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MELISSA BLOCK, HOST:

This is ALL THINGS CONSIDERED from NPR News. I'm Melissa Block.

GUY RAZ, HOST:

And I'm Guy Raz.

The U.S. military has spent tens of millions of dollars to give every member of the service a computer test. The point of the test is to help doctors figure out who has suffered a traumatic brain injury in Iraq or Afghanistan, and needs care. Congress ordered the military to launch the testing program almost four years ago, after investigations showed that many troops with traumatic brain injuries were falling through the cracks.

BLOCK: We begin this hour with the results of an investigation by NPR and ProPublica that show the program has so far failed, and wasted millions of taxpayer dollars. That's partly because military leaders have refused to follow Congress' orders.

And as NPR's Daniel Zwerdling reports, the test meant to help troops has been bogged down in scientific squabbles and bureaucratic foot-dragging.

DANIEL ZWERDLING, BYLINE: Four-dozen soldiers file into a squat, wooden building at Fort Lewis in Washington state. They're going off to fight in Afghanistan soon. But first, they sit at rows of laptop computers to take their brain tests, thanks to the U.S. Congress. The test proctor stands at the front.

FELIX RIOS: My name's Felix Rios. I'm a contractor with the Office of the Surgeon General. You're here to take ANAM, automated neural psychological assessment metrics.

ZWERDLING: For the next 20 minutes, each soldier will click through the ANAM computer program. The congressional order says test every service member's brain functions before they go to war.

RIOS: Cognitive functions - that's what we're going to measure.

ZWERDLING: The test measures memory. Can you remember which number goes in which square? It measures reaction time. How fast can you click the mouse after an asterisk pops on the screen?

RIOS: One of the best ways to tell if something's affecting you is to know how you were before it happened. That's what you do here with ANAM. You'll take ANAM, and it's going to be your baseline.

ZWERDLING: And Congress told the Pentagon, test the troops again when they come home from the war to see if their brains are doing worse. And when the troops file out of the building at Fort Lewis...

SGT. MICHAEL PERSYN: My name is Sergeant Michael Persyn.

ZWERDLING: They say they're glad they've taken this test.

PERSYN: Well, it at least gives me a feeling that if there is something wrong with me, that they'll be able to know about it.

BENJAMIN LOUIS WESTMAN: I'm Benjamin Louis Westman. I felt more reassured.

ZWERDLING: But our investigation has found these troops have little reason to feel reassured. We interviewed dozens of medical specialists inside and outside the military. We obtained hundreds of pages of military emails and documents; many have never been made public before. And the evidence shows that military officials have made one decision after another that almost guarantees that the testing program will not help catch many troops who have brain injuries.

COL. MARY LOPEZ: We have failed. We have failed soldiers.

ZWERDLING: That's the woman who used to run the Army's testing program, Colonel Mary Lopez. She retired recently from the service, but she still works with soldiers in Germany. She spoke with us over Skype.

LOPEZ: It is incredibly frustrating because I can see firsthand the soldiers that we've missed - the soldiers that have not been treated, not been identified, misdiagnosed. And then they struggle.

ZWERDLING: NPR and ProPublica found that the story of the computer testing program reflects a broader tale. The government's efforts to deal with troops with brain injuries have been deficient and disorganized since the wars began. And they still are. And problem number one is not the military's fault. When members of Congress told the military to test all the troops to see how well their brains work, Congress was ordering something that's really difficult.

DR. ALEX DROMERICK: The field is not caught up with Congress' mandate basically because Congress wants something that takes many years, and a lot of research effort, to develop.

ZWERDLING: That's Dr. Alex Dromerick. He co-directs the Brain Research Center at the National Rehabilitation Hospital in Washington, D.C. Dromerick says you need a doctor with special training to diagnose a traumatic brain injury. A computer test can show you that someone's brain isn't working well, but it can't show you why. You're saying scientifically...

DROMERICK: The test to meet Congress' specifications does not exist yet.

ZWERDLING: On the other hand, Dromerick and other brain specialists say a computer test can help doctors. It's like a warning light that says: Hey, over here. This man or woman flunked the test, so they might be suffering from a brain injury.

ZWERDLING: And that brings us to the second problem with the testing program. Some of the Pentagon's own medical advisers say the top officials did not choose a very good test. They say the National Hockey League picked a better test to spot brain injuries than the military did.

(SOUNDBITE OF HOCKEY GAME CROWD)

DR. RUBEN ECHEMENDIA: We find that the testing program is very useful for our athletes.

ZWERDLING: Ruben Echemendia is the chief neurologist for the NHL. I dropped by a game recently between the Washington Capitals and the Dallas Stars, and I could hear why hockey players need to take a test. They keep smashing into the glass, and each other. There are various computer brain tests on the market, just like there are different kits to test blood pressure. And to pick the best one to give hockey players, Echemendia assembled a Concussion Working Group. They compared the pros and cons of different brands, and they did not launch ANAM, the test the military chose.

Instead, the hockey league chose a test called ImPact. Echemendia says when hockey players bash their heads and then the players say no problem, I feel fine; to the contrary, the ImPact test shows that 30 percent of them actually have problems thinking.

ECHEMENDIA: Had we not been using these tests, we may be returning these players back to play prematurely.

