AN EVALUATION OF THE PRIORITY OF SERVICE 

PROVISION OF THE JOBS FOR VETERANS ACT BY THE 

WORKFORCE INVESTMENT SYSTEM IN PROVIDING 

SERVICES TO VETERANS AND OTHER COVERED PERSONS 

FINAL REPORT 

JUNE 2010 

Prepared for: 

U.S. DEPARTMENT OF LABOR 

EMPLOYMENT AND TRAINING ADMINISTRATION 

Prepared by: 

John Trutko 

Capital Research Corporation 

1910 N. Stafford Street 

Arlington, VA 22207 

Burt S. Barnow 

Johns Hopkins University 

Institute for Policy Studies 

3400 N. Charles Street 

Baltimore, MD 21218 

This paper was funded, either wholly or in part, with Federal funds from the U.S. Department of 

Labor, Employment and Training Administration (ETA) under Contract Number 

DOLJ061A20363. The contents of this publication do not necessarily reflect the views or 

policies of the Department, nor does mention of trade names, commercial products, or 

organizations imply endorsement of same by the U.S. Government. 
ACKNOWLEDGEMENTS 

The authors would particularly like to thank Richard Muller and Wayne Gordon of the 

Employment and Training Administration, (ETA) for their thoughtful ongoing guidance and help 

coordinating data collection among various ETA program offices, and for their many hours 

reviewing and commenting on reports and briefings developed over the course of this research 

project. 

The research team would also like to thank state and local administrators in the seven 

states visited for their time and thoughtful input during interviews. In addition, the authors 

would like to thank staff at the national workforce associations and veterans’ associations that 

made time available and provided many thoughtful comments during telephone interviews 

conducted as part of this study. 

Final Report -- Evaluation of the POS Requirement Page i 
  

   

           

     

                    

   

              

                  

           

   

           

           

             

       

   

  

              

   

        

                   

         

        

              

               


 

 
 


 


 

 
 


 


 

 
 

 
 

 
 

 
 


 


 


 


 

 
 

 
 

 
 

 
 

 
 

 
 

 
 


 


 


 


 


 


 

 
 


 


 


 


 


 

 
 


 


 

 
 


 


 

 
 

 
 

 
 

 
 


 


 


 


 

 
 

 
 

 
 

 
 

 
 

 
 

 
 


 


 


 


 


 


 

 
 


 


 


 


 

TABLE OF CONTENTS 

ACKNOWLEDGEMENTS..........................................................................................................................i
 

CHAPTER 1: INTRODUCTION............................................................................................................ 1
 

A. Project Background and Purpose ......................................................................................................1
 

B. Key Study Questions and Data Collection Methods .....................................................................3
 

C. Organization of the Report ................................................................................................................ 13
 

CHAPTER 2: FINDINGS FROM AGGREGATE DATA ANALYSES OF WIA ADULT AND
 

DISLOCATED WORKER DATA..........................................................................................................14
 

A. Background............................................................................................................................................. 14
 

B. Descriptive Statistics ........................................................................................................................... 15
 

C. Regression Analyses............................................................................................................................. 21
 

D. Conclusions ............................................................................................................................................. 27
 

CHAPTER 3: FINDINGS FROM INTERVIEWS WITH VETERANS AND WORKFORCE
 

ORGANIZATIONS..................................................................................................................................30
 

CHAPTER 4: FINDINGS FROM SITE VISITS TO STATES............ AND LOCAL WORKFORCE
 

AREAS ......................................................................................................................................................36
 

A. State and Local Policies Related to POS ........................................................................................ 38
 

B. Outreach to Veterans ........................................................................................................................... 42
 

C. Workforce Agency and Veteran Awareness of POS................................................................... 46
 

D. Administration/Implementation of POS in One­Stop Career Centers............................... 49
 

E. Training and Technical Assistance on Priority of Service...................................................... 57
 

F. Monitoring of Compliance on POS ................................................................................................... 60
 

G. Challenges of Implementing POS..................................................................................................... 62
 

CHAPTER 5: CONCLUSIONS .............................................................................................................66
 

APPENDIX A: DISCUSSION GUIDE FOR DOL/ETA OFFICIALS, NATIONAL WORKFORCE
 

DEVELOPMENT ASSOCIATIONS, AND VETERANS’ ASSOCIATIONS.....................................72
 

APPENDIX B: STATE SITE VISIT DISCUSSION GUIDE..............................................................77
 

APPENDIX C: LOCAL SITE VISIT DISCUSSION GUIDE: PROGRAM OFFICIALS FROM THE
 

LOCAL WIB AND ONE­STOP CAREER CENTER(S) .....................................................................81
 

APPENDIX D: STATE SITE VISIT SUMMARIES...........................................................................87
 

APPENDIX E: OMB CLEARANCE PACKAGE AND SURVEY INSTRUMENT FOR
 

TELEPHONE SURVEY OF VETERAN AND NON­VETERAN CUSTOMERS OF ONE­STOP
 

CAREER CENTERS............................................................................................................................. 162
 

Final Report -- Evaluation of the POS Requirement Page ii
 
 

 

 

 

 

CHAPTER 1:
 
 

INTRODUCTION 

A. Project Background and Purpose 

The purpose of this study was to provide the U.S. Department of Labor's (DOL) 

Employment and Training Administration (ETA) with an independent evaluation of the 

implementation of priority of service (POS) provision of the Jobs for Veterans Act (JVA). A 

key objective of this study was to determine whether “covered persons” (including “veterans” 

and “covered spouses”) are receiving priority of service as specified in the JVA and are being 

fully served by employment and training programs offered through the One-Stop Career Center 

system.1

 The evaluation is intended to provide a better understanding of how veterans (i.e., 

covered persons) are provided access to the full array of workforce services through One-Stop 

Career Centers. The project tasks and activities conducted under this study focused on assessing 

the extent to which POS requirements under JVA are being met, with a particular focus on 

implementation of POS at the state and local levels through the One-Stop Career Center system. 

Under JVA, DOL is required to "evaluate whether covered persons are receiving priority of 

service."2 

1 Veteran means a person who served in the active military, naval, or air service, and who was discharged or 

released there from under conditions other than dishonorable, as specified in 38 U.S.C. 101(2). Active service 

includes full-time duty in the National Guard or a Reserve component, other than full-time duty for training 

purposes. Eligible Spouse as defined in section 2(a) of the JVA (38 U.S.C. 4215(a)) means the spouse of any of the 

following: (1) Any veteran who died of a service-connected disability; (2) Any member of the Armed Forces serving 

on active duty who, at the time of application for the priority, is listed in one or more of the following categories and 

has been so listed for a total of more than 90 days: (i) Missing in action; (ii) Captured in line of duty by a hostile 

force; or (iii) Forcibly detained or interned in line of duty by a foreign government or power; (3) Any veteran who 

has a total disability resulting from a service-connected disability, as evaluated by the Department of Veterans 

Affairs; (4) Any veteran who died while a disability, as indicated in paragraph (3) of this section, was in existence. 

See: U.S. Department of Labor, Veterans’ Employment and Training Services (VETS), “Priority of Service for 

Covered Persons: Final Rule,” Federal Register, Vol.73, No. 245, December 19, 2008. 2

 In this report, term “veteran” and “covered persons” are sometime used interchangeably – often in discussions with 

states, local areas, and national associations the term “veteran” is broadly used to mean “covered persons.” 

Final Report -- Evaluation of the POS Requirement Page 1 
 

 

 

 

 

	 

This evaluation effort was initiated in response to an action item ETA identified in 

response to the recommendations the Government Accountability Office (GAO) made in report 

number GAO-06-1763

 to improve accountability and help states integrate veteran services in 

One-Stop Career Centers. The project tasks and activities conducted under this study focused on 

assessing the extent to which POS requirements under JVA are being met, with a particular focus 

on implementation of POS at the state and local levels through the One-Stop Career Center 

system. In addition, as part of this study, the project team assessed the feasibility and utility of 

conducting additional research based upon a potential large-scale telephone survey of veterans. 

It is important to note that key data collection activities conducted under this study, including 

analyses of Workforce Investment Act data, interviews with national workforce and veterans’ 

organizations, and site visits to states were conducted prior to or just shortly after the Veterans’ 

Employment and Training Services (VETS) issued the Final Rule on “Priority of Service for 

Covered Persons” in the Federal Register.

4 

In discussion with ETA staff early in this study, several critical observations were made 

that helped to frame the evaluation effort: 

	 Study to Focus on One-Stop Career Center Implementation of Priority of Service for 

Veterans. A primary motivation for this study was that there was a need to provide 

Congress with evidence of the attention that ETA, states, and local agencies have given to 

the implementation of POS. At the time the study was commissioned (in June 2007), 

there was insufficient data available on POS implementation, particularly relating to how 

states and local WIBs/One-Stop Career Centers had implemented POS at the “ground 

level.” As a result, a critical focus of this study was on the extent to which veterans (i.e., 

covered persons) were served through the One-Stop Career Center delivery system and 

able to access the full range of One-Stop Career Center services in a seamless manner. 

For example, a concern was whether veterans were being funneled to DVOP/LVER staff 

3

 GAO, Veterans’ Employment and Training Services: Labor Actions Needed to Improve Accountability and Help 

States Implement Reforms to Veterans’ Employment Services, Report GAO-06-176, December 2005. Data 

collection for this study was conducted between January and November 2005, so study results and findings are 

somewhat dated. 

4

 U.S. Department of Labor, Veterans’ Employment and Training Services (VETS), “Priority of Service for Covered 

Persons: Final Rule,” Federal Register, Vol.73, No. 245, December 19, 2008. 

Final Report -- Evaluation of the POS Requirement Page 2 
 

	 

	 

	 

	 

when they first came to a One-Stop Career Center (or Employment Service Office) and 

missed out on receiving the full range of other services available at the One-Stop Career 

Center. 

	 Study to Focus Primarily on WIA, ES, and VETS Programs. In discussions at the startup meeting, given project resources, there was consensus that Workforce Investment 

Act’s (WIA) Adult and Dislocated Worker Programs, the Wagner-Peyser/Employment 

Service (ES), and Veterans Employment and Training Services (VETS) Programs should 

be the central programmatic focus of the study. 

	 Analysis of Characteristics of Veterans Served, Service Mix, and Outcomes Using WIA 

Data Should Be Conducted. It was agreed that to the extent possible, the study should 

include analyses of individual-level data collected under WIA (i.e., the Workforce 

Investment Act Standard Record Data, WIASRD) to assess patterns of service delivery 

and outcomes for veterans served within the local workforce investment system. 

B. Key Study Questions and Data Collection Methods 

The key questions provided as part of the original scope of work (issued by ETA for this 

study) and supplemented by questions elicited through discussions with ETA and VETS staff 

were the major questions addressed by this study. Exhibit 1-1 provides a matrix that lists these 

key study questions along with the principal data sources used to address each of the study 

questions. Based on discussions with DOL staff and review of existing databases and literature, 

the following major types of data collection activities were conducted: (1) interviews with 

federal program officials responsible for administering the POS requirement and with national 

veteran workforce and veterans’ organizations; (2) site visits to states and local workforce areas; 

(3) analysis of WIA Adult and Dislocated Worker Program participant-level data (collected 

through the WIASRD data system); and (4) collection of additional background information 

related to the feasibility of conducting a survey of veterans focusing on the implementation of 

POS requirements. The sections that follow briefly address each of the major data collection 

tasks that were conducted under this study. 

Final Report -- Evaluation of the POS Requirement Page 3 
 

 

 

 

 

 

 

 

 

 

 

EXHIBIT 1-1: KEY STUDY QUESTIONS AND PRINCIPAL DATA SOURCES TO 

ADDRESS EACH QUESTION 

KEY STUDY QUESTIONS 

INTERVIEWS WITH ETA SITE VISITS TO 

ANALYSIS OF 

PARTICIPANT 

DATA 

AND NATIONAL STATES AND 

WORKFORCE AND LOCAL 

VETERANS’ WORKFORCE 

ASSOCIATIONS AREAS 

What policies exist at the state and local levels 

to implement the priority of service provisions in 

JVA? 

√ √

How have the Department of Labor's two 

agencies with primary responsibility for 

employment assistance to veterans, VETS and 

ETA, collaborated to provide priority of service to 

veterans? 

√

Are State and Local Workforce Boards fully 

aware of the POS provision, and do they use 

their strategic plans and policy-making authority 

to implement it? 

√ √

Are veterans aware of the priority of service 

provision? √

Is the workforce investment system (particularly 

services provided through the One-Stop Career 

Center delivery system) giving priority of service 

to veterans? 

√ √ √

What does priority of service mean when it 

comes to the provision of services through local 

WIBs and One-Stops? 

√ √ √

Are all assets within the system being used? 

Are WIBs and One-Stop Career Centers going 

beyond simply referring veterans to VETS 

representatives? 

√ √ √

Do One-Stop Career Centers have routine 

processes or special initiatives to outreach to 

veterans? 

√

Do states/local areas have targeted and wellcoordinated strategies for serving veterans? 

What happens, for example, when WIA funding 

for training runs low – do veterans get priority for 

remaining available training funds? 

√ √

In local areas where there have been base 

closures, does the One-Stop Career Center 

system integrate its service delivery with the 

Transitional Assistance Program (TAP)? 

√

Are One-Stop Career Center staff provided 

training on how to apply the priority of service 

provision? 

√

How do One-Stop Career Center staff identify 

veteran customers and when is this done? Do 

One-Stop Career Centers have processes or 

special initiatives in place for the intake of 

veterans, and do they have processes to inform 

√

Final Report -- Evaluation of the POS Requirement Page 4 
 

 

 

 

 

 

EXHIBIT 1-1: KEY STUDY QUESTIONS AND PRINCIPAL DATA SOURCES TO 

ADDRESS EACH QUESTION 

KEY STUDY QUESTIONS 

INTERVIEWS WITH ETA SITE VISITS TO 

ANALYSIS OF 

PARTICIPANT 

DATA 

AND NATIONAL STATES AND 

WORKFORCE AND LOCAL 

VETERANS’ WORKFORCE 

ASSOCIATIONS AREAS 

veterans of their right to POS? 

How do local areas engage businesses and 

what are practices with regard to “marketing” 

veterans to businesses for job openings? 

√

What role do Disabled Veteran Outreach 

Program (DVOP) specialists and Local Veterans' 

Employment Representatives (LVER) play in the 

One-Stop Career Center to ensure veterans 

receive priority of service for all One-Stop 

services? What tools would be valuable for 

One-Stop Career Center staff to support 

providing veterans priority of service? 

√ √

How do the employment outcomes for veterans 

compare to non-veterans? How do employment 

outcomes compare to results before POS was 

enacted? 

√ √

Has the priority of service provision impacted the 

mix of services available to veterans? How do 

quantities and mixes of services provided to 

veterans compare to those provided to nonveterans? How do quantities and mixes of 

services provided to veterans compare to those 

provided to veterans prior to implementation of 

POS? 

√ √

What challenges does the workforce investment 

system face in applying the priority of service 

provision? 

√ √ √

Do One-Stop Career Center staff see clients 

who have received assistance through the 

Transition Assistance Program (TAP)? 

√

Final Report -- Evaluation of the POS Requirement Page 5 
Interviews with Federal Officials and National Veterans/Workforce Organizations. As 

part of the start-up for this project, project staff met with representatives of ETA and VETS to 

gather background information about implementation of POS within DOL, as well as their input 

on key evaluation questions and types of data collection activities that should be undertaken for 

this study. In addition, project staff conducted telephone interviews with representatives from 

the following national organizations: the National Association of State Workforce Agencies 

(NASWA); National Association of Workforce Boards (NAWB); and several veterans’ service 

organizations (including the Disabled American Veterans, Veterans of Foreign Wars (VFW) of 

the United States, the American Legion, and Vietnam Veterans of America). The discussions 

with national associations were aimed at gathering nationwide views from varying perspectives 

of the extent to which veterans have received POS in their dealings with the workforce 

investment system. Appendix A provides a copy of the discussion guide used during telephone 

interviews with representatives of veterans’ organizations and national workforce investment 

organizations. These interviews were conducted in March through May 2008 (prior to issuance 

of the Final Rule for POS for covered persons in the Federal Register). 

Site Visits to States and Local Areas. During this task, the project team gathered 

information and conducted interviews aimed at building an in-depth “on-the-ground” 

understanding of implementation of POS at the state and local levels. Based on discussions with 

ETA and review of background information – and particularly the desire to get as wide a 

representation of states and localities given the project’s resources – the team visited seven states 

and one local workforce area within each state. The selection of seven states provided an 

opportunity to examine POS implementation across all regions of the country and in varying 

state models of delivery of services (e.g., where ES and WIA are co-located and are not coFinal Report -- Evaluation of the POS Requirement Page 6 
 

 

 

located within the One-Stop Career Center). Discussions during the start-up meetings with ETA 

and VETS officials provided guidance with regard to the criteria to be used in selecting states 

and local sites. Recognizing that visits to seven states (and seven local workforce areas) cannot 

possibly be “statistically representative” of how veterans are being served in 600-plus local 

workforce areas and over 1,700 One-Stop Career Centers across the country, to the extent 

possible, it was suggested that site selection should provide a good mix of states and local 

offices. While ETA indicated that the sample selection should be purposive, it should also strive 

to be as representative as possible on several key criteria and not be limited to (for example) 

exemplary states or local sites. 

In selecting candidate states and local areas, the study team first selected seven states and 

then selected a local workforce investment area (LWIA) within each state. The two main criteria 

used to select states were: (1) the extent to which Wagner-Peyser/Employment Service offices 

were integrated into One-Stop Career Center operations, as indicated by the “Status of StandAlone Employment Service Offices in the U.S., as of April 1, 2007” according to a GAO survey 

of 50 states and the District of Columbia,5

 and (2) percentage of population 18 years and over 

who were veterans (according to rankings by the U.S. Census Bureau for 2006, based on the 

American Community Survey).6 As directed by ETA, the study team then sought a mixture of 

geographic areas across the country (i.e., regional balance) and some larger and smaller states. 

5

 Government Accountability Office, Workforce Investment Act: One-Stop System Infrastructure Continues to 

Evolve, but Labor Should Take Action to Require That All Employment Service Offices Are Part of the System, GA0­

07-1096, September 2007(see Figure 3 and Appendix 6). 

6

The source for the percentage of civilian population 18 years and over who are veterans is the U.S. Census, 

American Community Survey, 2006. Appendix C provides detailed rankings and percentages of veterans for all 

states and 528 metropolitan/micropolitan areas (sorted in descending order of the percentage veteran). 

Final Report -- Evaluation of the POS Requirement Page 7 
 

With regard to the first factor, the study team relied upon a four-part classification 

developed by GAO to categorize the extent to which states had stand-alone ES offices (see 

Exhibit 1-2 for GAO’s categorization of states): 

 states without stand-alone ES offices (33 states); and 

 states with all stand-alone ES offices (18 states), subcategorized as follows: (1) affiliated 

with the One-Stop Career Center System (9 states); (2) unaffiliated with the system (6 

states); and (3) both affiliated and unaffiliated with the system (3 states). 

With just seven states to be selected, the study team allocated four state slots to states without 

stand-alone ES offices (from the 33 states) and three state slots to states with stand-alone ES 

offices (and one for each of the three subcategories). Next, the study team examined the 

percentage of veterans in the adult civilian population in each state, ranking states and then 

placing them into three subcategories -- the top third, middle third, and bottom third (in terms of 

ranking). The aim was to produce a sample of sites that was somewhat more heavily inclusive of 

the top third, but also included several states that did not have a high concentration of veterans. 

The study team then considered several other factors – inclusion of at least one state from each 

of the four U.S. Census regions; variation in terms of large, mid-sized, and small states; and 

inclusion of states that had varying population densities. 

As shown in Exhibits 1-2 and 1-3, the states nominated and visited under this study were 

the following: Alaska, California, Florida, Kansas, New Jersey, Ohio, and Virginia. These seven 

states provided a fairly diverse group with the following variation in state characteristics: 

 Extent to which ES has been incorporated into One-Stop Career Center system 

(according to recent GAO study) – 4 states where ES has been fully integrated into the 

One-Stop Career Center system and 3 states where states (at the time) still had standalone ES offices (with representation of each of the three GAO subcategories of 

affiliation with the One-Stop Career Center System). 

