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It's very easy to determine if a retinal photo shows a normal retina or one that is abnormal (and needs referral). A tech can be trained to do that in a few weeks/months.
For what it's worth, our local VA hospital recalls diabetic patients every two years. The tech checks the acuity and takes a retinal photo. If the pts acuity is 20/25 and they have no complaints and the tech determines the photos looks normal, the patients is done. Sent home. No exam.
I'm not saying this is ideal. But it has been determined, for the busy VA system, it's "good enough".
I would be hesitant to use "because that's how the VA does it" as an argument FOR anything.