ZWERDLING: NPR and ProPublica found that when officials in the Pentagon had to choose a test to give the troops, they didn't do any rigorous comparisons to see which one would work best. Instead, officials were determined to use ANAM, mainly because military researchers developed it. The test came from inside the military's own family. In fact, Pentagon officials chose ANAM even though many of their medical advisers said: We're concerned about it.

MORGAN SAMMONS: The scientific advisory panel did not, to the best of my recollection, at any one time, say the ANAM is the choice, is the instrument that should be used.

ZWERDLING: Morgan Sammons was one of those advisers. He's dean of psychology now at Alliant University in California. The advisers said there haven't been many good studies on ANAM, and the test is too sensitive. You can flunk just because you're tired. So they worry the military might treat people for brain damage when they don't really have it. And talk to Michael Russell, a neuropsychologist. He runs the Army's ANAM program now.

MICHAEL RUSSELL: If they had said, would you like to use something else? I probably would have said, yes, I'd like to use something else.

ZWERDLING: But the Pentagon told all the armed forces, use ANAM. We met with the top official who made that decision, Dr. Ward Casscells. He was the assistant secretary of Defense. And we asked him, why do you prescribe ANAM, when so many advisers didn't like it? He said he doesn't remember the details.

DR. WARD CASSCELLS: I think we reached an agreement on it that half a loaf was better than none, and we would watch this test closely to see how it could be improved.

ZWERDLING: And that brings us to the third problem with the testing program. Medical specialists say even though the ANAM test does have flaws, it still could help spot troops with brain injuries if military officials use it right. But many officials refuse, especially in the Army.

LT. GEN. JACK TSAO: My name is Jack Tsao. I'm a neurologist for the United States Navy.

ZWERDLING: Tsao runs the traumatic brain injury programs for the Navy and Marines. Consider this scenario. One of your Marines is about to deploy to Afghanistan. She takes the ANAM to get a baseline score, and her score is terrible. She has lousy reaction time; her memory is awful. What should you do? Tsao says if you're in the Navy or Marines, the answer is easy.

TSAO: Yes, if there's an abnormality, we need to follow it up.

ZWERDLING: Tsao says it's true the Marine might just be tired, and that's why she got a low score. On the other hand, maybe she has brain damage from her last deployment, which nobody has diagnosed. So the Navy has issued a written order. When any Marines or sailors get bad scores on the ANAM test before they go to war, you have to send them to the doctor for a follow-up.

TSAO: Our obligation as medical providers to our patients who are our service members is that we try to figure out if there is something going on that needs to be treated. We want to ensure that we are taking care of our service members' health needs.

ZWERDLING: But our investigation found that's not what they do in the Army. To the contrary, the commander who runs the Army's medical system issued a written order back in November 2008. We obtained a copy. Lieutenant General Eric Schoomaker says: Do not refer soldiers - I'll repeat that - do not refer soldiers who flunk the ANAM test for a follow-up evaluation.

One top military doctor, who's afraid she'll get in trouble if we use her name, says Schoomaker's policy is unethical. And the woman who used to run the Army's testing program says his order hurts the troops. Mary Lopez.

LOPEZ: The ANAM testers themselves will come back and say: I have a soldier right in front of me who says, I was in a blast; I'm still having headaches; my memory is short. And I'm really concerned about this person's performance on this test. And we can't tell the primary care provider.

ZWERDLING: Is the Army sending troops to Afghanistan who have some sort of problem with their brains?

LOPEZ: Potentially so, yes.

ZWERDLING: Lieutenant General Eric Schoomaker refused to talk with us. He sent us a written statement instead that said: If a soldier has any symptoms or problems with their health, they are encouraged to discuss it with a health-care provider.

But sources who've worked with Schoomaker told us here's one of the main reasons why the Army won't send soldiers who flunked ANAM for a follow-up exam: There aren't enough staff at most Army bases to examine them. Michael Russell, who runs the testing program, acknowledges there's a shortage.

RUSSELL: You know, certainly our large medical centers are very well-staffed with good professionals. Where soldiers mobilize is often much more austere environments. And no, there aren't a lot of professionals, you know, nearby that could quickly evaluate those people.

ZWERDLING: It's been almost four years since Congress ordered the Pentagon to test all the troops before and after they go to war. The military has done only half of what Congress demanded. They've given the ANAM to a million troops before they deployed, but officials still refuse to do the other half. They've tested only a tiny fraction of the troops after they came home, to see if their brain functions are any worse.

Congressman Bill Pascrell helped push for the law that ordered the Pentagon to test troops in the first place. He's a Democrat, and he says the Department of Defense is breaking the law.

REP. BILL PASCRELL: And the Army seems to be fighting us on this. You're doing harm to these veterans and these wonderful warriors and their families, and we are not going to put up with it. This is not what we paid for. So I don't believe our troops are being treated correctly.

ZWERDLING: But military officials tell us now they have good news. They've finally started an in-depth study to compare ANAM and other kinds of brain tests. Then they can select the best one, and use it the way Congress intended. Officials say the study should be finished by 2015. That's more than two years after most of the troops are scheduled to come home. Daniel Zwerdling, NPR News.

RAZ: Our story was co-reported by T. Christian Miller and Joaquin Sapien of ProPublica. You can learn more about traumatic brain injuries and the military at NPR.org.

(SOUNDBITE OF MUSIC)

BLOCK: ALL THINGS CONSIDERED continues in a moment.

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