Final Report -- Evaluation of the POS Requirement Page 8 
 

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EXHIBIT 1-2: STATE SITE SELECTION CRITERIA
 
 

Selected 

States State 

Arizona 

ES Stand 

AloneCode 

X-3 

Top/Med/Low 

In Veterans 

Ranking 

Top Third 

Veteran 

Ranking 

14 

Census 

Region 

West 

Top/Med/Low 

Total State 

Population 

Top Third 

Top/Med/Low 

in Population 

Density 

Medium Third 

South Carolina X-3 Medium Third 19 South Medium Third Medium Third 

 Kansas X-3 Medium Third 26 Midwest Medium Third Low Third 

Delaware X-2 Top Third 17 South Low Third Top Third 

Arkansas X-2 Medium Third 19 South Medium Third Low Third 

North Carolina X-2 Medium Third 26 South Top Third Top Third 

Tennessee X-2 Medium Third 33 South Top Third Medium Third 

Illinois X-2 Low Third 46 Midwest Top Third Top Third 

 California X-2 Low Third 49 West Top Third Top Third 

Montana X-1 Top Third 2 West Low Third Low Third 

 Virginia X-1 Top Third 5 South Top Third Top Third 

Oklahoma X-1 Top Third 10 South Medium Third Low Third 

West Virginia X-1 Top Third 10 South Low Third Medium Third 

Hawaii X-1 Top Third 14 West Low Third Top Third 

New Mexico X-1 Top Third 17 West Low Third Low Third 

Iowa X-1 Medium Third 29 Midwest Medium Third Low Third 

Kentucky X-1 Low Third 35 South Medium Third Medium Third 

Connecticut X-1 Low Third 44 Northeast Medium Third Top Third 

 Alaska X Top Third 1 West Low Third Low Third 

Wyoming X Top Third 3 West Low Third Low Third 

Maine X Top Third 4 Northeast Low Third Low Third 

Washington X Top Third 6 West Top Third Medium Third 

New Hampshire X Top Third 7 Northeast Low Third Medium Third 

Nevada X Top Third 8 West Low Third Low Third 

South Dakota X Top Third 9 Midwest Low Third Low Third 

 Florida X Top Third 10 South Top Third Top Third 

Idaho X Top Third 10 West Low Third Low Third 

Oregon X Top Third 14 West Medium Third Low Third 

Missouri X Medium Third 21 Midwest Medium Third Medium Third 

Alabama X Medium Third 22 South Medium Third Medium Third 

North Dakota X Medium Third 22 Midwest Low Third Low Third 

Colorado X Medium Third 24 West Medium Third Low Third 

Nebraska X Medium Third 25 Midwest Low Third Low Third 

Vermont X Medium Third 28 Northeast Low Third Medium Third 

Maryland X Medium Third 29 South Medium Third Top Third 

Pennsylvania X Medium Third 29 Northeast Top Third Top Third 

 Ohio X Medium Third 32 Midwest Top Third Top Third 

Indiana X Medium Third 34 Midwest Top Third Medium Third 

Georgia X Low Third 35 South Top Third Medium Third 

Wisconsin X Low Third 37 Midwest Medium Third Medium Third 

Minnesota X Low Third 38 Midwest Medium Third Medium Third 

Louisiana X Low Third 39 South Medium Third Medium Third 

Michigan X Low Third 40 Midwest Top Third Top Third 

Mississippi X Low Third 41 South Medium Third Medium Third 

Rhode Island X Low Third 41 Northeast Low Third Top Third 

Texas X Low Third 43 South Top Third Medium Third 

Final Report -- Evaluation of the POS Requirement Page 9 
 

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EXHIBIT 1-2: STATE SITE SELECTION CRITERIA
 
 

Selected 

States State 

Massachusetts 

ES Stand 

AloneCode 

X 

Top/Med/Low 

In Veterans 

Ranking 

Low Third 

Veteran 

Ranking 

45 

Census 

Region 

Northeast 

Top/Med/Low 

Total State 

Population 

Top Third 

Top/Med/Low 

in Population 

Density 

Top Third 

Utah X Low Third 46 West Medium Third Low Third 

District of Columbia X Low Third 48 South Low Third Top Third 

 New Jersey X Low Third 49 Northeast Top Third Top Third 

New York X Low Third 51 Northeast Top Third Top Third 

Note: ES Office code (from GAO Survey) is as follows: X - States without Stand-Alone ES Offices; XStates with Stand-Alone ES offices, with the following subcategories: X-1 - Affiliated with One-Stop 

System; X-2 - Unaffiliated with One-Stop Career Center System; and X-3 - Both Unaffiliated and Affiliated 

with One-Stop Career Center System. Table is sorted in order by the following columns: first by “ESStand-Alone Code; then by Veterans’ Ranking (among states). 

EXHIBIT 1-3: SEVEN CANDIDATE STATES SELECTED FOR SITE VISITS 

State 

Kansas 

ES Stand 

AloneCode 

X-3 

Top/Med/Low 

In Veterans 

Ranking 

Medium Third 

Veteran 

Ranking 

26 

Census 

Region 

Midwest 

Top/Med/Low 

Total State 

Population 

Medium Third 

Top/Med/Low 

in Population 

Density 

Low Third 

California X-2 Low Third 49 West Top Third Top Third 

Virginia X-1 Top Third 5 South Top Third Top Third 

Alaska X Top Third 1 West Low Third Low Third 

Florida X Top Third 10 South Top Third Top Third 

Ohio X Medium Third 32 Midwest Top Third Top Third 

New Jersey X Low Third 49 Northeast Top Third Top Third 

EXHIBIT 1-4: SEVEN CANDIDATE LOCAL AREAS SELECTED FOR SITE VISITS
 

State Local Area Selected 

Type of 

Local 

Area 

Rural 

Percent 

Veteran 

N/A 

Veteran 

Ranking 

Kansas Area II (Heartland Works – Junction City) N/A

California Golden Sierra Job Training Agency (Auburn) Rural N/A N/A 

Virginia Virginia Beach-Norfolk-Newport News, VA-NC Metro Area Urban 19.4% 11 

Alaska Anchorage, AK Metro Area Urban 15.0% 66 

Florida Jacksonville, FL Metro Area Urban 16.6% 42 

Ohio Toledo, OH Metro Area Urban 10.5% 348 

New Jersey Newark-Union, NJ-PA Metro Division Urban 7.0% 511 

Note: For four urban areas, percentage of adult population that are veterans is shown, along with ranking 

out of 528 metropolitan/micropolitan areas, according to 2006 American Community Survey. 

Final Report -- Evaluation of the POS Requirement Page 10 
	 

	 

	 

	 

	 

	 

	 Concentration of Veterans within State – three states (Virginia, Florida, and Alaska) 

were ranked in the top third in terms of the percentage of veterans in the adult population; 

two states (Kansas and Ohio) in the middle third, and 2 states (California and New 

Jersey) in the lower third. 

	 Representation from 4 Census Regions: 2 states were from the West (California and 

Alaska), 2 states are from the South (Florida and Virginia), 2 states are from the Midwest 

(Kansas and Ohio), and 1 state from the Northeast (New Jersey). 

	 Representation of Large/Small States (in terms of state population): 5 states were 

from the top third (California, Virginia, Florida, Ohio, and New Jersey); 1 state was from 

the middle third (Kansas); and one from the lower third (Alaska). 

 Population Density: 5 states were from the top third (California, Virginia, Florida, 

Ohio, and New Jersey) and 2 states were from the lower third (Kansas and Alaska). 

Once the states were selected, the study team then selected one LWIA within each state. Five of 

the seven slots were set aside for metropolitan areas and two slots for areas that were 

predominantly small town or rural in nature. In selecting the metropolitan areas, the team 

wanted to get a mixture of urban areas that had high and low concentrations of veterans (see 

Exhibit 1-4 for seven local areas selected for visits). The study team used Census Bureau data 

(from the American Community Survey for 2006) to identify several metropolitan areas ranked 

among the highest in the nation in terms of percentage of veterans within the local population 

 (Virginia-Virginia Beach; Alaska-Anchorage; Florida-Jacksonville). Researchers selected one 

metropolitan area that was in the middle of the rankings in terms of the percentage of veterans 

(Ohio-Toledo) and one ranked very low (New Jersey-Newark). 

Once final approval was received from the ETA Project Officer on the states and local 

sites to be visited, the project team moved forward with scheduling each visit. The scheduling 

began with notification of each ETA regional office of the planned visit to a state within its 

region. The project staff then contacted the appropriate state-level personnel within each 

candidate state to provide background about the study, to begin identifying potential dates for the 

Final Report -- Evaluation of the POS Requirement Page 11 
one-day visit to the state, and to identify individuals that should be contacted at the local level to 

make arrangements for the visit to the selected locality. The project team used the discussion 

guides provided in Appendices B and C) during visits to the seven states and one local workforce 

areas within each state. Two researchers were sent for one-day visits to each of the seven states 

and one-day visits to each local workforce area. Site visits occurred between October 2008 and 

April 2009. Site visits at the state level included interviews with officials from the state 

workforce investment agency and VETS; at the local level, interviews were conducted with 

administrators and staff at one or more One-Stop Career Centers, and as appropriate, the local 

workforce investment board (LWIB) and employment service (ES) offices. Local visits included 

interviews with LVER and DVOP staff, as well as other One-Stop Career Center staff involved 

in serving veterans. Following each state and local site visit, the project team prepared 

summaries to highlight key site visit findings. Copies of these site visit summaries are attached 

in Appendix D. 

Secure and Analyze Relevant DOL Aggregate and Participant-Level Data. Several 

of the questions posed under this study required analysis of readily available large-scale 

participant databases, for example: How do the employment outcomes for veterans compare to 

non-veterans? Has the priority of service provision impacted the mix of services available to 

veterans? The project team investigated several available databases, but determined that the best 

possible database to address these types of questions was the Workforce Investment Act 

Standard Record Data (WIASRD) database. As discussed in greater detail in Chapter 2, the team 

was able to conduct regression analyses, which examined the variation in services provided and 

outcomes for veterans versus non-veterans exiting from the Workforce Investment Act Adult and 

Dislocated Worker Programs. 

Final Report -- Evaluation of the POS Requirement Page 12 
Collect Other Background Information Relating to the Feasibility of a Survey of 

Veterans And Analyze Feasibility of Such a Survey. Finally, as part of this project, the study 

team assessed the feasibility of conducting a future survey of veterans that could be used to 

assess the extent to which ETA workforce programs are providing priority of service as required 

by the JVA. As part of this study task, the research team prepared a sampling plan, survey 

instrument, and OMB clearance package that could be used should ETA or Congress determine 

that in the near future that such a survey would be useful. This OMB package and survey 

instrument is attached in Appendix E. 

C. Organization of the Report 

The remainder of this report is organized into four chapters. Chapter 2 summarizes 

results of statistical analyses of the Workforce Investment Act Standard Record Data (WIASRD) 

aimed at examining the similarities and differences for veterans versus non-veterans in terms of 

WIA exiter characteristics, service mix, and outcomes. Chapter 3 summarizes results of 

telephone interviews with representatives of national veterans’ organizations and workforce 

organizations, which focused on implementation of priority of service for veterans within the 

public workforce system. Chapter 4 reports on key findings from interviews conducted with 

state and local workforce agency administrators during site visits to seven states. These 

interviews examined policies and implementation of POS, as well as ways in which veteran 

services are structured and delivered through the One-Stop Career Center system. The final 

chapter in this report provides a summary of key study findings and some next possible steps for 

assessing POS implementation. In addition, this report includes several appendices, which 

provide more details about the site visits and other data collection and analysis activities 

conducted under this study. 

Final Report -- Evaluation of the POS Requirement Page 13 
 

CHAPTER 2: 

FINDINGS FROM AGGREGATE DATA ANALYSES OF WIA ADULT AND 

DISLOCATED WORKER DATA 

A. Background 

This section of the report summarizes results of statistical analyses of the Workforce 

Investment Act Standard Record Data (WIASRD). These analyses focus on similarities and 

differences for veterans versus non-veterans in terms of WIA exiter characteristics, service mix, 

and outcomes. The analysis relied on the WIASRD public use files for 2004, 2005, and 2006. 

Data was pooled and sampled from the overlapping public use files to use the most recent and 

accurate records. The final dataset was composed of WIASRD records of Adult and Dislocated 

Worker Program exiters during program years 2003, 2004, and 2005.7 The analyses include both 

descriptive statistics and regression analyses. The descriptive statistics compare the veteran and 

non-veteran participants in the Adult and Dislocated Worker Programs on a variety of factors, 

including background characteristics, patterns of service receipt, and employment outcomes. 

The regression analysis determines if there is a statistically significant relationship between 

being a veteran (holding selected other background characteristics constant) and receipt of 

assisted core, intensive, and training services under WIA. The analyses presented were 

conducted on data for program years in which POS was in effect, but prior to the issuance of the 

Final Rule for POS for covered persons in the Federal Register. 

7

 National Emergency Grant (NEG) exiters have been excluded from this analysis. 

Final Report -- Evaluation of the POS Requirement Page 14 
 

 

 

 

B. Descriptive Statistics 

Exhibit 2-1 presents the background characteristics of Adult and Dislocated Worker 

Program participants who exited the WIA Program during program years 2003, 2004, and 2005.8 

Veteran participants were found to be different from non-veterans on many of the variables. 

When compared to WIA non-veteran exiters, veteran exiters in both the Adult and Dislocated 

Worker Programs were more likely to be: 

 male; 

 in the two oldest age categories (45 to 54 years old and 55 years or older); 

 white and non-Hispanic; 

 have education beyond high school (though data were missing on education for about 

one-quarter of non-veterans and one-third of veterans); 

 have a disability; 

 not employed at registration; and 

 an Unemployment Insurance (UI) claimant or exhaustee. 

The differences observed between the veteran and non-veteran WIA Adult and Dislocated 

Worker Program exiters paralleled some of the same characteristic differences observed in 

veterans versus non-veterans in the overall U.S. labor force. 

As shown in Exhibit 2-2, when compared to non-veterans in the U.S. labor force in 2005, 

veterans were generally more likely to be: 

 male; 

 in the oldest age category (55 years or older); 

 white and non-Hispanic; 

 have education beyond high school; 

 have a disability; and 

 not living below 185 percent of the poverty line. 

8

 A veteran was defined as any person who served in the active U.S. military, naval, or air service, regardless of 

length of service, and who was discharged or released from such service under conditions other than dishonorable. 

We also included other eligible individuals such as military spouses and widows as well as individuals forcibly 

detained or interned in the line of duty by a foreign government. 

Final Report -- Evaluation of the POS Requirement Page 15 
 

 

 

 

 

 

 

 

 

 

 

 

 

EXHIBIT 2-1: BACKGROUND CHARACTERISTICS OF WIA ADULT AND 

DISLOCATED WORKER EXITERS, PROGRAM YEARS 2003 – 2005 

BACKGROUND 

CHARACTERISTICS 

WIA ADULT EXITERS (%) WIA DISLOCATED WORKER EXITERS (%) 

NON-VETERAN VETERAN NON-VETERAN VETERAN 

Program Year 

2003 31.1 33.0 35.3 35.5 

2004 33.9 32.3 33.2 33.1 

2005 35.0 34.8 31.5 31.4 

Gender 

Male 40.2 80.9 43.4 87.8 

Female 59.8 19.0 56.6 12.2 

Age at Participation 

21 or Less 12.7 4.6 2.7 1.2 

22 to 29 29.2 16.2 15.1 9.0 

30 to 44 37.6 37.7 42.8 34.2 

45 to 54 15.0 27.4 28.7 31.8 

55 or Older 5.5 14.1 10.8 23.8 

Race/Ethnicity 

Hispanic 17.5 8.1 13.8 5.9 

Black (non-Hispanic) 32.8 36.4 21.0 20.9 

White (non-Hispanic) 41.6 50.9 57.5 69.2 

Other (non-Hispanic) 6.6 3.9 6.2 3.1 

Missing 1.5 0.7 1.5 0.9 

Highest School Grade Completed 

Less Than H.S. 12.7 3.1 8.6 2.6 

H.S. Graduate or GED 40.3 37.6 41.5 39.1 

Education beyond H.S. 21.5 28.5 31.8 38.5 

Missing 25.6 30.9 18.2 19.8 

Disability 

Yes 4.7 23.0 2.8 13.3 

No 95.3 77.0 97.2 86.7 

Employed at Registration 

Yes 23.5 17.7 8.8 8.3 

No 76.5 82.3 91.2 91.7 

Limited English Proficiency 

Yes 4.1 0.5 4.6 0.5 

No 73.4 70.0 79.7 81.5 

Missing 22.6 29.5 15.7 18.1 

Unemployment Compensation 

Claimant or Exhaustee 15.9 20.1 62.3 62.0 

Neither 58.9 47.2 17.6 14.7 

Missing 25.1 32.6 20.0 23.3 

Low Income 

Yes 47.1 38.7 1.8 1.0 

No 27.4 29.8 2.1 1.9 

Missing 25.5 31.6 96.2 97.1 

Total Sample (N) 664,627 47,673 441,006 46,637 

Source: WIASRD Public Use Data files, Authors’ Calculations 

Final Report -- Evaluation of the POS Requirement Page 16 
 

 

EXHIBIT 2-2: BACKGROUND CHARACTERISTICS OF 

U.S. LABOR FORCE IN 2005 

 BACKGROUND CHARACTISTICS 

U.S. LABOR FORCE IN 2005 (%) 

NON-VETERAN VETERAN 

Gender 

Male 49.4 90.2 

Female 50.6 9.8 

Age at Participation 

21 or Less 8.8 1.5 

22 to 29 18.4 7.8 

30 to 44 36.3 27.2 

45 to 54 23.2 22.9 

55 or Older 13.3 40.7 

Race/Ethnicity 

Hispanic 14.3 5.8 

Black (non-Hispanic) 11.1 11.8 

White (non-Hispanic) 67.9 78.8 

Other (non-Hispanic) 6.7 3.6 

Highest School Grade Completed 

Less Than H.S. 13.4 5.2 

H.S. Graduate or GED 28.5 29.1 

Education beyond H.S. 57.0 64.6 

Disability 

Yes 7.1 11.1 

No 92.9 88.9 

Employed or Serving in the Armed Forces 

Yes 93.1 94.9 

No 6.9 5.2 

Limited English Proficiency 

Yes 5.4 0.5 

No 15.3 7.4 

Missing 79.4 92.2 

Living below 185 % Poverty Line 

Yes 20.6 11.3 

No 79.4 88.7 

Total Unweighted Sample (N) 1,251,483 165,466 

Total Weighted Sample (N) 130,700,000 15,470,000 

Source: American Community Survey 2005 Microdata, Authors’ Calculations 

Final Report -- Evaluation of the POS Requirement Page 17 
As shown in Exhibit 2-3, when comparing the veteran WIA Adult and Dislocated 

Worker Program exiters to the overall veteran population in the labor force, we see general 

similarities in the two populations. However, those veterans served by the WIA Adult Program 

(in PY 2003-PY 2005), for example, were somewhat more likely (than U.S. veteran population 

as a whole) to be female, be in the two middle age categories (30 to 54 years of age), be black, 

and have a disability. 

Analyses of WIASRD data indicate that (for PY 2003-05) WIA veterans and non-veteran 

exiters had generally similar patterns of service receipt, though WIA Adult veteran exiters 

exhibited slightly lower rates of service receipt in comparison to the non-veteran exiters (see 

Exhibit 2-4). For example, with regard to the WIA Adult Program, veterans were slightly less 

likely to receive intensive services (68.7 percent for veterans versus 74.5 percent of nonveterans), to receive training services (53.3 percent for veterans versus 56.5 percent of nonveterans); and to establish ITAs (22.1 percent for veterans versus 27.1 percent of non-veterans). 

With regard to the WIA Dislocated Worker Program, patterns of receipt of service for veterans 

and non-veterans were very similar (i.e. less than a two percentage point difference between 

veterans and non-veterans on receipt of intensive services, training, and ITAs). It is important to 

keep in mind that higher or lower levels of service receipt by veterans do not necessary indicate 

that veterans are or are not receiving priority of services under the WIA Program. For example, 

differential levels of service receipt may reflect that veterans come from a culture where they are 

less likely to accept additional services beyond the assisted core services. Veterans also may be 

less likely to require additional services because they have higher levels of education, are older, 

have more work-related experience, or are less likely to be living in a low-income family. 

