A lot of people give up on the system.
You'd be surprised at how many veterans out there made that initial access, were refused, and just walked away from it. The anxiety, frustration, anger, and all that, didn't weigh enough to carry on with pursuing whatever it was they were trying to get.
This is common, even with World War II vets. When my dad was refused the war veterans allowance, he said, “Well, the government said....” That's what he said. I said, “Well, no, try it again.” He eventually did, but it was that attitude.
With the mental issues the guys have, they just say, “I don't need this anymore. I don't want it. I don't care what comes with it.”