benefits for flight training. GAO found poor
employment outcomes for GI Bill participants in flight training.
123131
Full-time attendance required a minimum of 30 hours per week for trade or technical courses below college level
involving mostly shop practice, required a minimum of 25 hours per week for institutional courses below college level
involving mostly theoretical classroom instruction, required a minimum of four units per year for academic high school
courses, required a minimum of 14 credit hours (or less if certified by the institution according to P.L. 91-219, enacted
in 1970) for institutional undergraduate courses, and required a 30-hour work week or the minimum established by the
training establishment for apprentice and on-the-job training according to P.L. 91-584, enacted in 1970.
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GI Bills Enacted Prior to 2008 and Related Veterans’ Educational Assistance Programs
one quarter of the time in the program (eventually changed to one month of entitlement for each
$376 reimbursed by P.L. 98-543, enacted in 1984). Veterans in full-time on-the-farm, apprentice,
or on-the-job training received a reduced allowance.124132 In general, veterans and servicemembers
and their institutions were required to certify actual attendance, lessons completed, and/or
satisfactory progress before payments were made. Veterans and servicemembers were allowed to
receive an advance payment for the first month of enrollment (P.L. 91-219 in 1970).
Allowance and entitlement period provisions were added for students pursuing a standard college
degree through independent study and for students pursuing education while incarcerated or in a
half-way house by P.L. 96-466, enacted in 1980. The law disallowed veterans from receiving
duplicate educational benefits from the U.S. Treasury.
P.L. 95-202, enacted in 1977, authorized the state or local government to establish a program with
the VA that would allow veterans to use accelerated payments to help repay certain VA loans. The
veteran had to be enrolled full-time and complete the program satisfactorily with a degree,
diploma, or certificate. The tuition and fees had to exceed $700 for a term, and no more than 35%
of program students could have received VA benefits. If these requirements were met, the state or
local government paid the VA a matching amount of the accelerated payment.
Predischarge Education Program
The Predischarge Education Program (PREP) allowed servicemembers who completed 180 days
of active duty and were still on active duty to receive an allowance for non-correspondence
courses leading to a high school diploma or any deficiency, remedial, or refresher course in
preparation for enrollment in an approved educational institution or training establishment. The
monthly allowance was the lesser of actual tuition, fees, books, and supplies or $175 (eventually
increased to $270 by P.L. 93-602, enacted in 1975). Allowances received while on active duty did
not reduce the regular entitlement period upon discharge or release.125133
Training for the Educationally Disadvantaged
The Post-Korean Conflict GI Bill was later amended to provide special assistance and training for
the educationally disadvantaged. First, P.L. 90-77, enacted in 1967, allowed veterans and
servicemembers without a high school diploma or its equivalent or who needed additional
secondary school courses to receive the regular allowance for these courses without the payments
reducing their regular entitlement period. Second, P.L. 91-219, enacted in 1970, provided tutorial
assistance of $50 monthly for nine months (eventually increased to $84 monthly for a maximum
of 12 months, or $1,008, by P.L. 98-543, enacted in 1984) to veterans and servicemembers
enrolled in postsecondary education at least half-time. The tutorial assistance had to be for a
deficiency in a course required for the educational objective, and the educational institution had
to certify the need for assistance, the qualifications of the tutor, and the customary nature of the
124132
P.L. 90-77, enacted in 1967, provided a payment schedule based on the first through fourth and succeeding six
month periods of full-time apprentice or on-the-job training and the number of dependents. The maximum monthly
payment was up to $100 monthly for the first six months of training if the student had two or more dependents
(eventually increased to $336 by P.L. 98-543, enacted in 1984). P.L. 90-77 also allowed cooperative farm trainees $80
per month (eventually increased to up to $404 monthly for two dependents based on full-, three-quarter- and half-time
status and the number of dependents by P.L. 98-543, enacted in 1984).
125133
P.L. 91-219, enacted in 1970, created the PREP, and P.L. 94-502, enacted in 1976, terminated the PREP.
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to certify the need for assistance, the qualifications of the tutor, and the customary nature of the
charges. Receipt of tutorial assistance did not reduce their regular entitlement period under the
Post-Korean Conflict GI Bill.