Final Report -- Evaluation of the POS Requirement Page 18 
 

 

EXHIBIT 2-3: COMPARING VETERAN BACKGROUND CHARACTERISTICS 

BETWEEN WIA ADULT AND DISLOCATED WORKER PROGRAM EXITERS AND 

VETERANS IN THE U.S. LABOR FORCE 

BACKGROUND CHARACTERISTICS 

VETERANS EXITING VETERANS EXITING VETERANS IN 

WIA ADULT WIA DISLOCATED THE U.S. LABOR 

PROGRAM WORKER PROGRAM FORCE IN 2005 

PY 2003-2005 (%) PY 2003-2005 (%) (%) 

Gender 

Male 80.9 87.8 90.2 

Female 19.0 12.2 9.8 

Age at Participation 

21 or Less 4.6 1.2 1.5 

22 to 29 16.2 9.0 7.8 

30 to 44 37.7 34.2 27.2 

45 to 54 27.4 31.8 22.9 

55 or Older 14.1 23.8 40.7 

Race/Ethnicity 

Hispanic 8.1 5.9 5.8 

Black (non-Hispanic) 36.4 20.9 11.8 

White (non-Hispanic) 50.9 69.2 78.8 

Other (non-Hispanic) 3.9 3.1 3.6 

Missing 0.7 0.9 0.0 

Highest School Grade Completed 

Less Than H.S. 3.1 2.6 5.2 

H.S. Graduate or GED 37.6 39.1 29.1 

Education beyond H.S. 28.5 38.5 64.6 

Missing 30.9 19.8 0.0 

Disability 

Yes 23.0 13.3 11.1 

No 77.0 86.7 88.9 

Total Unweighted Sample (N) 47,673 46,637 165,466 

Total Weighted Sample (N) 47,673 46,637 15,470,000 

Source: American Community Survey 2005 Microdata (Authors’ Calculations), WIASRD Public Use 

Data files (Authors’ Calculations) 

Final Report -- Evaluation of the POS Requirement Page 19 
 

 

 

 

 

 

 

 

 

 

 

 

 


 
 

EXHIBIT 2-4: SERVICE RECEIPT AMONG WIA ADULT AND DISLOCATED 

WORKERS PARTICIPANTS, PROGRAM YEAR 2003 – 2005
 

TYPE OF SERVICE RECEIVED 

WIA ADULT EXITERS (%) WIA DISLOCATED WORKER 

EXITERS (%) 

NON-VETERAN VETERAN NON-VETERAN VETERAN 

Intensive Services 

Yes 74.5 68.7 82.8 80.9 

No 25.5 31.3 17.3 19.1 

Training Services 

Yes 46.7 43.5 52.1 52.6 

No 53.3 56.5 47.9 47.4 

Support Services 

Yes 18.7 19.3 19.0 17.8 

No 81.3 80.8 81.0 82.2 

Established ITA 

Yes 27.1 22.7 35.7 35.8 

No 57.1 56.5 53.9 51.9 

Missing 15.8 20.8 10.4 12.3 

Pell Grant Recipient 

Yes 5.7 3.5 3.7 2.6 

No 71.4 66.7 79.6 78.3 

Missing 23.0 29.7 16.7 19.1 

Total Sample (N) 664,627 47,673 441,006 46,637 

Source: WIASRD Public Use Data files, Authors’ Calculations 

EXHIBIT 2-5: EMPLOYMENT OUTCOMES OF ADULT AND DISLOCATED 

WORKER PARTICIPANTS, PROGRAM YEARS 2003 – 2005 

EMPLOYMENT OUTCOME 

WIA ADULT EXITERS 

(%) 

WIA DISLOCATED 

WORKER EXITERS (%) 

NON-VETERAN VETERAN NON-VETERAN VETERAN 

Employed in -- 

3rd Qtr Prior to Participation Qtr. 55.7 54.9 75.8 73.8 

2nd Qtr Prior to Participation Qtr. 55.3 55.1 73.4 71.6 

1st Qtr After Exit Qtr. 72.6 70.7 77.7 75.3 

2nd Qtr After Exit Qtr. 70.2 67.7 76.8 73.9 

Average Earnings in -- 

3rd Qtr Prior to Participation Qtr. $2,463 $2,998 $6,012 $7,294 

2nd Qtr Prior to Participation Qtr. $2,374 $2,894 $5,716 $6,924 

1st Qtr After Exit Qtr. $3,619 $3,925 $4,905 $5,432 

2nd Qtr After Exit Qtr. $3,666 $3,920 $5,046 $5,517 

Total Sample (N) 664,627 47,673 441,006 46,637 

Source: WIASRD Public Use Data files, Authors’ Calculations 

Final Report -- Evaluation of the POS Requirement Page 20 
 

Exhibit 2-5 provides analysis of employment outcomes for veterans and non-veterans 

exiting in PY 2003 through PY2005. As shown in the exhibit, veteran and non-veteran exiters 

exhibited very similar patterns in terms of pre- and post-employment rates (i.e., less than a three 

percentage point difference in employment rates between WIA veterans and non-veterans in both 

the WIA Adult and Dislocated Worker Programs). However, veterans earned substantially more 

before entering the program, as well as after exiting the WIA Adult and Dislocated Worker 

Programs. The higher average earnings before entry into WIA may reflect that veterans 

enrolling in WIA come to the program with more work-related experience and educational 

qualifications – and hence, perhaps also may have less need (or desire) for training services. 

Exhibit 2-6 and Exhibit 2-7 break out the background characteristics, service receipt, 

and outcomes of WIA Adult and Dislocated Worker Program participants (veterans versus nonveterans) by program year (i.e., for PY 2003, 2004, and 2005). There does not appear to be any 

clear time trend that can be observed in the data. Generally, the background characteristics, 

service receipt patterns and outcomes are similar over all of the years for both the WIA Adult 

and Dislocated Worker Programs. 

C. Regression Analyses 

Ordinary least squares regression analysis was used to determine relationships between 

the participant characteristics and service receipt. This approach permits analysis of the effect of 

specific characteristics, such as veteran status, while holding constant other characteristics, such 

as age and gender. A “linear probability model” was used to estimate the relationship between 

either the receipt of intensive services or receipt of training and individual characteristics.9 The 

9

 In the cases where values were missing for an explanatory variable and the missing values for that variable were 

relatively few, a dummy variable was assigned indicating a missing value for the variable. 

Final Report -- Evaluation of the POS Requirement Page 21 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

EXHIBIT 2-6: WIA ADULT EXITER CHARACTERISTICS AND EXPERIENCE BY 

PROGRAM YEAR 

 BACKGROUND 

CHARACTERISTICS 

PY 2003 (%) PY 2004 (%) PY 2005 (%) 

NONVETERAN VETERAN NONVETERAN VETERAN NONVETERAN VETERAN 

Gender 

Male 41.0 84.7 39.9 79.6 39.6 78.6 

Female 58.9 15.3 60.0 20.4 60.3 21.4 

Age at Participation 

21 or Less 12.2 3.2 12.8 5.4 13.0 5.1 

22 to 29 28.7 13.9 29.5 17.3 29.3 17.5 

30 to 44 38.8 38.8 37.5 37.4 36.7 37.0 

45 to 54 14.9 29.3 14.8 26.3 15.4 26.6 

55 or Older 5.4 14.8 5.5 13.6 5.6 13.9 

Race/Ethnicity 

Hispanic 16.4 8.3 17.9 7.2 17.9 8.6 

Black (non-Hispanic) 32.2 34.2 33.4 38.1 32.7 36.9 

White (non-Hispanic) 44.5 52.9 40.1 50.2 40.3 49.6 

Other (non-Hispanic) 6.0 4.1 7.2 3.8 6.8 4.1 

Missing 0.9 0.5 1.4 0.7 2.3 0.8 

Highest School Grade 

Completed 

Less Than H.S. 14.2 3.5 12.2 2.7 11.9 2.9 

H.S. Graduate or GED 42.3 40.4 39.2 35.6 39.6 36.7 

Education beyond H.S. 22.4 30.0 20.7 28.0 21.4 27.6 

Missing 21.1 26.1 27.9 33.7 27.2 32.8 

Disability 

Yes 5.3 20.6 4.6 24.5 4.2 23.9 

No 94.7 79.4 95.4 75.6 95.8 76.1 

Employed at Registration 

Yes 22.5 17.1 21.7 16.5 26.0 19.3 

No 77.5 82.9 78.3 83.5 74.0 80.7 

Limited English Proficient 

Yes 4.1 0.5 4.5 0.5 3.6 0.6 

No 75.4 74.6 72.9 66.4 72.0 68.9 

Missing 20.5 24.8 22.6 33.1 24.4 30.5 

Unemployment 

Compensation 

Claimant or Exhaustee 16.8 20.9 17.6 20.9 13.6 18.6 

Neither 55.8 45.8 59.1 45.2 61.6 50.5 

Missing 27.5 33.3 23.3 33.8 24.8 30.9 

Low Income 

Yes 48.3 41.1 51.1 37.8 42.0 37.2 

No 24.0 28.9 25.5 28.8 32.4 31.5 

Missing 27.7 30.1 23.4 33.4 25.6 31.3 

Final Report -- Evaluation of the POS Requirement Page 22 
 

 

 

 

 

 

 

 

 

 

 

 

 

EXHIBIT 2-6 (CONT’D): WIA ADULT EXITER CHARACTERISTICS AND 

EXPERIENCE BY PROGRAM YEAR 

 BACKGROUND 

CHARACTERISTICS 

PY 2003 (%) PY 2004 (%) PY 2005 (%) 

NONVETERAN VETERAN NONVETERAN VETERAN NONVETERAN VETERAN 

Services Received 

Intensive Services 

Yes 74.2 71.6 75.7 66.3 73.5 68.2 

No 25.8 28.5 24.3 33.7 26.5 31.8 

Training Services 

Yes 47.5 47.2 47.2 42.4 45.6 41.0 

No 52.5 52.8 52.8 57.6 54.4 59.0 

Support Services 

Yes 18.0 20.0 18.8 18.2 19.2 19.5 

No 82.0 80.0 81.3 81.8 80.8 80.5 

Established ITA 

Yes 26.3 22.1 28.1 24.1 26.9 22.1 

No 73.7 77.9 50.2 44.1 49.1 47.8 

Missing 0.0 0.0 21.8 31.9 24.0 30.2 

Pell Grant Recipient 

Yes 5.5 3.3 5.8 3.9 5.8 3.4 

No 71.4 69.6 72.5 64.2 70.3 66.4 

Missing 23.2 27.2 21.7 31.9 24.0 30.2 

Employment Outcomes 

Employed in -­

3rd Qtr Prior to Participation Qtr. 56.1 57.0 54.8 53.5 56.1 54.3 

2nd Qtr Prior to Participation Qtr. 55.1 55.3 54.6 54.5 56.3 55.5 

1st Qtr After Exit Qtr. 72.6 71.5 73.0 71.2 72.2 69.6 

2nd Qtr After Exit Qtr. 70.0 67.7 70.7 68.7 69.9 66.9 

Average Earnings in -­

3rd Qtr Prior to Participation Qtr. $2,426 $3,228 $2,339 $2,796 $2,615 $2,970 

2nd Qtr Prior to Participation Qtr. $2,298 $3,030 $2,241 $2,701 $2,569 $2,946 

1st Qtr After Exit Qtr. $3,430 $3,865 $3,549 $3,827 $3,854 $4,071 

2nd Qtr After Exit Qtr. $3,472 $3,818 $3,579 $3,872 $3,921 $4,061 

Total Sample (N) 206,403 15,712 225,433 15,377 232,791 16,584 

Source: WIASRD Public Use Data files, Authors’ Calculations 

Final Report -- Evaluation of the POS Requirement Page 23 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

EXHIBIT 2-7: WIA DISLOCATED WORKER EXITER CHARACTERISTICS AND 

EXPERIENCE BY PROGRAM YEAR 

 BACKGROUND 

CHARACTERISTICS 

PY 2003 (%) PY 2004 (%) PY 2005 (%) 

NON- VETERAN NON- VETERAN NON- VETERAN VETERAN VETERAN VETERAN 

Gender 

Male 45.2 90.8 42.9 87.2 41.8 84.8 

Female 54.7 9.2 57.1 12.7 58.2 15.1 

Age at Participation 

21 or Less 2.5 0.9 2.8 1.3 2.8 1.5 

22 to 29 15.1 7.1 15.2 8.9 15.0 11.1 

30 to 44 44.5 34.8 42.6 34.4 41.0 33.3 

45 to 54 28.0 34.3 28.7 31.1 29.5 29.7 

55 or Older 10.0 22.9 10.8 24.4 11.6 24.4 

Race/Ethnicity 

Hispanic 12.5 6.4 14.5 5.3 14.4 6.2 

Black (non-Hispanic) 20.5 19.4 20.7 20.9 21.7 22.5 

White (non-Hispanic) 58.8 70.5 56.7 69.6 56.8 67.2 

Other (non-Hispanic) 7.2 3.2 6.2 2.9 5.4 3.1 

Missing 1.0 0.5 1.9 1.3 1.7 1.0 

Highest School Grade 

Completed 

Less Than H.S. 8.6 2.7 8.3 2.6 8.8 2.5 

H.S. Graduate or GED 42.5 40.7 41.3 39.4 40.6 37.1 

Education beyond H.S. 34.7 41.9 31.8 38.9 28.5 34.2 

Missing 14.2 14.7 18.6 19.1 22.2 26.3 

Disability 

Yes 2.8 11.6 2.6 12.8 2.9 15.8 

No 97.3 88.5 97.4 87.2 97.1 84.2 

Employed at Registration 

Yes 7.1 6.3 8.6 8.3 11.0 10.6 

No 92.9 93.7 91.4 91.7 89.0 89.4 

Limited English Proficient 

Yes 3.9 0.4 5.2 0.5 4.7 0.5 

No 82.5 85.2 78.9 80.7 77.5 78.0 

Missing 13.6 14.4 16.0 18.8 17.8 21.5 

Unemployment Compensation 

Claimant or Exhaustee 61.8 60.4 61.9 63.1 63.4 62.6 

Neither 15.7 13.7 20.3 16.1 17.1 14.4 

Missing 22.6 25.9 17.9 20.8 19.5 23.0 

Low Income 

Yes 1.2 0.8 2.9 1.1 1.2 1.1 

No 1.5 1.6 2.8 2.3 1.8 1.9 

Missing 97.3 97.5 94.3 96.7 97.0 97.0 

Final Report -- Evaluation of the POS Requirement Page 24 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

EXHIBIT 2-7 (CONT’D): DISLOCATED WORKER EXITER CHARACTERISTICS 

AND EXPERIENCE BY PROGRAM YEAR 

 BACKGROUND 

CHARACTERISTICS 

PY 2003 (%) PY 2004 (%) PY 2005 (%) 

NONVETERAN VETERAN NONVETERAN VETERAN NONVETERAN VETERAN 

Services Received 

Intensive Services 

Yes 83.6 83.3 83.4 81.4 81.1 77.6 

No 

Training Services 53.9 56.5 53.0 53.1 49.0 47.6 

Yes 

No 

Support Services 

Yes 17.4 17.5 18.5 16.1 21.2 20.0 

No 82.6 82.5 81.5 83.9 78.8 80.0 

Established ITA 

Yes 36.5 37.2 35.8 36.8 34.7 33.2 

No 63.5 62.8 49.7 46.2 47.6 45.4 

Missing 0.0 0.0 14.5 16.9 17.7 21.4 

Pell Grant Recipient 

Yes 3.1 2.4 3.9 2.8 4.2 2.8 

No 79.1 78.6 81.6 80.3 78.1 75.8 

Missing 17.8 19.0 14.5 16.9 17.7 21.4 

Employment Outcomes 

Employed in -­

3rd Qtr Prior to Participation Qtr. 65.9 63.5 80.1 80.2 82.3 78.7 

2nd Qtr Prior to Participation Qtr. 61.7 59.2 78.5 78.5 81.1 78.4 

1st Qtr After Exit Qtr. 78.7 76.9 78.2 76.3 76.2 72.5 

2nd Qtr After Exit Qtr. 77.8 75.3 77.2 74.7 75.3 71.4 

Average Earnings in -­

3rd Qtr Prior to Participation Qtr. $6,114 $7,440 $5,899 $7,437 $6,031 $7,002 

2nd Qtr Prior to Participation Qtr. $5,581 $6,768 $5,677 $7,092 $5,887 $6,893 

1st Qtr After Exit Qtr. $4,923 $5,401 $4,965 $5,587 $4,820 $5,302 

2nd Qtr After Exit Qtr. $5,118 $5,541 $5,043 $5,636 $4,968 $5,363 

Total Sample (N) 155,779 16,577 146,458 15,440 138,769 14,620 

Source: WIASRD Public Use Data files, Authors’ Calculations 

Final Report -- Evaluation of the POS Requirement Page 25 
 
 

dependent variable is estimated as a linear function of the explanatory variables. An advantage 

of this model is that the statistical results are easily interpreted; the regression coefficients show 

the effect a unit change in an explanatory variable has on the outcome variable. The 

interpretation of coefficients depends on what outcome is being analyzed. In this analysis, the 

dependent variable is a binary outcome,10 and the coefficients can be thought of as the 

percentage point change in the probability of the outcome occurring for a one unit change in the 

explanatory variable. 

The same regression model was used to analyze four different outcomes in the data: (1) 

receipt of intensive services in the WIA Adult Program, (2) receipt of training services in the 

WIA Adult Program, (3) receipt of intensive services in the WIA Dislocated Worker Program, 

and (4) receipt of training services in the WIA Dislocated Worker Program. The model 

examines service receipt as a function of the available background characteristics known for 

individual records. That is, participation in either intensive or training services was predicted 

based upon individual socio-demographic characteristics (e.g., age, gender, and veteran status). 

Several variables had to be excluded due to high missing rates observed in the data.11 The 

coefficient on the veteran status variable indicates what effect is specifically attributable to being 

a veteran, holding all other characteristics constant. If we were to take two individuals that are 

identical in every respect except for veteran status, the coefficient would predict how many 

percentage points more likely or less likely the veteran is to receive the service. This 

relationship is not necessarily causal, as that would require that all relevant explanatory variables 

be included in the regression. 

10 Binary outcomes are those that have two dichotomous possibilities: 1) the event occurs or 2) the event does not
 

occur. 

11 These variables included educational attainment, low income status, limited English proficiency, and 

unemployment compensation status. 

Final Report -- Evaluation of the POS Requirement Page 26 
 

In Exhibit 2-8, we present the parameter estimates for the regression analysis. In models 

1 and 3, where we are regressing the receipt of intensive services in the Adult Program 

population and Dislocated Worker Program population, there are statistically significant and 

slightly negative coefficients on the veteran status variable. This indicates that veterans are 

slightly less likely to receive intensive services, holding other characteristics constant. In models 

2 and 4, where we are regressing the receipt of training services among those who received 

intensive services in the Adult and Dislocated Worker Programs, the coefficient on the veteran 

variable is statistically significant and positive. This indicates that among those who receive 

intensive services, veterans are more likely to move on to receive training services. 

One possible interpretation of these results is that, after controlling on relevant characteristics, 

veterans are somewhat less likely to need services beyond assisted core services. There are a 

variety of human capital characteristics (e.g., leadership and motivation) that our model does not 

capture, and it is possible that these missing variables might make it less likely that veterans 

would need additional services. Since veterans typically earn somewhat higher wages from their 

jobs before and after program participation, this is one possible explanation. However, among 

those veterans who do move on to receive intensive services, they tend to be more likely to 

receive training services. 

D. Conclusions 

We are limited in what we can say from the findings from the statistical analysis. Without 

knowing the criteria that are used to determine which customers should receive intensive 

services and training, it is impossible to know if we have included all the key variables in the 

analysis. Also because there are no data available on customers who receive unassisted core 

services, there is no way to analyze this first progression in the service process. While not 

Final Report -- Evaluation of the POS Requirement Page 27 
EXHIBIT 2-8: PARAMETER ESTIMATES OF SERVICE RECEIPT FOR ADULT AND 

DISLOCATED WORKER RECIPIENTS, PY 2003–2005 

Dislocated Worker 

Adult Program Program 

Received Received Received Received 

Intensive Training Intensive Training 

Services Services Services Services 

(1) (2) (3) (4) 

Case Characteristics 

Veteran -0.026 0.063 -0.009 0.032 

(11.43)*** (22.32)*** (4.53)*** (11.76)*** 

Male -0.040 -0.034 -0.015 0.022 

(37.23)*** (25.59)*** (12.65)*** (13.79)*** 

Age 0.002 -0.005 0.001 -0.005 

(32.95)*** (79.52)*** (16.21)*** (66.44)*** 

Employed at Entry 0.065 0.211 -0.005 0.053 

(54.12)*** (142.43)*** (2.70)*** (20.65)*** 

Missing entry employment status 0.171 -0.127 -0.007 -0.130 

(17.63)*** (7.16)*** (0.37) (4.95)*** 

Has a disability -0.072 -0.031 -0.072 -0.057 

(30.49)*** (10.23)*** (22.14)*** (12.93)*** 

Missing disability status 0.000 -0.135 0.003 -0.148 

(0.07) (32.18)*** (0.76) (25.24)*** 

Wages 3 quarters prior to entry (thousands) 0.001 0.006 0.004 0.001 

(4.09)*** (21.11)*** (42.22)*** (7.98)*** 

Race/Ethinicity 

Hispanic 0.080 -0.116 0.038 -0.087 

(57.68)*** (63.70)*** (24.75)*** (36.87)*** 

Black (non-Hispanic) -0.043 -0.085 -0.053 -0.094 

(34.77)*** (56.50)*** (34.85)*** (45.45)*** 

White (non-Hispanic) (excluded category) (excluded category) 

Other (non-Hispanic) 0.034 -0.062 0.024 -0.017 

(14.30)*** (20.53)*** (10.64)*** (4.92)*** 

Missing Race -0.030 -0.120 -0.087 -0.036 

(6.65)*** (22.11)*** (16.29)*** (5.77)*** 

Program Year 

2003 (excluded category) (excluded category) 

2004 0.011 0.015 -0.029 -0.007 

(8.56)*** (9.39)*** (22.79)*** (3.77)*** 

2005 -0.013 -0.002 -0.054 -0.031 

(10.03)*** (1.12) (40.29)*** (16.07)*** 

Constant 0.694 0.764 0.817 0.846 

(339.44)*** (306.36)*** (317.22)*** (241.51)*** 

Observations 705095 545206 462860 395691 

R-squared 0.02 0.07 0.02 0.02 

Robust t statistics in parentheses 

* significant at 10%; ** significant at 5%; *** significant at 1% 

Source: WIASRD Public Use Data files, Authors’ Calculations 

Final Report -- Evaluation of the POS Requirement Page 28 
capable of providing statistically representative results, the site visits to states and local One-Stop 

Career Centers (discussed in Chapter 4 of this report) provide some additional qualitative 

information helpful in interpreting the results of these statistical analyses. 

Final Report -- Evaluation of the POS Requirement Page 29 
 


 

CHAPTER 3: 

FINDINGS FROM INTERVIEWS WITH VETERANS
 

AND WORKFORCE ORGANIZATIONS 

Project staff conducted telephone interviews between March and May 2008 with 

representatives from the four veterans’ organizations: Disabled American Veterans; Veterans of 

Foreign Wars (VFW) of the United States; the American Legion; and Vietnam Veterans of 

America. In addition, representatives of two workforce organizations were interviewed: 

National Association of State Workforce Agencies and the National Association of Workforce 

Boards. Questions for veterans’ organizations and national workforce investment organizations 

are provided in Appendix A. Veterans’ organizations and one of the workforce agencies were 

generally critical of ETA’s handling of POS. However, it should be noted that the perspectives 

of these organizations were provided prior to VETS issuance of the Final Rule on POS in the 

Federal Register (in December 2008) – and so, views could have changed significantly since 

these interviews were conducted. Key findings from these interviews are discussed below. 

POS notification on DOL website (“Questions& Answers”) was not viewed as 

sufficiently detailed or clear – several organizations suggested that DOL needed to issue 

formal regulations on POS, including clearer guidance for individual ETA programs. At 

the time the interviews for this study were conducted with veterans’ and workforce organizations 

(in March through May 2008), DOL had furnished states and local areas with a “Questions and 

Answers” webpage, but had not yet issued formal regulations with regard to POS in the Federal 

Register. Several veterans’ organizations and one of the workforce associations were critical of 

DOL for not following through with issuing formal POS regulations in a timely manner and 

Final Report -- Evaluation of the POS Requirement Page 30 
suggested that the lack of such regulations made it difficult for states and local workforce 

agencies to effectively implement POS across various ETA programs. One organization noted 

that “we asked repeatedly for implementing regulations by DOL relating to POS, but this was 

never done.” A second organization observed: 

“ETA issued TEGL 5-03 in September 2003, which provided general guidance on POS 

(but not specific to each ETA program). ETA said specific guidance per program was 

forthcoming, but guidance has not been issued (note: as of May 2008, when the 

interview was conducted). Overall, our main concern is that no regulations have been 

issued by ETA on POS and that not enough formal guidance has been given to states on 

POS...as a result, states have not been able to guide local WIBs/One-Stops on 

implementation of POS.” 

The guidance provided as part of the ETA’s TEGL was viewed by members of one 

organization’s veterans’ affairs committee as “too vague because it did not have the requirements 

for specific programs – for example, how POS was to be applied to the WIA Adult Program.” 

While this organization did not typically advocate for issuance of regulations because it favors 

greater flexibility for states and local workforce programs; in the case of POS, this organization 

supported additional guidance. This organization noted, for example, that one of the difficulties 

in implementing POS is there is a not one definition for “veteran” across ETA programs – and 

recommended that a single definition for veteran be applied across all ETA programs. 

Information/knowledge of POS at WIBs/One-Stop Career Centers is sometimes 

incomplete or incorrect. Closely related to the lack of definitive regulation, several of the 

organizations interviewed indicated that local workforce agencies, One-Stop Career Centers, and 

One-Stop partnering agencies often had incomplete and varying understanding of POS and how 

it should be applied within their particular program and across the various programs/agencies 

typically co-located at One-Stop Centers. One organization believed that “WIBs are getting 

better at providing POS, though information/knowledge of POS at local level is sometimes 

Final Report -- Evaluation of the POS Requirement Page 31 
incorrect – for example, veterans’ preference is sometimes confused with POS.” A second 

organization felt that some of the difficulty with implementing POS stemmed from the fact that 

certain agencies and programs within One-Stop Career Centers simply did not serve many 

veterans and so did not tend to pay as much attention to the POS requirements (e.g., the WIA 

Youth Program). Another related issue for programs is that individuals must first be eligible for 

a specific program, and only then do POS considerations apply, and they may only be of critical 

importance when there are funding constraints (particularly limited funds for training under a 

program such as WIA). Another organization viewed One-Stop Career Centers as not being 

sufficiently informed about POS and, when confronted by limited resources and staffing levels, 

lumping in most veterans with other One-Stop customers for less intensive services: 

“Sometimes veterans go into One-Stops and they just throw them on a machine (i.e., veterans 

like other One-Stop users are simply referred to self-service and are not referred to assessment 

and other staff-assisted services). Other One-Stops evaluate you and see if you need additional 

services.” 

DOL is not viewed as having sufficiently “promoted” POS. One organization 

expressed concern that ETA had not adequately promoted the importance of POS to state and 

local workforce agencies responsible for implementing (and enforcing) POS. For example, this 

organization felt that “lots of the states would not have known about ETA’s website devoted to 

POS, if our organization had not promoted ETA’s website.” 

DOL has not come up with a method to ensure POS is enforced at state/local levels – 

as a result, there is considerable variability across states in whether and how POS is 

implemented. Several organizations pointed to an overall lack of enforcement with regard to 

Final Report -- Evaluation of the POS Requirement Page 32 
POS by states and local workforce agencies. For example, according to a representative of one 

organization: 

“...There is a lot of variation across local One-Stops in the extent to which veterans 

receive POS. Whether POS is enforced depends to a large extent on the commitment of 

local office managers to serving veterans. One of the biggest problems with regard to 

enforcing POS in the One-Stop system is that local offices do not receive more dollars for 

doing a good job of serving veterans and do not get less funding for doing a worse job of 

serving veterans. So One-Stops have a total license to do what they want – and the extent 

to which POS is enforced is largely dependent upon whether the local office manager is 

committed to serving veterans. Unfortunately, even the good office managers use 

DVOP/LVERs to disproportionately serve non-vets. State and local workforce agencies 

often view funding for veteran services as a cash cow (to subsidize services for nonveterans).” 

Another organization official argued for setting “certain mandatory standards for employment 

and training programs and for the way in which services are implemented –as it currently stands, 

there is not an equal playing field for all veterans with regard to receipt of services – there is a lot 

of variability across states and local areas in terms of services delivered and whether POS is 

enforced.” A representative of a third organization tied uneven and lack of enforcement of POS 

to the fact that formal regulations (i.e., a final rule) had not yet been issued by DOL providing 

clear guidance on both what constituted POS and how states and local workforce areas should 

enforce POS (particularly within One-Stop environments that feature multiple partners with 

widely varying levels of participation by veterans). 

A further challenge cited by several of the organizations, is that even if there is a 

strong commitment to enforcement of POS, it is challenging to determine if veterans are in 

fact receiving POS. One interviewee observed that not even veteran representatives are certain 

what constitutes compliance with POS: “When you talk to DVOPs/LVERS in the field, they 

indicate that it is difficult to measure/quantify if veterans are receiving POS.” An official of a 

second organization pointed to the need for more explicit measures of POS tied to employment 

Final Report -- Evaluation of the POS Requirement Page 33 
 

outcomes and making certain that veteran representatives are focusing their attention squarely on 

the placement of veterans into jobs: 

“...There is a need for real accountability, where services to and placement of veterans in 

jobs are tracked and rewarded. Everyone studies to the test – it is important to hold local 

office managers accountable for using DVOP/LVER staff to serve veterans and to make 

sure staff are going in the field to secure job openings for veterans directly from 

employers. Because of cutbacks in Wagner-Peyser funding, DVOP/LVER staff have 

become a greater percentage of One-Stop staff – with customer service demands high, 

One-Stop managers are under intense pressure to use DVOP/LVER staff to serve nonveterans. One-Stop managers do not get in trouble for doing this.” 

Need for ongoing training/technical assistance on POS. Several agency officials 

pointed to the need for bolstering training and providing technical assistance to One-Stop staff on 

POS. A concerted and ongoing training and technical assistance effort is needed not only 

because of uncertainty and confusion over POS (stemming from the lack of formal 

regulation/guidance), but because within the One-Stop environment there is often a wide variety 

of partners and because even among WIA and Wagner-Peyser staff, there is considerable 

turnover. One agency official, for example, had observed a lot of variation in the types and 

quality of services provided across One-Stops and even within a One-Stop: 

“A problem is that not all One-Stop staff are trained on what you need to do for veterans. 

LVERS/DVOPS are required to get certified...but a lot of them have been there for 20 

years and are not aware of changes in WIA and One-Stop operation. For the veteran 

coming into a One-Stop, it is the luck of the draw. There is no standardization across 

One-Stops – for example, you might walk into one and get a particular set of services, but 

walk into another and you would get a different set of services.” 

A second organization official indicated that the need for training and technical assistance in the 

future is linked to “if regulations are vague or not specific enough – we won’t know if technical 

assistance is needed until regulations are issued.” 

“Half-time” DVOPs/LVERs are viewed as not sufficiently focused on veterans. As 

alluded to earlier, for a number of the organizations interviewed, the flexibility that states and 

Final Report -- Evaluation of the POS Requirement Page 34 
local areas have with respect to assigning veteran representatives to serving both veterans and 

non-veterans within One-Stops is troubling and may undercut POS for veterans. Three of the 

organizations interviewed expressed strong sentiments with regard to using half-time veterans 

representatives. 

Final Report -- Evaluation of the POS Requirement Page 35 
 


 
 

CHAPTER 4: 

FINDINGS FROM SITE VISITS TO STATES
 

AND LOCAL WORKFORCE AREAS 

An important component of this study involved site visits to seven states and one local 

area within each state. The purpose of these visits was to provide an in-depth “on-the-ground” 

understanding of implementation of POS at the state and local levels. The selection of seven 

states provided an opportunity to examine POS implementation across all regions of the country 

and in varying state models of delivery of services (e.g., where ES and WIA are co-located and 

are not co-located within the One-Stop Career Center). Exhibit 4-1 provides an overview of the 

states visited, including background on the state’s population and workforce system. The seven 

states visited (with local areas in parenthesis) were the following: 

 Kansas (Area II – Heartland Works (Junction City) 

 California (Golden Sierra Job Training Agency (Auburn)) 

 Virginia (Virginia Beach-Norfolk-Newport News, VA-NC Metro Area) 

 Alaska (Anchorage, AK Metro Area) 

 Florida (Jacksonville, FL Metro Area) 

 Ohio (Toledo, OH Metro Area) 

 New Jersey (Newark-Union, NJ-PA Metro Division) 

It is important to note that site visits to states were conducted prior to or shortly after the 

Veterans Employment and Training Services (VETS) issuance of the Final Rule on “Priority of 

Service for Covered Persons” in the Federal Register. As a result, the findings in this section are 

reflective of views of states and local workforce areas either prior to issuance of the Final Rule 

or at the very early stages of implementing that rule. The sections that follow summarize the key 

findings from site visits conducted to these seven states. 

Final Report -- Evaluation of the POS Requirement Page 36 
. 

. . . .. . 

EXHIBIT 4-1: OVERVIEW OF SEVEN STATES WHERE SITE VISITS WERE CONDU

.STATE STATE POP. (2008) % VETERAN (RANKING) DISTINGUISHING FEATURES OF STATE AND VETERAN POPULATION # OF LWIBS # ONE- STOPS DISTINGUISHING 

SYSTEM AND/O

Alaska 670,053 14.6% (1) -Largest (geographically) and least densely populated state -State with highest % of veterans, with most residing in Anchorage/Mat-Su 1 5 full- service (total ­ 23) -Single WIB-state (f

-State’s 1-Stop oper-Decrease 12 FTE tover past 10 years 

California 36,457,549 8.0% (49) 

-Most populous state -State with most veterans (2M), but near bottom in % of veterans -Pockets with large numbers of veterans (Los Angeles, San Diego, and Sacramento) 

49 

150 fullservice (total168) 

-Highly decentralizelocal discretion -1-Stop operators argovernment -Veterans more likeservices (through ve

Florida 18,089,888 12.5% (10) 

-Fourth largest state with second largest and fastest growing veteran population (1.9M) -About 10% of those involved in Operation Iraqi Freedom and Operation Enduring Freedom from FL 

24 

17 fullservice (total-92) 

-With funding decrein recent years -TANF, ES, WIA, anoften represented at 

Kansas 2,764,075 11.4% (20) -Fairly sparsely populated, but ranked in middle in % veteran -Home to several large military bases (Ft. Riley, Ft. Leavenworth, and Ft. McConnell 5 5 full- service (total-23) -Different communit

full-service 1-stops -Substantial decline last 15 years (46 to 

New 

Jersey 8,724,560 8.0% (49) 

-Most densely populated state, but ranked near bottom in % of veterans -Two large densely populated metropolitan areas – NYC and Philadelphia -Six large military bases in state (including Ft. Monmouth, Ft Dix and Earle Depot) 

29 

24 fullservice (total-30) 

-LWIBs typically covexceptions -Hiring freeze for paand VETS positions -Steep decrease in vyears 

Ohio 11,478,006 11.1% (32) -Seventh largest state in population, with nearly 1M veterans -Most veterans located in Cleveland, Columbus and Cincinnati 19 30 full- service (total-90) 

-State has a balance 

of state’s counties -Workforce system dlocal discretion -State has had hirin-All veterans repres

Virginia 7,642,884 13.5% (5) 

-With over 800,000 veterans, state has 6 of nation’s top 10 areas with highest veteran concentration -Hampton is U.S. city with highest % of veterans (27% of adult population); Virginia Beach (22%), Norfolk (20%), Newport News (20%), Chesapeake (19%), Portsmouth (19%) -Over 48 military installations in the state (especially concentrated Tidewater and the DC-metro areas) 

15 33 full services 

-WIA administration college system -Some ES offices opsome local areas 
 

A. State and Local Policies Related to POS 

One focus of the site visits to the state and local workforce agencies was to determine 

whether these agencies had issued specific POS policies, and if so, the specific provisions of 

such policies. In all seven states visited, officials indicated that their underlying approach was to 

essentially pass on ETA guidance on POS to local workforce areas. Exhibit 4-2 provides an 

overview of what state agency officials indicated they had done when asked during interviews if 

the state had issued “a specific set of policies at the state level to implement the priority of 

service provision in JVA.” In each state, officials at the local workforce agencies were in 

agreement with what state workforce officials had indicated with respect to issuance of policies. 

In all states visited, state workforce officials indicated that they had made local workforce areas 

aware of the guidance ETA had provided – generally passing on ETA’s Training and 

Employment Guidance Letter (TEGL No. 05-03, issued in September 2003) and making sure 

that all local workforce areas were aware of the existence of ETA’s “Questions and Answers” 

(“Q and A”) website. 

New Jersey’s approach was fairly indicative of what most states did with respect to 

making sure that local workforce agencies understood POS requirements. The state’s workforce 

agency (the New Jersey Department of Labor) distributed state policies and guidance on POS 

through the Department’s web-based “portal” system. The state’s policies exactly mirrored the 

language of DOL’s Training and Employment Guidance Letter (TEGL), specifically providing 

guidance on POS eligibility for veterans and covered persons. The state’s policies emphasized 

that after specific eligibility requirements are met within a given program (e.g., meeting of 

income eligibility or the definition of a “dislocated worker” under WIA), programs with federal 
 

EXHIBIT 4-2: OVERVIEW OF STATE POLICIES ON PRIORITY OF SERVICE 

STATE OVERVIEW OF STATE POLICY GUIDANCE ON PRIORITY OF SERVICE (POS) 

Alaska A set of state policies has been developed and distributed regarding POS for veterans. Policy guidance 

includes a stipulation for POS to be implemented for training in the WIA Adult and Dislocated Worker 

Programs once 65 percent of WIA funding has been obligated within a given program year. 

California Each WIB is required, as part of its annual plan, to state local policies and procedures to ensure POS 

requirements are being met. The basic strategy of the state has been to make sure local areas are 

aware of federal policies (i.e., a straight pass through of DOL guidance, such as the “Qs and As” issued 

on ETA website), without interpretation by state. 

Florida The state does not have specific policy for the regional workforce boards (RWBs) to provide POS. 

However, the state assists RWBs with interpretation of POS, especially through training. State monitors 

POS compliance and has each RWB explain in its two-year report how POS is implemented. 

Kansas In the event funds become limited in relationship to the anticipated population to be served (as 

determined by the WIB), the WIB is to implement a priority system. Priority is to be given to Adult 

recipients of public assistance, other low-income individuals, and to individuals 55 and over. The first 

group to be served is veterans meeting one or more of the categories. The second group to be served is 

a covered person meeting one or more of the categories. The third group to be served is non-veterans 

meeting one or more of the categories. In order to prioritize individuals within each group, points are 

given for each category the individual meets. The individual with the highest points in the group is 

served first. If the points for individuals within the group are equal, the earliest application date is served 

first. The fourth group to be served is veterans meeting none of the categories. 

New Jersey A set of state policies has been developed and distributed regarding POS for veterans through the 

Department’s web-based “portal” system. The state’s policies mirror the language of DOL’s Training 

and Employment Guidance Letter (TEGL). The guidance sets out POS eligibility for veterans and 

covered persons and provides additional guidance on what is meant by POS in terms of veterans 

receiving priority. In particular, the state policies emphasize that after specific eligibility requirements are 

met within a given program (e.g., meeting of income eligibility or the definition of a dislocated worker) 

that programs with federal funding must then give priority to veterans and covered spouses. 

Ohio The basic strategy of the state has been to make sure that local areas are aware of federal policies (i.e., 

a straight pass through of DOL guidance, without interpretation by the state). Each DVOP/LVER has 

been provided with a policy book that defines POS requirements and provides guidance on delivery of 

veteran services. Additionally, the state policy is once a workforce area has entered a limited funding 

situation, defined as WIA funding for the program year being 75 percent obligated, a priority system 

takes effect and governs the enrollments to ensure that the those most in need receive intensive and 

training services. 

Virginia The state does not have a specific POS requirement that addresses veterans only. Rather, each LWIB 

establishes its own POS policies, though these policies must follow state and federal guidelines (e.g., 

TEGLs issued by ETA). The state passes these guidelines and memorandums through to LWIBs, who 

develop their own POS policies and submit them to the state for approval. Virginia’s Priority of Service 

Policy states that in the event that adult funds are determined to be limited, the LWIB must develop a 

priority of service policy. At a minimum, the policy must grant first priority to individuals who are receiving 

public assistance or are classified as “low­ income” in accordance with WIA definitions. Additional 

priorities may also be set for specific populations, such as individuals with significant barriers to 

employment or for participants interested in training for occupations that are in demand in the area. 

Note: Exhibit is based on site visits conducted to states and local workforce areas between November 2008 and 

April 2009. 

Final Report -- Evaluation of the POS Requirement Page 39 
funding must then give priority to veterans and covered spouses. Similarly, California’s 

Employment Development Department (EDD) issued three policy guidance memoranda that 

essentially passed along the federal guidance received with regard to Priority of Service: (1) a 

June 2003 memorandum (“One-Stop Service Priorities for Veterans”), which provided a onepage overview of the requirements of the Jobs for Veterans Act (JVA); (2) a September 2003 

memorandum (“Implementing the Veterans’ Priority Provisions”), which passed on TEGL 5-03 

to each local area; and (3) a July 2004 memorandum, which notified local areas of the ETA 

guidance in the form of a series of Questions and Answers. 

Three of the seven states – Alaska (which has the highest concentration of veterans of 

any state), Ohio, and Kansas -- went beyond passing along the guidance on POS that had been 

issued by ETA. Alaska’s policy guidance included a stipulation that priority of service was to be 

implemented for the WIA Adult and Dislocated Worker Programs once 65 percent of WIA 

funding had been obligated within a given program year: 

“...In the event WIA Adult Program funding becomes sixty-five percent (65%) obligated, 

and other One-Stop partner agency funding is unavailable, the Chief of Field Operations, 

Employment Security Division (ESD), will implement the following priority of service 

when providing WIA Adult Program participants with intensive and/or training services: 

(1) Veterans or a military spouse who are low-income; 

(2) Individuals with disabilities who are low-income; 

(3) Public assistance recipients; 

(4) Other low-income individuals; and 

(5) Individuals who are not self-sufficient. 