Work-Study
P.L. 92-540, enacted in 1972, created a veteran work-study allowance for full-time students (later
liberalized to at least three-quarter-time students by P.L. 101-237, enacted in 1989). The
allowance of $250 or a prorated sum (eventually increased to minimum wage or $625, whichever
is higher, by P.L. 95-202, enacted in 1977) was paid based on the agreement of a veteran to
perform 100 hours of work in a term (eventually increased to a number of hours equal to 25 times
the number of weeks in the term by P.L. 101-237, enacted in 1989). Eligible work was VA
outreach services, preparation and processing of paperwork at the educational institution or VA,
medical care, or other activities approved by the VA. Preference was given to veterans with
greater than 30% disability.
Participation and Cost
In the end, the Post-Korea and Vietnam Era GI Bill provided education and training to almost 1.4
million individuals who were servicemembers during the Post-Korean Conflict era and almost 6.8
million individuals who were servicemembers during the Vietnam era (Table B-1). In total, about
60% of individuals eligible for benefits under the program took advantage of the program. By the
end of FY1990, cumulative program expenditures exceeded $41.5 billion126billion134 ($72.1 billion in 2008
inflation adjusted dollars) or $5,089 per participant ($8,836 per participant in 2008 inflation
adjusted dollars).
Table C-1. Post-Korea and Vietnam Era GI Bill Participation
Post-Korean Era
(June 1966– Sept.
1989)
Vietnam Era
(June 1966–
Sept. 1989)
Total
Number
3,237,000
10,252,000
13,489,000
1,395,442
6,760,141
8,155,583
1,311,045
6,189,263
7,500,308
College trainees
734,568
4,278,848
5,013,416
Other school trainees
576,477
1,910,415
2,486,892
On-the-job trainees
64,500
534,071
598,571
On-the-farm trainees
19,897
36,807
56,704
Veteran population
Total trained
College and other school trainees
Source: Data provided by the U.S. Department of Veterans Affairs Congressional Relations on January 11, 2011.
126134
Department of Veterans Affairs, Annual Report of the Secretary of Veterans Affairs: Fiscal Year 1990, Washington,
DC, March 1991, pp. 24-25.
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Appendix D. Veterans and Dependents Education
Loan Program127Program135
The Veterans and Dependents Education Loan Program was established by the Vietnam Era
Veterans’ Readjustment Assistance Act of 1974 (P.L. 93-508) in Chapter 36 of Title 38 U.S.C. to
provide additional support to veterans attending high-cost institutions. Veterans who served on
active duty after January 31, 1955, and before January 1, 1977 (later modified to active duty after
January 31, 1955, by P.L. 94-502, enacted in 1976), and their spouses, widows, and children were
eligible to borrow. Eligible individuals also had to be enrolled at least half-time in a program of
education leading to a standard college degree or a six-month non-college degree. Loans were not
eligible for correspondence courses or apprentice and on-the-job training. Veterans who were fulltime students were allowed loans for another two years of their remaining dollars of entitlement
once the VEAP entitlement period ended. Repayment began nine months after enrollment
dropped below half-time and was completed within ten10 years.
The loans were up to $600 (eventually increased to $2,500 by P.L. 95-202, enacted in 1977)
annually for education expenses. They were expected to cover the difference between the cost of
attendance and the individual’s reasonable financial resources.
There were several problems with the program’s administration. The majority of loans were
initially made to individuals at no- or low-cost institutions until P.L. 95-476 specified high-cost
institutions. The loans were made without regard to other financial assistance such as Department
of Education student financial assistance programs. The financial needs of 99% of recipients
could have been covered through Department of Education student financial assistance programs.
The default rate increased from 44% as of December 31, 1997, to 65% as of September 30, 1980.
It also cost the VA 70 times more to administer the program than the Department of Education.
P.L. 97-35 repealed the VA education loan program as of September 30, 1981, with some
exceptions.128,129136,137
Author Contact Information
Cassandria Dortch
Analyst in Education Policy
cdortch@crs.loc.gov, 7-0376
127135
Description prepared by CRS based on a historical review of legislation and other reports.
The exceptions to the September 30, 1981, end date were Vietnam Era veterans who were continuing full-time
training in the first two years following the expiration of their entitlement period or who were already pursuing flight
training courses when flight training benefits were eliminated.
129137
U.S. General Accounting Office, Veterans Administration Education Loan Program Should Be Terminated:
Legislative Action Taken, HRD-81-128, August 28, 1981, http://archive.gao.gov/f0102/116325.pdf.
128136
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