The Jobs for Veterans Act does not change the requirement that individuals, to include 

veterans and military spouses, must first qualify as eligible under the WIA Adult Program 

before participation.”12 

Alaska’s policy guidance also includes definitions of “veteran” and “eligible spouse” (based on 

ETA’s TEGL). The Alaska Department of Labor and Workforce Development has had to 

invoke the 65 percent provision the last several program years – and for the most recent program 

Final Report -- Evaluation of the POS Requirement Page 40 
 

year (ending June 2009), the 65 percent threshold was reached during the first quarter of the 

program year. Though notification of the 65 percent provision had gone out to One-Stops, 

(based on interviews at several One-Stops) non-veterans had not yet (as of the visit conducted in 

December 2008) been denied training under WIA as a result of this provision. This was, in part, 

due to the fact that the state has a variety of other training funding sources that could be used, 

including a state-funded training program, National Emergency Grant (NEG) funding, and a 

High Growth Job Training Initiative (HGJTI) grant. The fact that Alaska is a single-WIB state 

and that the One-Stop system is operated in all localities by the Employment Service facilitates 

uniform implementation of POS across One-Stop Centers. 

Similarly, in Ohio, the state policy is once a workforce area has entered a limited funding 

situation, defined as WIA funding for the program year being 75 percent obligated, a priority 

system takes effect and governs the enrollments to ensure those most in need receive intensive 

and training services. 

In Kansas, as shown in Exhibit 4-2, in the event that funds become limited in relation to 

the anticipated populations to be served, LWIBs in the state are required to implement a priority 

of service system. For programs with mandatory priorities (such as serving low-income 

individuals), the state’s policies are explicit with respect to veterans’ priority of service (though 

does not provide explicit guidance on a percent of funds to be expended that would initiate POS): 

“...(1) An individual meeting both the veterans’ and the mandatory priorities or spending 

requirement or limitation should obtain the highest preference for the program. (2) Nonveterans within the program’s mandatory priority should receive a preference over 

eligible veterans outside the program-specific mandatory priority or spending 

requirement or limitation. (3) Eligible veterans outside the program-specific mandatory 

priority or spending requirement or limitation should receive priority over non-veterans 

outside the priority or spending requirement or limitation (once the spending 

requirement or limitation is met).” 

12 State of Alaska, Department of Labor and Workforce Development, Policy Number 310.00, “WIA Adult Program 

Participant Eligibility and Priority of Service,” August 19, 2005. 

Final Report -- Evaluation of the POS Requirement Page 41 
With regard to POS in the Wagner Peyser/ES Program, six of the seven states (all except 

Virginia) had policies with regard to placing a hold on release of job orders to the general public 

for a certain number of hours (e.g., 24 hours), so that veterans have the first opportunity to apply 

for the job. In addition, across all states and local areas visited, there was a policy or procedure 

(though not always formalized in written policy) that at the time of entry into a One-Stop, 

customers are to be asked about their veteran status with the aim of identifying veterans as early 

as possible. This would usually be accomplished by having each new One-Stop customer 

complete a slip of paper or sign-in sheet with basic identifying information, including checking 

off if the individual is a veteran (and, in some instances, an eligible spouse). 

B. Outreach to Veterans 

During visits to states and local areas, the study team inquired about processes and 

special initiatives that workforce agencies undertake to recruit veterans. Exhibit 4-3 provides an 

example of one state’s approach (Kansas) to conducting outreach to veterans, which is closely 

coordinated with the efforts of local workforce boards and One-Stops in the state. The methods 

employed in Kansas are broadly reflective of the approaches followed in other states that were 

visited as part of this study. Outreach efforts are intended to increase awareness of veterans of 

the various services available through the workforce system, and particularly, to encourage 

unemployed and underemployed veterans (and non-veterans) to use One-Stop Career Center 

resource rooms, be assessed, and explore employment and training opportunities. 

Final Report -- Evaluation of the POS Requirement Page 42 
 

EXHIBIT 4-3: EXAMPLE OF ONE STATE’S (KANSAS) OUTREACH ACTIVITIES 

AIMED AT RECRUITING VETERANS INTO THE ONE-STOP CENTERS 

OUTREACH ACTIVITIES DIRECTED AT VETERANS IN KANSAS 

TAP Sessions. TAP workshops are conducted in three different sites across the state: Fort McConnell, Fort 

Leavenworth, and Fort Riley. Sessions at Fort McConnell and Fort Leavenworth are conducted monthly, while those 

at Fort Riley are conducted once each week. A TAP instructor (often a DVOP/LVER from a nearby One-Stop), using 

the nationally-standardized TAP curriculum, provides an overview of veteran services available at One-Stops. 

Several PowerPoint slides provide an overview of One-Stop services, identifying specific types of employment and 

training services available for veterans. Veterans are encouraged to visit One-Stop Centers and are told that they 

will get first referrals to job opening and preference over non-veterans for training. 

DVOP Contact to Veteran Self-Registrants. When veterans self-register via the Internet for Wagner Peyser 

services in Kansas Works, a DVOP is automatically notified in the locality in which the veteran registers. The DVOP 

will follow up with a call to the veteran to inform them of the services available through the One-Stop and particularly 

veteran services. The DVOP will also check to see if the veteran has special needs or faces barriers to employment, 

and if so, will encourage the veteran to come into the One-Stop to meet with a veterans representative. 

Media Advertisement. The Department of Commerce runs quarterly advertisements in nine newspapers across the 

state detailing the One-Stop services available to veterans. A LVER in Hays, Kansas has a radio call-in show 

focused on employment and services available for Veterans. 

Job Fairs for Veterans. The Department of Commerce sponsors outreach events, particularly job fairs that are 

specially targeted on veterans. Each year, job fairs exclusively for veterans are held around the state. For example, 

in November 2008, there were five Veterans job fairs conducted across the state on the same day with a total 

attendance of 1,000 veterans and 200 employers. There are also an annual homeless Veterans “stand-downs” in 

Topeka and Kansas City, during which the Department of Commerce and partnering organizations set up a tent-city 

and inform homeless Veterans about all services available to them, including housing, employment, legal, and 

medical services. A “field” One-Stop office is set up at the stand-down, which include computers that enable 

veterans to register for the ES, search for job openings, and complete resumes with help from a DVOP. 

Linkages to Businesses. The state developed a brochure for Kansas businesses detailing the advantages of hiring 

veterans. The state also developed a brochure for veterans informing them of how to market their skills and work 

experiences to employers. The Department has created additional marketing materials such as pens, clocks, and tshirts featuring the “Hire the Vet” logo. In the more rural areas of the state, veterans representatives know many of 

the employers personally and can use these connections to assist veterans in securing jobs. 

“Vet Links” Website. A website under development (at the time of the site visit), called “Vet Links,” will provide 

information about all services available for veterans, including training, education, job search, marriage counseling, 

financial aid, and business advice. An on-line questionnaire will enable veterans to explore their eligibility for various 

programs and services, and will then automatically generate a resource list with contacts for the veteran – including 

referrals to the One-Stop system. 

Warriors Transition Battalion. This special initiative located at Ft. Riley is designed to help nearly 500 wounded 

military personnel (returning from Iraq and Afghanistan) to make the transition to the civilian sector. A full-time DVOP 

has been assigned to this program to provide one-on-one help that is particularly aimed at helping veterans to obtain 

training and job search assistance. 

Note: Exhibit is based on a site visit conducted to Kansas in January 2009. 

Final Report -- Evaluation of the POS Requirement Page 43 
Outreach efforts are not usually explicitly aimed at informing veterans about priority of service. 

Promotional brochures, advertisements and other outreach sessions rarely (if ever) include 

references to POS, though they typically include references to availability of a veteran 

representative (DVOP/LVER) to meet the special needs of veterans at One-Stop Centers. 

While most states rely upon local workforce areas to promote services available through 

the public employment and training system, each of the states visited conducts some level of 

outreach to inform veterans of employment, training, education, and other support services 

available within the state. In particular, states disseminate promotional brochures/materials, 

sponsor job fairs for veterans, and disseminate information about available services for veterans 

through the state’s website. For example, California’s Employment Development Department 

(EDD) has two brochures that are specifically aimed at informing veterans about employment, 

training, and support services available through the labor exchange (Wagner-Peyser) and WIA 

systems. These brochures have been made available at One-Stops, job fairs, VA hospitals, 

military bases, and other outreach sessions that inform the general public and veterans about 

eligibility and services. In Ohio, for example, the state workforce agency’s website has a special 

page for veterans, which advertizes job fairs and Ohio Transitional Assistance Program (OTAP) 

sessions, as well as describes job seeker/business services available through the One-Stop system 

and how to contact veterans representatives. Florida has a website called “Florida Vets First,” 

which provides links to information on the benefits and services veterans can receive including 

those provided through the workforce development system. 

To a large extent, state workforce agencies rely upon local workforce areas and 

partnering agencies to reach out to and recruit veterans for a range of workforce services 

provided through the One-Stop system. In doing so, states typically provide local areas with 

Final Report -- Evaluation of the POS Requirement Page 44 
	 

	 

	 

	 

	 

	 

substantial latitude in developing and implementing such outreach and recruitment efforts, 

including the substantive content and formatting of outreach materials and presentations. Some 

example of specific types of outreach aimed at veterans include: 

o	 Presentations by Veteran Representatives at Transitional Assistance Program 

(TAP) Sessions. Military personnel making the transition from the military to 

civilian life attend TAP workshops on military bases, which are aimed at assisting 

military personnel in preparing for life after military service. A particular focus of 

TAP workshops is on job readiness training and helping military personnel to secure 

a job (and if necessary, additional education and/or training) soon after departure 

from the military). In the states visited, it is common for veteran representatives 

(DVOPs/LVERs) to make presentations at TAP workshops. The topics covered, 

which are developed by the Department of Defense, typically include an overview of 

labor exchange and training services available at One-Stop Career Centers. Such 

sessions include mention of the availability of veterans representatives and their 

ability to provide special attention and case management assistance. In some 

instances (but not always), TAP presenters mention that veterans and their eligible 

spouses will receive priority of service or that they will be afforded some level of 

preference with respect to job listings (e.g., a 24-hour hold on job orders), training, or 

other intensive services. TAP session attendees are also be made aware of where the 

nearest One-Stop Career Center is located and that a DVOP/LVER is available upon 

request to provide one-on-one assistance. 

o	 Job Fairs, Including Those Exclusively for Veterans. State and local workforce 

agencies sponsor job fairs throughout the year, with some fairs (especially in 

November of each year) targeted exclusively on veterans. During these fairs, 

workforce agency officials (often including a veteran representative) typically staff a 

table where they distribute program brochures and provide background information 

about various employment, training, education, and support services (including 

services especially for veterans) available through the One-Stop system. 

o	 Outreach Efforts to Other Veteran-Serving Agencies. Veterans representatives 

often go to Veterans Administration (VA) offices and reach out to a variety of places 

where one would expect to find veterans (such as homeless shelters, correctional 

centers, work-release programs, and DoD family support centers). In New Jersey, for 

example, a DVOP is out-stationed full-time from the state office to the East Orange 

VA Hospital. The DVOP’s job is to inform veterans of services available through the 

One-Stop/workforce development system. The DVOP can register veterans with the 

ES, and provide the full range of ES/Wagner Peyser services at the hospital. The 

DVOP can and often does refer individuals to the local One-Stop offices for 

additional services – especially job leads and training services. In some local areas, 

veterans representatives go to prisons and community events (e.g., “stand-downs” 

focusing on homeless veterans) to make sure that veterans (and the general public) 

are aware of workforce services available at One-Stops. Veterans representatives 

Final Report -- Evaluation of the POS Requirement Page 45 
 

	 

may also be outstationed several days a week to military bases – for example, one of 

the four veterans representatives at the Roseville (CA) One-Stop Center is 

outstationed four days a week at a satellite employment center located on the campus 

of a facility that was formerly an air force base. Veterans representatives also may 

provide briefings for veteran service operators and visit the American Legion and 

other veterans’ organizations. 

o	 Other Outreach Efforts. Veterans representatives (or other One-Stop staff) may 

attend rapid response sessions (in response to WARN notices), during which the 

agency staff hold special workshops or individual meetings with veteran employees 

to discuss dislocated worker services and other services available through the OneStop system. Veterans representatives and other One-Stop staff keep One-Stop 

partners informed about veteran services and preference given to veterans within the 

workforce system. This may include frequent visits to or co-location of One-Stop 

staff at other agencies to facilitate outreach and recruitment of veterans. For example, 

in Florida, in collaboration with the Department of Corrections, a DVOP is stationed 

in areas with the largest numbers of veterans being released from incarceration. The 

DVOP organizes and provides a variety of workforce services for incarcerated and/or 

transitioning incarcerated veterans. If a recently released veteran is moving to a new 

region, the DVOP notifies staff in that region about the veteran’s planned move and 

the expected arrival date. Finally, veteran representatives and other Wagner-Peyser 

staff make sure businesses are informed about veterans flowing into and through the 

One-Stop system and that veterans may be appropriate for specific job openings. 

C. Workforce Agency and Veteran Awareness of POS 

All the state and local workforce agencies visited as part of this study were well aware of 

POS, though some officials indicated that without final regulations it was difficult to be exactly 

sure what constituted compliance with POS requirements. All state workforce officials 

interviewed during visits had read guidance issued by ETA and states that set forth definitions 

(e.g., of a veteran, eligible spouse, and POS), but many officials expressed concerns that they 

were lacking the specific details and requirements that only could be provided by ETA’s 

issuance of final regulations on POS. For example, one state official observed (prior to VETS 

issuance of the Final Rule): 

“...ETA has not provided adequate guidance on POS....It is difficult to take the Q&As 

on ETA’s website and tell staff what it means in terms of serving someone. I need to be 

able to give my people clear guidance...we need to be able to translate POS to 

Final Report -- Evaluation of the POS Requirement Page 46 
requirements and procedures...my people need something a little more concrete with 

regard to POS.” 

With regard to awareness, some administrators at the state and local levels perceived that 

there is a lack of clear guidance from DOL on key definitions relating to POS and how the 

provision should be applied within a One-Stop setting. A state workforce official in one state 

had a relatively straightforward suggestion for eliminating such ambiguity: “DOL needs to say, 

this isn’t guidance, this is the law...Technical letters (TEGLs) do not carry the full weight of 

regulation issued in the Federal Register.” While ES and WIA staff at the state and local levels 

are aware of POS and have a basic understanding of POS, some state and local workforce 

officials expressed concern that other One-Stop partners are not always aware of the provision. 

These partnering agencies face mandates to serve other special populations (such as welfare 

households, the homeless, mentally-ill, and low-income households), which may get in the way 

of providing veterans with priority of service. One state official also noted that even WIA 

Program staff face requirements to serve other special subpopulation of non-veterans, including 

youth, unemployed/dislocated workers, disable individuals, and low-income/welfare populations. 

As a result, One-Stop staff often needs to balance among various specially targeted populations 

(veterans among this group) in providing services. An added complicating factor with regard to 

awareness of POS is that, within a One-Stop, there is frequent staff turnover, both within 

workforce programs (such as WIA, ES, and TAA) and at other partnering agencies co-located at 

One-Stops. While departing staff may have knowledge and awareness of POS, new staff 

members may be unaware of or only vaguely familiar with the POS provisions (and so, need to 

be trained). 

One-Stop customer and veteran awareness of POS is more difficult to judge. A survey of 

One-Stop customers aimed at better understanding One-Stop customer awareness of POS (and 

Final Report -- Evaluation of the POS Requirement Page 47 
views on its implementation) was planned, but not conducted under this study. As a result, it is 

not possible to draw definitive conclusions about One-Stop customer awareness of POS. Before 

coming in to One-Stops, some veterans may have attended TAP sessions, which provide an 

overview of services available at One-Stop Centers. In some instances, TAP workshops may 

include an observation that veterans will receive preference or priority of service at One-Stop 

Career Centers. 

According to interviews with state and local workforce officials, veterans often come to 

One-Stops with a general understanding they have a right to meet with a veterans representative 

(DVOP/LVER) and that there are some targeted services available to veterans and/or a 

temporary hold on jobs listed with the ES. In all the One-Stops visited under this study (prior to 

or shortly after issuance of the Final Rule), when customers enter the One-Stop Center for the 

first time, they are asked if they are a veteran by a receptionist and/or entered information onto a 

sign-in sheet which includes a column to check as to whether the customer is a veteran. In 

addition, there are often signs welcoming veterans, and in some instance, informing them that 

they are to receive preference or priority for services. At the time the site visits were conducted 

to the seven states, local workforce officials indicated that they did not normally inform veterans 

that they are entitled to “priority of service,” but rather that they could see a veterans 

representative, who could provide case management services and job referrals. Several state and 

local workforce officials indicated that they are fearful if they play up POS, they might create a 

sense of entitlement for veterans that they will immediately gain access to training opportunities. 

Overall, while veterans using One-Stop customers generally aware that they can see a veteran 

representative and often aware that there are some special services available for them (mainly 

case management services with a veterans representative and job listing), they are not well 

Final Report -- Evaluation of the POS Requirement Page 48 
 

 

 

	 

	 

	 

	 

	 

	 

	 

	 

informed about priority of service and what the requirements of POS could specifically mean in 

terms of receipt of services. 

D. Administration/Implementation of POS in One-Stop Career Centers 

One of the key objectives of this study was to determine to what extent POS makes a 

difference in terms of how services are delivered to veterans in One-Stop Career Centers. 

Several of the key questions of this study focused on how POS requirements affect the flow of 

veteran customers through One-Stop Career Centers and the services they receive: 

	 Is the workforce investment system (particularly services provided through the OneStop Career Center delivery system) giving priority of service to veterans? What 

does priority of service mean when it comes to the provision of services through local 

WIBs and One-Stops? 

	 Do states/local areas have targeted and well-coordinated strategies for serving 

veterans? Are WIBs and One-Stop Career Centers going beyond simply referring 

veterans to VETS representatives? What happens, for example, when WIA funding 

for training runs low – do veterans get priority for remaining available training funds? 

	 In local areas where there have been base closures, does the One-Stop Career Center 

system integrate its service delivery with the TAP program? 

	 What role do Disabled Veteran Outreach Program (DVOP) specialists and Local 

Veterans' Employment Representatives (LVER) play in the One-Stop Career Center 

to ensure veterans receive priority of service for all One-Stop services? What tools 

would be valuable for One-Stop Career Center staff to support providing veterans 

priority of service? 

An important focus of the site visits conducted during this study was on documenting the flow of 

veterans through One-Stop services and the ways in which being a veteran (and the priority of 

service provision) could affect the types of services received. There is substantial variation in 

the structure of One-Stop Career Centers (including their size and the types of partners) and 

ways in which services are delivered within and across local workforce investment areas. Based 

on the visits to states and particularly visits to One-Stops within each state, there are several 

Final Report -- Evaluation of the POS Requirement Page 49 
	 

	 

	 

	 

	 

	 

	 

	 

conclusions that can be drawn about how being a veteran (and to some extent priority of service) 

affects the way in which customers are served: 

	 Veterans are identified early in their involvement in the One-Stop system – in all OneStops visited under this study, veterans were identified when they first arrived at the 

reception desk at the One-Stop. 

	 Perhaps one of the biggest differences in the delivery of services between veteran and 

non-veteran customers within One-Stops is that veterans are afforded the opportunity to 

meet one-on-one with a veterans representative. This means that they receive counseling 

sooner and often move through intensive and training services sooner. This possibility of 

working one-on-one with a veterans representative results in a greater likelihood of 

receipt of case management services and may result in quicker entry into training for 

veterans. 

	 One-Stops generally have “go to the front of the line” policies for veterans, which means 

that veterans may experience shorter wait times to see workforce staff and/or use 

resource rooms (compared with non-veteran customers). Veterans may also have the 

opportunity to use special rooms or computers at One-Stops, which means that if a OneStop Center is crowded veterans are able to conduct self-service activities more quickly. 

	 In several states and localities, there are policies that when training resources became 

tight (e.g., in Alaska when WIA expenditures reached 65 percent of total available 

resources) that veterans receive priority over non-veterans for remaining training dollars. 

Where there is scarcity of WIA funding for training (typically toward the end of the 

program year), these requirements can translate into a greater probability of veterans 

receiving WIA-funded training. 

Exhibit 4-4 illustrates in some detail the basic flow of veterans through five One-Stop Centers 

each located in different states (note: the flow of veterans through other One-Stop Centers 

included in our visits is chronicled in site visit summaries attached in Appendix D). These more 

detailed descriptions illustrate both the main findings discussed in the bullets above, but at the 

same time show how different client flow can be across One-Stops and ways in which flow is 

tailored to staffing patterns and available resources/programs within each One-Stop. 

Final Report -- Evaluation of the POS Requirement Page 50 
EXHIBIT 4-4: EXAMPLE OF CLIENT FLOW AND SERVICE DELIVERY FOR 

VETERANS AT FIVE ONE-STOPS CENTERS 

OVERVIEW OF CLIENT FLOW FOR VETERANS THROUGH SERVICES IN SELECT ONE-STOPS 

Alaska (Anchorage). When customers initially arrive at a resource room in a One-Stop Center they are asked to 

complete a short intake slip (1/4 of a sheet of paper) in which they check off if they are a veteran (note: there is no 

place to indicate whether a customer is an eligible spouse of a veteran). If the individual is only interested in 

conducting a search of job listings or using other self-service features of the One-Stop, veteran status does not have 

much effect on the services received or POS. If there is not a self-service terminal available, the veteran may be 

able to use a terminal set aside for veterans. For example, the Muldoon and Midtown Job Centers (in Anchorage) 

each have a Veterans’ Job Lab, which offers several PC workstations that are set aside for use by veterans. If the 

veteran is in need of case management or more intensive services, they will move ahead of other non-veterans with 

regard to seeing an ES staff person (usually a veterans representative). There are posters in One-Stop hallways and 

self-service areas highlighting services available within the Center and through veterans representatives. One of the 

biggest differences between veterans and non-veterans in how they are treated is that, if desired by the veteran, oneon-one case managed services are available from practically the moment they walk into a Center. In comparison, 

these same one-on-one services would normally be available to non-veterans further along, and generally if they are 

going into training, have special needs, or experience difficulty in securing a job. 

California (Roseville). The Roseville One-Stop aims to get all veterans to see one of its four veterans 

representatives (administrators estimate that 90 percent of vets do so). If a veteran self-identifies on the 1⁄2 page 

tracking sheet, the One-Stop “Greeter” checks the scheduling software to see if any of the four veterans 

representatives is immediately available to meet with the veteran. If a veterans representative is available (which is 

often the case) the veteran is immediately scheduled to see the veterans representative; if not, the veteran is likely 

be scheduled to meet with a veterans representative the next day (or when it is next convenient for the customer to 

meet). During the initial meeting with the veterans representative the veteran is provided with a one-page form 

(called the “Veteran Intake Sheet”). On the front side of this sheet the veteran provides some basic identifying 

information, as well as service-related information (including service branch, service status, date of military service, 

whether he or she has a service-connected disability, education level, occupation, and minimum starting salary). The 

veterans representative interviews the customer for about a half hour to obtain additional background and to make an 

initial assessment of the veteran’s barriers to employment and service needs. If the veteran is in need of case 

management or more intensive services, he/she is seen by the veterans representative as needed. If desired by the 

veteran, one-on-one case managed services are available, where the same one-on-one services would normally be 

available to non-veterans further along, generally if they are going into training or experience difficulty in securing a 

job. If the veteran is interested in moving on to training, the veterans representative normally guides the individual 

through the process of applying for WIA-funded (or other funded) training, increasing the likelihood of the individual 

completing all the necessary steps to enter training. Another service often needed by veterans is “de-mil-ing” of 

resumes (that is, help with translating skills and experience accumulated in the military to civilian applications). 

Florida (Jacksonville). When a customer first walks into a Region 8 One-Stop Career Center, a greeter 

immediately asks if the customer is registered with Worksource and if the customer is a veteran. Customers usually 

identify if they are the spouse of a veteran. Veterans representatives also work in the resource room where they can 

identify spouses (and assist with intake). If the customer is not a veteran, then he or she is sent to the resource 

room, where the person is offered services (such as self-service computers and workshops). If the non-veteran 

requests training, he or she first receives core services. The One-Stop also provides an orientation, explaining that 

there are other services available if the customer cannot find a job. Later on, the customer could receive WIA 

orientation and progress through intensive services and training. In contrast, if a veteran walks in, the vet is 

immediately offered an opportunity to meet with a veterans representative, which veterans almost always accept. 

The veterans representatives are usually available within a few minutes. If available, the veterans representative 

makes sure the customer is a veteran and then provides an interview, evaluation, and registration. If the veterans 

representative is not immediately available, and if there is no other staff appropriate for the veteran customer, then 

the staff provides the veterans representative’s card and asks if the veteran would like to make an appointment or 

wait in the resource room. 

Kansas (Junction City). Near the Welcome Desks of each One-Stop in the state is posted an 8 by 10 inch sign 

(developed by the state) that details basic provisions of Priority of Service. The One-Stop sign-in sheet contains a 

Final Report -- Evaluation of the POS Requirement Page 51 
 

EXHIBIT 4-4: EXAMPLE OF CLIENT FLOW AND SERVICE DELIVERY FOR 

VETERANS AT FIVE ONE-STOPS CENTERS 

OVERVIEW OF CLIENT FLOW FOR VETERANS THROUGH SERVICES IN SELECT ONE-STOPS 

column indicating veteran status. At the One-Stop visited (in Junction City), there is a separate check box on the 

sign-in sheet to indicate that customers are the covered spouses for the purposes of priority of service. Upon signing 

in at the One-Stop, customers are asked to self-identify as veterans by a greeter and indicate their status on the signin sheet. Next, customers complete a form that inquires about veteran status, identifies barriers, and measures 

eligibility and receipt of other VA services. The Junction City One-Stop has a private conference room space where 

veterans are able to meet with DVOPs. While the One-Stop does not have specially designated computer terminals 

for veterans, if terminals are fully utilized, veterans receive priority for usage. After sign-in and completion of the form, 

the customer is sent to an ES staff person to review the questionnaire form, discuss barriers, and make an initial 

assessment of whether the customer should be referred to the DVOP for a more in-depth assessment and possible 

case management. If the ES worker determines that the veteran does not face barriers, the customer is encouraged 

to use the self-services available at the One-Stop and may get additional case management from the ES staff, but do 

not generally see a DVOP. However, if the veteran specifically requests to meet with a veterans representative, he 

or she would be immediately scheduled for such a meeting. Because of the scarcity of veterans representatives, 

DVOP services are reserved for veterans with barriers to employment. At the state and in One-Stop Centers, the 

policy is not simply to refer all veterans to DVOP for case management services. Rather, there is intent that veterans 

make full use of ES/Wagner Peyser and One-Stop services available in the self-help Resource Room. If the veteran 

is referred to a DVOP, he or she has a more detailed interview covering barriers to employment and potential 

services that could address such barriers. The DVOP then makes an informed decision about whether the veteran is 

in need of continuing case management services – and if this is the case, the DVOP would add the veteran to his/her 

case management caseload. The DVOP would then develop a plan of service with the veteran. If training is needed, 

the customer is referred to WIA for eligibility determination. 

New Jersey (Newark). All new customers (whether veteran or not) attend a Re-employment Orientation when they 

first come to the Newark One-Stop Center. This orientation is held Monday through Friday, twice a day, and lasts 

roughly 45 minutes. During this orientation, a Wagner Peyser/ES staff makes a PowerPoint presentation that 

provides an overview of services available at the center (including veteran services). The orientation staff asks if 

there are any veterans attending the session. During the session, each attendee completes an ES registration form. 

So that veterans are identified, the registration form completed by veterans is color-coded (green); while non-veteran 

customers complete a form that is copied on regular white paper (note: the forms contain the same information). All 

of those attending the orientation receive a scan card, which is used to track subsequent services. After the 

orientation, customers return to the main desk at the entrance to the One-Stop to request services and/or set up an 

appointment with ES staff. Veterans and non-veterans are free to request programs and services that they want 

and/or to use self-service computers to search for jobs. To ensure that veterans receive the services they need (and 

priority of service), orientation staff notifies the LVER of each veteran attending the initial orientation, including those 

who may request to meet with a veterans representative or have special needs/barriers to employment. If a veteran 

requests to see a veterans representative following the orientation, the front-desk will immediately schedule the 

veteran for a meeting with the LVER (note: if the LVER is not available, the veteran will be scheduled to meet with a 

regular ES/Wagner Peyser employment counselor). The duration of this initial meeting varies – from about 20 

minutes to 1 hour if the veteran faces serious barriers to employment. Because of special arrangements with 

community organizations and support service providers, according to one LVER, veterans tend to receive a richer 

mix of services than non-veterans and, if they face serious barriers to employment, tend to receive more one-on-one 

attention and referrals to a fuller range of services (e.g., if homeless, the veteran will be referred to a homeless 

service provider; if they have substance abuse issues, they will be referred to a VA facility for treatment). With regard 

to job placement, if appropriate, the LVER will contact employers directly to market individual veterans for job 

openings. Veterans follow the same basic flow as non-veterans through services, but have priority to receive 

intensive and training services over similarly qualified non-veterans. If they are in interested in and in need of 

training, veterans (and non-veterans) must first take the TABE test and then meet with a counselor for assessment 

and to be authorized for training. Like non-veterans, veterans must also go through self-directed job search before 

being authorized to receive training assistance. 

Note: Exhibit is based on site visits conducted to states and local workforce areas between November 2008 and 

April 2009. 

Final Report -- Evaluation of the POS Requirement Page 52 
Training. States and local workforce areas have varying policies with regard to 

providing training services for WIA-eligible customers, and within those general policies, states 

to varying degrees provide preference or priority for veterans. In addition, it should be noted 

across the states and local workforce areas included in this study that access to veterans 

representatives and case managed services seemed to make it easier and quicker for veterans in 

general to make a transition from intensive services into various training programs. In addition, 

several of the states had special funds available for providing more intensive services and 

training for veterans: For example, over the past 15 years, in California, EDD has awarded 

grants to, on average, 10 to 12 public, private nonprofit, and private for-profit organizations to 

provide employment and training services specially targeted on veterans. The purpose of these 

solicitations has been to select, though a competitive process, eligible applicants that are 

qualified and prepared to use the funds in innovative ways to provide services to recently 

separated veterans discharged within the past four years. During the most recent round of grants 

$2 million was awarded. In Florida, the Florida State Board has also partnered with Florida’s 

three grantees (two in Jacksonville and one in Cocoa, totaling $650,000) of the federal Homeless 

Veteran Reintegration Program (HVRP). HVRP is intended to help homeless veterans obtain 

meaningful employment and to bolster other services to homeless veterans. Staff from OneStops either goes to grantees, or the grantees have a presence at the One-Stops. The state has 

also given four grants to RWBs to develop innovative, employed worker training programs for 

various special populations, including veterans. Finally, Florida has created the “Military Family 

Employment Advocacy Program” to provide a variety of workforce services to the family of 

those in the military. This program operates out of seven One-Stops, all close to bases. 

Final Report -- Evaluation of the POS Requirement Page 53 
Of the states visited, the most distinctive and explicit policy with regard to priority of 

service for receipt of WIA-funded training was in Alaska and Ohio. In Alaska, as discussed 

earlier, the state policy stipulates for priority of service to be implemented in the WIA Adult and 

Dislocated Worker Program once 65 percent of WIA funding has been obligated within a given 

program year. Similarly, in Ohio the state policy is once a workforce area has entered a limited 

funding situation, defined as WIA funding for the program year being 75 percent obligated, a 

priority system takes effect and governs the enrollments to ensure that the those most in need 

receive intensive and training services. The state’s policy is reflected in the very explicit policy 

followed at the local level with regard to POS when funds become limited, as illustrated by the 

policy that has been implemented locally in Lucas County (Ohio): 

...A limited funding situation shall be deemed in effect when Lucas County Workforce 

Investment Act (WIA) Adult funding has expended and/or obligated 75% of the available 

Adult funds for Intensive and/or Training services. Obligated shall be defined as the 

amount of money for registered participants that it would take to finish the Intensive 

and/or Training services to that customer. The funds will be monitored at the end of each 

quarter to determine if they are limited. Once the county has entered a limited funding 

situation, the priority system shall take effect and govern the enrollments to ensure those 

most in need are served. Priority for intensive and training services will be given to those 

WIA eligible adults who are low income, as defined in the WIA Act, Section 101 (25) or 

receiving public assistance, and are county residents. As with all enrollments, veterans 

will be given preference. When a limited funding situation exists and the priority of 

service is instituted, staff and subcontractors must enroll into intensive and training 

services only those core customers who are receiving public assistance or are considered 

low income, with preference given to veterans. The public assistance or the reason for 

low income must be documented in the participant files. Veteran status must also be 

documented. Core services will remain open to the universal customer. 

The approach to providing priority of service for training in other states is less explicit 

(than Alaska’s or Ohio’s policies) and in several states there is very little or no difference in the 

ways that training services are provided for veterans versus non-veterans. The following 

provides contrasting approaches to the more explicit approaches to priority of service with regard 

to training in two other states visited as part of this study: 

Final Report -- Evaluation of the POS Requirement Page 54 
	 

	 

 Jacksonville, Florida. All customers seeking training go through an intensive 

assessment to ensure that they have the background to pursue the desired career. While 

there is no formal POS regarding training, veterans representatives do personally speak 

with the training staff if the veteran needs training. There are also other funding sources 

available for training veterans, such as the VA Vocational Rehabilitation (about a threeweek process, preceded by intensive services from veterans representatives) and the GI 

Bill. 

	 Roseville, California. The state has not issued specific guidance on what One-Stops 

should do if WIA training funds run short, but has passed along ETA guidance that 

stipulates that veterans should receive POS when it comes to employment and training 

services. Each WIB has discretion with regard to restricting or not restricting funds for 

training for veterans as appropriate. With regard to the Roseville One-Stop, 

circumstances have not yet arisen whereby veterans and non-veterans have competed for 

scarce training dollars. If a veteran and non-veteran had the same circumstances and 

dollars were scarce, then the veteran would, according to One-Stop administrators, 

receive preference. However, the one-on-one case management services provided by 

veterans representatives can give veterans a “leg up” with regard to going through the 

steps required to be approved for training. The process can be fairly demanding, with 

particular emphasis on demonstrating a strong commitment to undertaking training and a 

need for training in order to enter a high demand occupation. A veterans representative 

can be of considerable assistance in helping a veteran to complete the necessary 

paperwork and interview to qualify for training. In addition, because of this case 

management assistance, a veteran is likely to get into training faster than a non-veteran, 

as much as 4 to 6 weeks earlier. 

Temporary Holds on Job Listings. One way in which most states and local workforce 

areas have been able to distinguish employment services provided to veteran versus non-veteran 

customers of One-Stops is to provide more one-on-one attention when it comes to job 

development/placement services and by placing a temporary hold on the release of job listings to 

allow veterans a first-shot at applying for job openings. Exhibit 4-5 illustrates various 

approaches to posting job listings that states have taken. Several of the states (Alaska, 

California, and Ohio) have 24-hour holds on the release of job listings (during which veterans 

have access or can be matched to job orders). The approach in Kansas to holding of job orders is 

variable depending upon how the job listing is made – there is generally a 24-hour hold on job 

order listings, but if the listing is one that is taken by ES staff directly from an employer (rather 

Final Report -- Evaluation of the POS Requirement Page 55 
 

 

EXHIBIT 4-5: VARYING STATE APPROACHES TO DELAYING RELEASE OF JOB 

LISTINGS TO PROVIDE VETERANS WITH FIRST OPPORTUNITY TO APPLY 

OVERVIEW OF STATE APPROACHES TO POSTING EMPLOYMENT SERVICE JOB LISTINGS 

Alaska. A 24-hour hold is placed on all job orders coming to the ES unless the business submitting the job order 

requests immediate dissemination of the job order. During this 24-hour hold, veterans will have an opportunity to 

review and apply for the job order. Veterans representatives maintain a roster of veterans and their job preferences 

so that they can match veterans to appropriate job orders – and veterans are either called or e-mailed to notify them 

within the 24-hour period of job orders. In some instances, the veterans representative will make a call on behalf of 

the veteran to the employer to introduce the veteran and perhaps even advocate on his/her behalf. According to one 

veterans representative interviewed, matching job orders to veterans and making calls to employers can make the 

critical difference in terms of the veteran getting an interview and landing a job. 

California. A 24-hour hold is placed on all job orders coming to the ES (and entered into the CALJOBS system). 

During this 24-hour hold, veterans have an opportunity to review and apply for a particular job order, and employers 

only receive matches on veterans for listed positions. Veterans representatives maintain a roster of veterans and 

their job preferences so that they can match veterans to appropriate job orders – and veterans may be either called 

or e-mailed to notify them within the 24-hour period of job orders. According to one veterans representative 

interviewed, the effectiveness of the 24-hour hold depends in part on the search process used by employers – the 

hold can make a difference for veterans if an employer searches for candidates the first 24 hours and if the employer 

tends to hire the first qualified applicant. The veterans representative also noted that employers using the ES often 

tend to hire quickly, and thus, the 24-hour hold can make a difference. 

Florida. The state previously had a 24-hour hold on job listings, but eventually came to view this as a disservice to 

employers. Currently, Florida’s computerized job listing service (called “Employ Florida Marketplace”) does not 

permit RWBs to have a 24-hour hold. For this reason, Region 8 (serving Jacksonville) ended this aspect of POS 

around two years ago. Employers can still search Employ Florida Marketplace for veterans, and this sometimes 

occurs. 

Kansas. Under state policies, there is a hold on release of job orders submitted by employers so that veterans gain a 

head start over non-veterans in applying for job openings. Employers can submit job orders on-line via the web or by 

telephone (or in-person) to ES staff. For online posting of job orders, there is a 24-hour hold during which only 

veterans are able to see the postings. During this 24-hour period, veterans whose qualifications and skills match 

those of the job order are automatically emailed by the system to alert them of the job opening. In addition, 

employers receive a list of matched job seekers with veterans listed first (followed by non-veterans). Non-Veterans 

do not receive an e-mail alert during this 24-hour period, and cannot search for the position in the online database 

during the 24-hour hold period. If an employer calls in a job order or submits a job order in-person to ES staff rather 

than using the online system, this is referred to as a “staff-assisted job order.” Staff-assisted job orders are placed on 

a 4-hour hold, during which time the staff member taking the job order is to do a job match against veterans 

registered with the ES and call each veteran who matched the qualifications of the post. 

Ohio. A 24-hour hold is placed on all job orders coming to the ES (and entered into the SCOTI system). During this 

24-hour hold, veterans have an opportunity to review and apply for a particular job order, and employers only receive 

matches on veterans for listed positions. Veterans representatives maintain a roster of veterans enrolled in intensive 

services and their job preferences so that they can match veterans to appropriate job orders – and veterans may be 

either called or e-mailed to notify them within the 24-hour period of appropriate job orders. 

Virginia. Every job order taken for ES and WIA customers goes into a hold for veterans until a DVOP, LVER, or 

other staff member (if neither a DVOP nor a LVR is available) reviews it. As decided by the state, job orders may stay 

in a veteran hold for a maximum of 48 hours. During this hold, automatic matching in the job database system (called 

the “Virtual One-Stop System” or “VOS”) between job postings and qualified individuals is conducted only against 

veteran records. This provides veterans with priority of service for labor exchange services. 

Note: Exhibit is based on site visits conducted to states and local workforce areas between November 2008 and 

April 2009. 

Final Report -- Evaluation of the POS Requirement Page 56 
than via the Internet), then there is just a 4-hour hold on the listing. The hold in Virginia is up to 

48 hours (but may be released earlier). Florida has taken the opposite tack from these states – 

formerly having a 24-hour hold on job listings, the state decided to scrap this rule because it was 

felt to be a disservice to employers. 

E. Training and Technical Assistance on Priority of Service 

At the time the site visits were conducted under this study, VETS had either not yet or 

had recently issued final regulations on POS in the Federal Register. States had received 

guidance from ETA in the form of a TEGL, and ETA had added to its website a “Questions and 

Answers” (“Qs and As”) section that was intended to provide further guidance (on a program-byprogram basis) of how states and local workforce areas should implement and comply with POS. 

According to workforce officials in each of the seven states visited, the TEGL and “Questions 

and Answers” website were the main sources of information that they used in terms of 

developing state policy on POS and in instructing and providing technical assistance to local 

workforce areas on how to implement POS. State workforce officials had also been able to 

clarify questions that they had concerning POS through telephone discussions or during 

compliance visits conducted by the ETA regional office. This included consultations with 

federal VETS representatives (i.e., DVET) outstationed to state workforce agency offices. 

Another source of training for both the state and local workforce areas was to send workforce 

officials and veterans representatives (DVOP/LVERs) for week-long training workshops at the 

National Veterans Training Institute (NVTI) in Denver. During various NVTI training modules 

veterans representatives (and other workforce officials) were briefed about provisions of priority 

of service and provided in-depth training on effective methods for serving veterans. Following 

the NVTI training sessions, veterans representatives returned to their One-Stops where they 

Final Report -- Evaluation of the POS Requirement Page 57 
	 

served as a source of information and technical assistance to other One-Stop staff concerning 

POS and approaches to providing effective employment and training services for veterans. One 

state agency also brought NVTI instructors to the state to provide workshop training for both 

veterans representatives and workforce staff, which focused primarily on effective recruitment 

and service delivery for veterans but also included discussion on effective implementation of 

POS in state and local workforce agencies. 

State workforce agencies also play a role in providing local workforce agencies with 

training on POS policies and implementation, as well as responding to questions that veterans 

representatives and other local workforce officials have about POS and more generally about 

providing employment and training services targeted on the veterans. Exhibit 4-6 provides an 

illustration of the types of training and technical assistance provided in one state (Ohio), which is 

quite similar in nature to what was at the time of the site visits being provided in other states. 

Two important issues with respect to providing training on POS at the local workforce level were 

that (1) among partnering agencies at One-Stops there were varying levels of veteran 

involvement in programs and, hence, varying levels of interest in learning about and 

implementing POS; and (2) especially in larger One-Stop Career Centers with many partners, 

there can be considerable staff turnover, and a resulting need to frequently provide training on 

POS (and other issues related to effectively serving the needs of veterans) for newly hired staff. 

In addition to sending DVOP/LVERs for training at the National Veterans Training Institute 

(NVTI) in Denver, some of the more general types of training provided on POS (which is usually 

part of a wider effort to make local workforce staff knowledgeable about POS) has included the 

following: 

	 Web-based Training for Wagner-Peyser and Other One-Stop Staff. Some states employ 

web-based training systems, that can be utilized to train new staff on POS (and veterans’ 

Final Report -- Evaluation of the POS Requirement Page 58 
 

 

 

EXHIBIT 4-6: SAMPLE OF TECHNICAL ASSISTANCE AND TRAINING PROVIDED
 
 

FOR LOCAL WORKFORCE AGENCY STAFF IN ONE STATE (OHIO) 

OVERVIEW OF VARIOUS TYPES OF TECHNICAL ASSISTANCE AND TRAINING PROVIDED FOR LOCAL 

WORKFORCE AGENCY STAFF 

Specialized Training of Veterans representatives in Denver. All new DVOP/LVERs (once they have completed 

their 120-day probationary period) attend specialized training at the National Veterans Training Institute (NVTI) in 

Denver. During various training modules held over a 2-week period, veterans representatives are briefed about 

priority of service and provided in-depth training on effective methods for serving veterans. These staff returns to 

their One-Stops and provide training to other (non-vet) staff at the One-Stop on how to effectively recruit and serve 

veterans. 

Training/Monitoring Provided by 3 State Veteran Program Managers. Ohio is divided into three geographic 

regions and a Veteran Program Manager is assigned to each region. These 3 Program Managers provide training to 

One-Stop staff (including partner agency staff) on effective delivery of services to veterans, including requirements 

related to priority of service. These managers advocate for veterans within the One-Stop system to ensure that they 

receiving priority and regularly monitor the percentage of veterans being served by One-Stops (versus all customers) 

and whether veterans are receiving priority. The state vet coordinators also provide three days of orientation and 

training for each new veterans representative (referred to as Veterans Representatives Orientation Workshop, 

VROW). 

Policy Book. DVOPs/LVERs have each been provided a policy book that sets out policies and procedures 

(including TEGLs) with regard to serving veterans. 

Video Conferencing. Each month (and sometimes bi-weekly), the state sponsors a videoconference for workforce 

staff across the state (in One-Stops and other locations); some sessions have focused on services to veterans, 

including POS. 

Monthly Staff Meetings. One-Stops have monthly staff meetings involving WIA/ES staff and partners, during which 

POS and veterans services may be discussed. For example, every 3rd Friday, there are staff meetings at the Lucas 

County One-Stop. These meetings involve program updates, cross-trainings, and other exchanges among various 

partnering organizations. The veterans representative makes presentations from time to time on various topics, 

including effective delivery of services for veterans and discusses POS. 

Note: Exhibit is based on a site visit conducted to Kansas in January 2009. 

Final Report -- Evaluation of the POS Requirement Page 59 
	 

	 

	 

	 

	 

	 

services, in general) and to provide refresher tutorials for existing staff. For example, in 

Alaska, all new ES staff are required to complete courses on a web-based training system, 

referred to as “Intra-Learn.” Three courses specifically include modules and references 

to the need to provide Priority of Service for veterans. ES staff are tested at the end of 

each training module and receive an upgrade in pay and status once they have 

successfully completed the various required training modules (and tests associated with 

each module). Prior to the implementation of Intra-Learn, the state had a series of 

PowerPoint slides that focused on POS and effective delivery of services to veterans. 

The Alaska Department of Labor is in the process of implementing the Intra-Learn 

system as a requirement for all new WIA employees. 

	 State Conferences and Workshops. Most states sponsor annual or quarterly conferences 

in various parts of their state to provide local workforce agency staff and One-Stop 

partnering agency staff information and training on policies and effective delivery of 

service. In several of the states visited, state officials indicated that at such conferences, 

workshops have been included that focus on POS policies and implementation, as well as 

more generally delivery of services to veterans within the One-Stop system. 

	 Staff Meetings/Conference Calls at the Local Workforce/One-Stop Level. Most OneStops have staff meetings (generally quarterly or monthly) involving WIA/ES staff and 

partners, during which POS and veterans services are discussed. For example, an official 

at a One-Stop visited noted that during the monthly partners’ meeting at the center, a 

veterans representative discussed veterans’ service issues (including POS) for about 5 to 

10 minutes during each meeting. Such meetings and conference calls often focus on 

issues and problems that emerge in One-Stop operations and provide a forum for 

dissemination of information to One-Stop managers and staff, including information 

relating to veterans’ services. 

	 One-on-One or Group Training of New Staff. A particularly important part of training 

focuses on informing new staff in One-Stops about POS and veteran services. Training 

of new veterans representatives often occurs one-on-one or in small groups, with a 

coordinator or experienced veterans representative providing hands-on training. Also, 

similar types of training, usually in a workshop setting, occurs for new and existing OneStop staff. 

F. Monitoring of Compliance on POS 

In addition to providing training and technical assistance, each of the states visited 

conducts periodic compliance reviews to assess provision of services to veterans. A portion of 

these monitoring and compliance reviews focuses on determining if POS requirements are being 

Final Report -- Evaluation of the POS Requirement Page 60 
met. It should be noted, however, that at the time of the site visits, VETS had either not yet 

issued or had only recently issued final regulations on POS in the Federal Register, which made 

it challenging for states to hold local workforce areas and One-Stops to a specific standard with 

respect to POS. Several ways in which states monitor POS compliance are discussed below. 

First, each state initially certifies One-Stop Centers and then re-certifies them within 

several years to make certain that such centers are providing appropriate and high quality 

services. For example, the Alaska Workforce Investment Board certifies One-Stop Career 

Centers every two years. As part of this process, questions are asked pertaining to POS 

implementation and availability of services to veterans. 

Second, state workforce agencies conduct periodic monitoring visits, usually on an 

annual basis to some or all One-Stops and workforce agencies. For example, in California, EDD 

conducts annual monitoring visits to One-Stops. As part of this process, questions are asked 

pertaining to POS implementation and availability of services to veterans. 

Third, states utilize data collected by local workforce areas through the state’s data 

system and other methods to produced reports and analyze patterns of service delivery and 

outcomes for veterans. For example, in Kansas, the State VET coordinator conducts quarterly 

reviews of service logs and reports to see whether the priority of service is being administered 

correctly. The reports reviewed include the ES-9002 and the Vets-200 reports, and specific areas 

reviewed include the total number of veterans who are registered for the ES, receive job 

referrals, and receive case management services. In New Jersey, within the One-Stops, veterans 

representatives review the quarterly reports for their local area, including numbers and types of 

veterans served, services received and outcomes. Also in New Jersey, there is a newly 

implemented “Future Works” data system, which brings together ES/WP, TAA, and WIA data 

Final Report -- Evaluation of the POS Requirement Page 61 
into one system and allows for state and local program managers to customize reports to meet 

their needs. This system is real-time and provides a highly flexible report generating capability. 

State and local administrators can closely monitor and analyze service delivery patterns, client 

characteristics, outcomes, and other characteristics for any special population, including for 

veterans. 

Finally, DVOPs/LVERs play an important role in monitoring POS and, more generally, 

recruitment, client flow, service delivery, and outcomes for veterans. For example, veterans 

representatives interviewed in one state indicated that they served as the “eyes and ears” with 

respect to implementation of POS and provision of workforce services for veterans. These 

veterans representatives indicated that they reported any emerging problems/challenges with 

respect to delivery of services (including POS) to the state’s coordinator overseeing veterans’ 

services. 

G. Challenges of Implementing POS 

State and local workforce agencies were not reticent about identifying some of the 

challenges to implementing POS and more broadly to providing high quality and cost-effective 

workforce development services well targeted on the needs of veterans. Several key issues and 

challenges with regard to providing POS for veterans are discussed below. 

First, and foremost, because at the time of the site visits were conducted formal 

regulations had either not yet been issued or had only recently been issued by VETS, state 

and local workforce agency officials felt that it was very difficult to effectively implement 

POS at the state and local levels and to monitor compliance. In one state, a state official 

observed: “DOL needs to say, this isn’t guidance, this is the law...Technical letters (TEGLs) do 

not carry the full weight of regulation issued in the Federal Register.” Further, this state official 

Final Report -- Evaluation of the POS Requirement Page 62 
observed that One-Stops and partnering agencies have been left in the position where they have 

to interpret what is meant by priority of service – and this results in differences of interpretation 

across states and One-Stops. 

Second, if POS is to be effectively implemented – especially within a One-Stop 

setting – there needs to be more coordination across agencies and programs at the national 

level with regard to providing services and priority for veterans. One state administrator, for 

example, observed that DOL issuance of regulations does not mean that partnering agencies in a 

One-Stop will necessarily adhere to these regulations: “My concern is that there is an 

expectation that if DOL issues regulations that everyone will follow...TANF program 

administrators see themselves under DHHS guidance... programs listen to their funding 

sources.” A further complicating factor is that there are some differing definitions of “veteran” 

across programs. 

Third, and related to the previous challenge, there is a lot of variation across 

programs and agencies at the local level in terms of awareness of POS and willingness to 

implement POS. While Wagner Peyser and WIA staff typically have an understanding of POS, 

other One-Stop partners are not always aware of the provision and may face mandates to serve 

other special populations (such as welfare households, the homeless, mentally-ill, and lowincome households). Even WIA Program staff face requirements to serve other special 

subpopulation of non-veterans, including youth, unemployed/dislocated workers, disabled 

individuals, and low-income/welfare populations. One-Stop staff needs to balance among 

various specially targeted populations and, as a result, POS for veterans can get watered-down 

and not addressed by some One-Stop partners. 

Final Report -- Evaluation of the POS Requirement Page 63 
	 

	 

Fourth, there are some more specific issues with regard to fully implementing POS 

within a One-Stop setting, which include willingness of veterans and eligible spouses to selfidentify: 

	 Veterans do not always identify themselves as veterans when they enter One-Stops – 

they may not want to be singled out or may feel that veteran status could hurt their 

chances of securing a job in some occupations or with some employers. Additionally, 

it was noted by one workforce official that female veterans, those who were not 

involved in combat, those with less than honorable discharges, and eligible spouses 

sometimes do not self-identify. 

	 Eligible spouses are often difficult to identify. The form used to collect identifiers 

and demographic characteristics when an individual enters the One-Stop often does 

not include a question to determine if the individual is an eligible spouse of a veteran. 

The definition of an eligible spouse is also long and convoluted, which makes it 

difficult to ask and apply to new customers entering the system. 

Fifth, some state and local workforce official noted that there has been a decrease in 

inflation-adjusted funding for employment and training services (e.g., WIA and WagnerPeyser funding) that makes it difficult to provide intensive and training services to those in 

need (including veterans). As a result of stagnant funding or cutbacks in funding for the 

workforce development system, staffing levels – including DVOPs and LVERs – have decreased 

in recent years, as well as available funds to provide training. This has generally made it more 

challenging to provide intensive one-on-one services and training needed by veterans (and nonveterans, as well) served through the One-Stop system. For example, in New Jersey, with 

respect to serving veterans, there has been a steep decline in the number of veterans 

representatives (DVOPs/LVERs) – decreasing over about a five-year period from 48 FTE (fulltime equivalent) DVOPS to 32.5 FTE DVOPs and from 24 FTE LVERs to 10.5 FTE. The 

steady decline in the number of veteran representatives has created challenges to providing the 

types of one-on-one, case-managed services that veterans often want (and expect) when they 

come to One-Stop Centers. In some instances, One-Stops have had to use Wagner Peyser staff to 

Final Report -- Evaluation of the POS Requirement Page 64 
provide individualized/intensive services that might otherwise had been provided by a veterans 

representative. Also, looking ahead, the workforce system in New Jersey will need to respond to 

the largest deployment in the state’s history of reserve forces which will be coming back to the 

state in the coming months – which will further stress the workforce system and already 

stretched veterans representatives. 

Finally, there is some wariness in states and at the local level that POS could potentially 

be misinterpreted and result in less effective services for veterans and unrealistic expectations for 

services. For example, one state official observed that his state agency does not want veterans 

to lock into a veterans representative, but rather use the full range of One-Stop services 

(including, as appropriate, veterans representative assistance): “We are not old school, which 

was – you are a vet...go see a veterans representative.” Also, this same state does not want to 

give veterans the impression that priority of service means “entitlement” to training, jobs, or 

other services. A complicating factor is related to implementing and ensuring POS requirements 

are met within a One-Stop system, when some customer may never come into a local office 

(primarily preferring to interact remotely using the state’s website and/or other job vacancy sites, 

such as Monster.com) or may primarily come into One-Stop Centers to use the self-service 

resource room and not to interact with veterans representatives or other One-Stop staff. As one 

state official observed: “There is a question of how far do you take veteran priority of service in 

a self-service world.” 

Final Report -- Evaluation of the POS Requirement Page 65 
CHAPTER 5: 

CONCLUSIONS 

This final chapter provides a summary of key study findings and conclusions, as well as 

future steps ETA should consider with respect to evaluating POS. It is very important to note 

that this study was undertaken prior to DOL’s issuance of the Final Rule on POS for covered 

persons in the Federal Register. This makes some of the study’s findings possibly moot or 

obsolete. For example, the complaints from national associations and state/local workforce 

officials about a lack of formal rules to guide POS implementation are moot. Findings from 

analysis of WIASRD data and site visits could also no longer apply. 

Analysis of WIASRD Data. The analysis of WIASRD data on WIA Adult and 

Dislocated Workers was aimed at better understanding variation among veterans and nonveterans in participant characteristics, service utilization, and outcomes. These analyses show 

that veterans differ on some key characteristics from other WIA users – for example, veterans are 

more likely to be: 

 male; 

 in the two oldest age categories (45 to 54 years old and 55 years or older); 

 white and non-Hispanic; 

 have education beyond high school (though data were missing on education for about 

one-quarter of non-veterans and one-third of veterans); 

 have a disability; 

 not employed at registration; and 

 an Unemployment Insurance (UI) claimant or exhaustee. 

Analyses of WIASRD data indicate that (for PY 2003-05) WIA veteran and non-veteran exiters 

had generally similar patterns of service receipt: 

 With regard to the WIA Adult Program, veterans were slightly less likely to receive 

intensive services (68.7 percent for veterans versus 74.5 percent of non-veterans), to 

Final Report -- Evaluation of the POS Requirement Page 66 
	 

receive training services (53.3 percent for veterans versus 56.5 percent of non-veterans); 

and to establish ITAs (22.1 percent for veterans versus 27.1 percent of non-veterans). 

	 With regard to the WIA Dislocated Worker Program, patterns of receipt of service for 

veterans and non-veterans were very similar (i.e. less than a two percentage point 

difference between veterans and non-veterans on receipt of intensive services, training, 

and ITAs). 

It is important to keep in mind that higher or lower levels of service receipt by veterans do not 

necessarily indicate that veterans are or are not receiving priority of services under the WIA 

program—their needs may be different. 

Finally, veteran and non-veteran exiters exhibited very similar patterns in terms of preand post-employment rates (i.e., less than a three percentage point difference in employment 

rates between WIA veterans and non-veterans in both the WIA Adult and Dislocated Worker 

programs). However, veterans earned substantially more before entering the program, as well as 

after exiting the Adult and Dislocated Worker Programs. The higher average earnings before 

entry into WIA may reflect that veterans enrolling in WIA come to the program with more workrelated experience and educational qualifications – and hence, perhaps also may have less need 

(or desire) for training services. 

Regression analysis of WIASRD data was used to determine if veterans were more or 

less likely to receive intensive services and training than comparable non-veterans. We found 

that veterans are less likely to receive intensive services than comparable non-veterans, but 

among customers who receive intensive services, veterans are more likely to receive training. 

These results must be interpreted with caution, because the different service rates for veterans 

may be due to differences in characteristics that were not measured. 

Interviews with Veterans’ and Workforce Organizations. Project staff conducted 

telephone interviews between March and May 2009 with representatives from the four veterans’ 

Final Report -- Evaluation of the POS Requirement Page 67 
	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

organizations: Disabled American Veterans; Veterans of Foreign Wars (VFW) of the United 

States; the American Legion; and Vietnam Veterans of America. In addition, representatives of 

two workforce organizations were interviewed: the National Association of State Workforce 

Agencies and the National Association of Workforce Boards. Major findings were: 

	 POS notification on the DOL website (i.e., referred to as “Questions & Answers”) was 

not viewed as sufficiently detailed or clear – several veterans’organizations suggested 

that ETA needed to issue formal regulations (i.e., a final rule on POS) including clearer 

guidance for individual ETA programs. 

	 Information/knowledge of POS at WIBs/One-Stop Career Centers is sometimes 

incomplete or incorrect. DOL is not viewed as having sufficiently “promoted” POS. 

	 DOL has not come up with methods to ensure POS is enforced at state/local levels – as a 

result, there is considerable variability across states in whether and how POS is 

implemented. 

	 A further challenge cited by several of the organizations, is that even if there is a strong 

commitment to enforcement of POS, it is sometimes difficult to determine if veterans are 

in fact receiving POS. 

	 Finally, there is a need for ongoing technical assistance and training on what POS means 

and how to implement it. 

Findings from Site Visits to Seven States and Local Areas. During site visits to seven 

states and local workforce areas within each state, the research team gathered information and 

conducted interviews aimed at building an in-depth “on-the-ground” understanding of 

implementation of POS at the state and local levels. The states and local areas visited were 

selected purposively and included: 

 Kansas (Area II – Heartland Works [Junction City]) 

 California (Golden Sierra Job Training Agency [Auburn]) 

 Virginia (Virginia Beach-Norfolk-Newport News, VA-NC Metro Area) 

 Alaska (Anchorage, AK Metro Area) 

 Florida (Jacksonville, FL Metro Area) 

 Ohio (Toledo, OH Metro Area) 

 New Jersey (Newark-Union, NJ-PA Metro Division) 

Final Report -- Evaluation of the POS Requirement Page 68 
	 

	 

	 

	 

	 

	 

	 

	 

States varied significantly in their approaches to serving veterans; many state activities that were 

intended to enhance services to veterans were not directly tied to POS, but their intent was to 

increase services to veterans. States and local workforce areas conducted intensive outreach and 

recruitment efforts to bring veterans into One-Stop Career Centers, and once they were there, 

provided ready access to case managed services (often provided by DVOPs/LVERs): 

	 All states visited had strong veteran outreach programs intended to bring more veterans 

into the One-Stop Career Centers. Relevant activities include job fairs, participation in 

TAP sessions, outstationing staff at VA facilities, development and use of public service 

announcements, and making presentations and distributing brochures at other human 

service agencies serving veterans. 

	 In all states, workforce agencies tried to identify veterans upon entry to One-Stops. 

Veterans were then offered the opportunity to see DVOPs and LVERs. Although DVOP 

and LVER services do not represent POS, quick access to these staff usually reduces the 

time before a customer can pass through core and intensive services and receive training. 

However, in the absence of regulations, states and local areas were not certain what activities 

constituted POS. Some states developed clear POS policies, but others simply passed on the 

ETA information from Training and Employment Guidance Letters (TEGLs) and the “Q and As” 

(from ETA’s website), which were not very specific and did not carry the weight of regulations. 

As the site visits under this study were nearing an end, VETS issued the Final Rule on POS and 

ETA began to provide training to state and local staff on POS through webinars. States 

sometimes struggled with the fact that POS is mandated in JVA, but the WIA statute specifies 

priority for other groups, e.g., public assistance recipients and other low-income individuals. 

Some states and local areas had very specific POS approaches to serving veterans: 

	 Six of the seven states put a hold on job listings for at least 24 hours and only provided 

access to the listings to veteran customers and to staff who would try to place veterans in 

these jobs. 

	 Veterans often have the opportunity to use special rooms or computers at One-Stops, 

which means that if a One-Stop Center is crowded, veterans are able to conduct selfservice activities more quickly. 

Final Report -- Evaluation of the POS Requirement Page 69 
	 

	 

	 Several of the states had special funds available for providing more intensive services and 

training for veterans: For example, over the past 15 years, in California, the Employment 

Development Department (EDD) has awarded grants to, on average, 10 to 12 public, 

private nonprofit, and private for-profit organizations to provide employment and training 

services specially targeted on veterans. 

	 Of the states visited, the most distinctive and explicit policies with regard to priority of 

service for receipt of WIA-funded training were in Alaska and Ohio. In Alaska, the state 

policy stipulates for priority of service to be implemented in the WIA Adult and 

Dislocated Worker Programs once 65 percent of WIA funding has been obligated within 

a given program year. Similarly, in Ohio the state policy is once a workforce area has 

entered a limited funding situation, defined as WIA funding for the program year being 

75 percent obligated, a priority system takes effect and governs the enrollments to ensure 

that those most in need receive intensive and training services. Hence, in these states, 

when there is scarcity of WIA funding for training, these requirements can translate into a 

greater probability of veterans receiving WIA-funded training. 

Finally, states and local workforce areas identified a number of challenges to 

implementing POS effectively. First, because the final rule was not yet issued (or had just been 

issued) at the time the site visits were conducted under this study, state and local officials were 

concerned that they did not know precisely what was meant by POS and how to monitor 

compliance. Second, state and local agency staff were concerned that even after VETS issued 

regulations, other agencies, such as the U.S. Department of Health and Human Services, would 

not issue regulations, and other One-Stop partners would not view POS as important or required. 

Third, several One-Stop staff suggested that veterans or eligible spouses are sometimes reluctant 

to identify themselves as veterans, thus making it hard to provide them with POS. The rules for 

a qualifying spouse are somewhat complicated, making it difficult to determine eligibility using a 

simple questionnaire or form. Finally, resources for workforce investment programs have 

declined in inflation-adjusted terms for many years, making it difficult to adequately serve all the 

potential customers in need of services. 

Final Report -- Evaluation of the POS Requirement Page 70 
Future Activities. Now that the POS regulations have been in place for over a year 

(since December 2008), it might be worthwhile to conduct some additional research on 

implementation of POS by state and local workforce agencies. Analysis of WIASRD data after 

the regulations were issued would ordinarily be of interest, but in the short run the severe 

recession and the availability of ARRA funds will make interpretation of research results 

difficult at this time. Interviews with the veterans’ and workforce investment organizations 

could be updated to learn these organizations’ views on the regulations, as well as technical 

assistance and training provided by ETA. A new round of site visits to states and local 

workforce areas would also be of interest. Visits to the same seven states would be useful to 

learn if the regulations have changed behavior in the states and local areas that did not undertake 

as big an effort as other states. An alternative to site visits would be to conduct a round of 

telephone interviews with states or possibly an Internet-based survey of all states on the status of 

POS implementation, challenges to implementing POS, and recommendations that state/local 

workforce areas might have to improve POS and services provided through the workforce 

system for veterans. Finally, it might be useful to obtain the views of veterans toward POS and 

their general level of satisfaction with services received either by conducting focus groups or a 

large-scale survey effort. It is, however, important in conducting focus groups or a survey to 

recognize that veterans may be unaware or only have a vague understanding of POS and of the 

possible services they may be eligible to receive through the workforce system. Should ETA 

determine such a survey would be useful, the final appendix of this report provides a starting 

point for launching such a survey of veteran and non-veteran customers of the One-Stop system 

(including a sampling methodology and instrument that could potentially be used or modified to 

ETA’s specifications). 

Final Report -- Evaluation of the POS Requirement Page 71 
APPENDIX A: 

DISCUSSION GUIDE FOR DOL/ETA OFFICIALS, NATIONAL WORKFORCE 

DEVELOPMENT ASSOCIATIONS, AND VETERANS’ ASSOCIATIONS 

Final Report -- Evaluation of the POS Requirement Page 72 
 

 

 

 

 

 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

APPENDIX A: 

DISCUSSION GUIDE FOR DOL/ETA OFFICIALS, NATIONAL WORKFORCE 

DEVELOPMENT ASSOCIATIONS, AND VETERANS’ ASSOCIATIONS 

Question for Federal DOL Officials 

1.	 What policies exist at the federal level to implement the priority of service provisions in 

JVA? Please prove a copy of TEGLs and/or other documents that set policies or provide 

guidance to regional offices, states, or local areas. 

2.	 To what extent have the Department of Labor's two agencies with primary responsibility 

for employment assistance to veterans, VETS and ETA, collaborated to provide priority 

of service to veterans? 

3.	 To what extent are State and Local Workforce Boards fully aware of the POS provision? 

Do they use their strategic plans and policy-making authority to effectively implement it? 

4.	 To what extent are veterans aware of the priority of service provision with regard to 

obtaining services through the workforce investment system? 

5.	 To what extent is the workforce investment system (particularly services provided 

through the One-Stop Career Centers) giving priority of service to veterans? What does 

priority of service mean when it comes to the provision of services through local WIBs 

and One-Stop Career Centers? 

6.	 Do you believe that all assets within the workforce investment system are being 

effectively used to serve veterans? Are there differences between the way in which 

veterans and non-veterans are treated within the workforce investment system? Are 

WIBs and One-Stop Career Centers going beyond simply referring veterans to VETS 

representatives? 

7.	 To what extent do you believe states/local areas have targeted and well-coordinated 

strategies for serving veterans? What happens, for example, when WIA funding for 

training runs low – do veterans get priority for remaining available training funds? 

8.	 In local areas where there have been base closures, does the One-Stop Career Center 

system integrate its service delivery with the TAP program? 

9.	 Have federal staff provided training or other technical assistance on how to apply the 

priority of service provision? Have training or technical assistance been provide for 

states? For WIBs/One-Stop Career Center staff? If so, please describe. 

10. Has the inclusion of Priority of Service requirements in the Formula Review Tool 

resulted in better monitoring of veterans' outcomes by grantees? 
 

 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

11. Has your office conducted any analyses of data comparing service mix or employment 

outcomes for veterans compare to non-veterans? If so, how do employment outcomes 

compare to results before POS was enacted? Has the priority of service provision 

impacted the "mix" of services available to veterans? How do quantities and mixes of 

services provided to veterans compare to those provided to non-veterans? How do 

quantities and mixes of services provided to veterans compare to those provided to 

veterans prior to implementation of POS? 

12. What challenges does the workforce investment system face in applying the priority of 

service provision? Do you have any suggestions for overcoming these challenges? 

Questions for Regional DOL Officials 

1.	 In addition to policies/guidance issued by the national office, has your regional office 

issued special guidance to states within your region to implement the priority of service 

provisions in JVA? If so, please provide a copy of this guidance. 

2.	 Within your region, to what extent have the Department of Labor's two agencies with 

primary responsibility for employment assistance to veterans, VETS and ETA, 

collaborated to provide priority of service to veterans? 

3.	 To what extent are State and Local Workforce Boards within your region fully aware of 

the POS provision? Is there variation across states/local WIBs? Do states within your 

region use their strategic plans and policy-making authority to implement it? 

4.	 Within the states in your region, to what extent are veterans aware of the priority of 

service provision? Is there variation across states within your region? 

5.	 Within the states in your region, to what extent is the workforce investment system 

(particularly services provided through the One-Stop Career Center delivery system) 

giving priority of service to veterans? How much variation is there across states and 

local areas in your region? What does priority of service mean when it comes to the 

provision of services through local WIBs and One-Stops? 

6.	 Do you believe that all assets within the workforce investment system are being 

effectively used to serve veterans? Within your region, are there differences between the 

way in which veterans and non-veterans are treated within the workforce investment 

system? For example, are WIBs and One-Stop Career Centers going beyond simply 

referring veterans to VETS representatives? Is there variation across states or local 

areas? 

7.	 To what extent do you believe states/local areas within your region have targeted and 

well-coordinated strategies for serving veterans? What happens, for example, when WIA 

Final Report -- Evaluation of the POS Requirement Page 74 
 

 

 

 

	 

	 

	 

	 

funding for training runs low – do veterans get priority for remaining available training 

funds? 

8.	 In states and local areas within your region where there have been base closures, does the 

local workforce investment system/One-Stop Career Center system integrate its service 

delivery with the TAP program? 

9.	 Have federal regional staff provided training or other technical assistance on how to 

apply the priority of service provision? If so, has this training or technical assistance 

been provide for states within your region? For WIBs/One-Stop Career Center staff? If 

so, please describe. 

10. Within the states in your region, what role do Disabled Veteran Outreach Program 

(DVOP) specialists and Local Veterans' Employment Representative (LVER) play in the 

One-Stop Career Center to ensure veterans receive priority of service for all One-Stop 

services? 

11. Has the inclusion of Priority of Service requirements in the Formula Review Tool 

resulted in better monitoring of veterans' outcomes by grantees? 

12. Has your regional office conducted any analyses of data comparing service mix or 

employment outcomes for veterans compare to non-veterans? If so, how do employment 

outcomes compare to results before POS was enacted? Has the priority of service 

provision impacted the "mix" of services available to veterans? How do quantities and 

mixes of services provided to veterans compare to those provided to non-veterans? How 

do quantities and mixes of services provided to veterans compare to those provided to 

veterans prior to implementation of POS? 

13. What challenges does your regional office and the workforce investment system within 

your region in general face in applying the priority of service provision? Do you have 

any suggestions concerning how these challenges could be overcome? 

Final Report -- Evaluation of the POS Requirement Page 75 
 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

Questions for National Workforce Development Associations and Veteran’s Organizations 

1.	 Does your organization have knowledge of how Priority of Service (POS) has been 

implemented within the One-Stop Career Center system? If so, please discuss. 

2.	 Has your organization conducted or sponsored any special studies that have assessed POS 

implementation within the workforce investment system at the federal, state, or local 

levels? If yes, what have these studies generally concluded? If available, please provide 

a copy of any reports detailing study findings? 

3.	 Is your organization aware of other studies/reports that have examined POS 

implementation within the workforce investment system? If so, who conducted these 

studies and how can we obtain a copy of reports from these studies? 

4.	 What additional policy guidance or technical assistance is needed by state and local 

workforce investment agencies to effectively implement POS for veterans within the 

workforce investment system? 

5.	 Does the structure of the One-Stop Career System create any barriers to implementation 

of POS (e.g., bringing many partners together, existence of state/local flexibility, other 

priorities built into the law)? If so, please discuss. 

Final Report -- Evaluation of the POS Requirement Page 76 

 


 

APPENDIX B: 

STATE SITE VISIT DISCUSSION GUIDE
 

Final Report -- Evaluation of the POS Requirement Page 77
 
APPENDIX B: 

STATE SITE VISIT DISCUSSION GUIDE 

Introduction/Purpose Statement: Our visit here today is part of a U.S. Department of Labor 

(Employment and Training Administration) funded evaluation of implementation of the Priority 

of Service requirements under the Jobs for Veterans Act (JVA) in One-Stop Career Centers. 

DOL contracted with Capital Research Corporation, a policy research firm located in the 

Washington, D.C. metropolitan area – along with its subcontractors The Johns Hopkins 

University Institute for Policy Studies and the Lewin Group -- to conduct this study. The 

evaluation is intended to provide a better understanding of how veterans are provided access to 

workforce investment services through the One-Stop Career Center system. We are conducting 

site visits to seven states and seven local areas as part of this study. In addition to these site 

visits, we are also analyzing several large-scale databases to understand trends across all states. 

During our site visits to each of the seven states, we are talking to state workforce officials, and 

then visiting one locality within the state to discuss service delivery for veterans through the 

One-Stop Career Center system, with a specific focus on services delivered through the 

Workforce Investment Act (WIA), the Employment Service (ES), and the VETS programs. Our 

aim is to learn from your experiences, not audit or judge your programs. 

Confidentiality Statement: Before beginning the interview, we want to thank you for agreeing to 

participate in the study. We know that you are busy and we will try to be as focused as possible. 

We have many questions and are going to talk to many people, so please do not feel as though 

we expect you to be able to answer every question. In addition, before we start, we want to let 

you know that though we take notes at these interviews, information is never reported with the 

name of the respondent. The views you express will be kept confidential, and nothing we publish 

in this evaluation will identify you or reveal statements you make to us. When we write our 

reports and discuss our findings, information from all interviews is compiled and presented so 

that no one person could be identified. Do you have any questions before we begin? 

From each interviewee, collect the following contact information (and a business card, if 

available): 

 Name 

 Position 

 Agency/Organization 

 Address 

 Telephone/FAX 

 Email 

Final Report -- Evaluation of the POS Requirement Page 78 
 

 

 

 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

1. What are the distinguishing characteristics about the state’s workforce and veteran 

population, including: 

	 Unemployment rate; recent mass layoffs and plant closings; general 

availability of job openings (including occupations in which there are 

shortages) 

	 Recent/planned military base closures/realignments – their size, timing, and 

effects on the state and specific regions within the state 

	 Size/characteristics of the veteran population; concentration of veterans within 

the state 

2. Please provide a general overview of the structure of the One-Stop Career Center 

System in the state: 

	 How many full-service and satellite centers are there across the state? 

	 Are they structured the same way? If not, please discuss differences across 

centers? 

	 Are ES offices/staff integrated into the One-Stop Career Centers, in standalone offices, or both? Does the structure vary across the state? If the ES is in 

stand-alone offices, are ES (including DVOP/LVER) staff outstationed on a 

regular basis to One-Stop Career Centers? 

3. Are there a specific set of policies that exist at the state level to implement the priority 

of service provision in JVA? If yes, could we have a copy of these policies? If not, 

are they needed? Please provide a general overview of how priority of service is 

administered within the One-Stop Career Center system in the state. Is POS 

administered the same in all local areas/One-Stop Career Centers across the state? If 

not, how does POS administration vary and why? 

4. Do One-Stop Career Centers within your state use the same outreach methods to 

inform veterans and non-veterans about available services? Are there any special 

outreach efforts used to inform/recruit veterans? .Is it any easier or more difficult to 

get veterans (versus other One-Stop Career Center customers) to come in and use 

One-Stop Career Center services in the state? If so, why? 

5. What does priority of service mean when it comes to the provision of services 

through the One-Stop Career Center system in the state? What processes are in place 

at One-Stop Career Centers to ensure the priority of service provision is being 

applied? 

6. Has the priority of service provision impacted the "mix" of services available to 

veterans within the One-Stop Career Center system your state? If so, how and why? 

How do quantities and mixes of services provided to veterans compare to those 

provided to non-veterans? How do quantities and mixes of services provided to 

veterans compare to those provided to veterans prior to implementation of POS? 
[Request readily available data for recent program year(s) comparing service mix for 

veterans versus non-veterans.] 

7. What happens when One-Stop Career Center/WIB funding in a local area for 

intensive or training services runs low – do veterans get priority for remaining 

available intensive/training funds? How does veteran status rank compared to other 

factors such as income in providing priority of service? 

8. Has the state provided training on how to apply the priority of service provision? If 

yes, please describe the types of training provided (e.g., who receives training, 

duration and frequency of training; and content of training). 

9. Does the state have any special practices or procedures with regard to “marketing” 

veterans to businesses for job openings? If yes, please describe. 

10. Are any One-Stop Career Centers within the state currently involved or been involved 

in the past with the TAP program? If so, please describe the interaction and the 

extent to which the One-Stop Career Center system has integrated service delivery 

with the TAP program. 

11. Does the One-Stop Career Center system in the state offer any other special services 

or activities for veterans that we have not yet described? What other services are 

available to veterans through other state programs? Please briefly discuss these other 

programs and the extent to which such programs are provided through or linked with 

the One-Stop Career Center system in the state. 

12. Are there any procedures/services the One-Stop Career Center/WIB/ES uses that are 

particularly effective in assisting veterans to gain employment and/or improve 

earnings? 

13. Finally, from the perspective of the state, is the workforce investment system giving 

priority of service to veterans? Please provide available data to support your view 

(i.e., that the system is or is not giving POS to veterans). If not, where are the gaps 

in the system and what can be done to improve the system? Are all assets 

(programs/services) within the One-Stop Career Center system being used? What 

challenges does the One-Stop Career Center system face in applying the priority of 

service provision? Does the state have any suggestions for improving how POS is 

implemented in the workforce investment system? 

Final Report -- Evaluation of the POS Requirement Page 80 
 


 

APPENDIX C: 

LOCAL SITE VISIT DISCUSSION GUIDE: 

PROGRAM OFFICIALS FROM THE LOCAL WIB 

AND ONE-STOP CAREER CENTER(S)
 
 


 
 

APPENDIX C: LOCAL SITE VISIT DISCUSSION GUIDE: 

PROGRAM OFFICIALS FROM THE LOCAL WIB 

AND ONE-STOP CAREER CENTER(S)
 

Introduction/Purpose Statement: Our visit here today is part of a U.S. Department of 

Labor (Employment and Training Administration) funded evaluation of implementation 

of the Priority of Service requirements under the Jobs for Veterans Act (JVA) in One-Stop 

Career Centers. DOL contracted with Capital Research Corporation, a policy research 

firm located in the Washington, D.C. metropolitan area – along with its subcontractors 

The Johns Hopkins University Institute for Policy Studies and the Lewin Group -- to 

conduct this study. The evaluation is intended to provide a better understanding of how 

veterans are provided access to workforce investment services through the One-Stop 

Career Center system. We are conducting site visits to seven states and seven local areas 

as part of this study. In addition to these site visits, we are also analyzing several largescale databases to understand trends across all states. During our site visits to each of 

the seven states, we are talking to state workforce officials, and then visiting one locality 

within the state to discuss service delivery for veterans through the One-Stop Career 

Center system, with a specific focus on services delivered through the Workforce 

Investment Act (WIA), the Employment Service (ES), and the VETS programs. Our aim is 

to learn from your experiences, not audit or judge your programs. 

Confidentiality Statement: Before beginning the interview, we want to thank you for 

agreeing to participate in the study. We know that you are busy and we will try to be as 

focused as possible. We have many questions and are going to talk to many people, so 

please do not feel as though we expect you to be able to answer every question. In 

addition, before we start, we want to let you know that though we take notes at these 

interviews, information is never reported with the name of the respondent. The views you 

express will be kept confidential, and nothing we publish in this evaluation will identify 

you or reveal statements you make to us. When we write our reports and discuss our 

findings, information from all interviews is compiled and presented so that no one person 

could be identified. Do you have any questions before we begin? 

From each interviewee, collect the following contact information (and a business card, if 

available): 

 Name 

 Position 

 Agency/Organization 

 Address 

 Telephone/FAX 

 Email 
 

	 

	 

	 

	 

	 

	 

	 

	 

A. GENERAL BACKGROUND ON THE LOCAL WIB AND ITS ONE-STOP 

CAREER CENTER SYSTEM 

1. What is the geographic area served by the WIB and distinguishing characteristics 

about the local area, including: 

	 Unemployment rate; recent mass layoffs and plant closings; general 

availability of job openings (including occupations in which there are local 

shortages) 

 Recent/planned military base closures/realignments – their size, timing, and 

effects on the local workforce and One-Stop Career Center 

 Size/characteristics of the veteran population 

2. Please provide general overview of the structure of the One-Stop Career Center 

System: 

 How many full-service and satellite centers serve the local area? 

 If there is more than one One-Stop Career Center, are they structured the same 

way or different? How? 

3. Are there a specific set of policies that exist at the state or local WIB level to 

implement the priority of service provision in JVA? If yes, could we have a copy 

of these policies? If not, are they needed? 

4. Please provide a general overview of how priority of service is administered 

within the WIB and the One-Stop Career Center system. 

B. SPECIFIC QUESTIONS ABOUT SERVICES DELIVERED AT EACH ONESTOP CAREER CENTER INCLUDED IN THE LOCAL SITE VISIT (NOTE: 

SOME LOCALITIES MAY HAVE MORE THAN ONE CAREER CENTER --

IF THERE IS MORE THAN ONE CAREER CENTER, TWO CAREER 

CENTERS WILL BE VISITED; QUESTIONS BELOW MAY BE ANSWERED 

BY WIB OR ONE-STOP CAREER CENTER STAFF) 

1.	 How many total paid staff work at the One-Stop Career Center (i.e., are colocated at One-Stop Career Center), and if available, please provide a breakdown 

of staff co-located at the One-Stop Career Center for the following 

programs/services: 

 WIA 

 ES/VETS – Are Disabled Veteran Outreach Program (DVOP) specialists or 

Local Veterans' Employment Representatives (LVER) located at the One-Stop 

Career Center? If so, how many and is there a full-time presence? If parttime, how many hours are they at the One-Stop Career Center each week? 

How many other ES staff are there? 

Final Report -- Evaluation of the POS Requirement Page 83 
 

 

 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 If data are readily available – provide # of staff and role of other co-located 

staff at the One-Stop Career Center for other employment and training 

programs and other programs/agencies 

2.	 About how many customers are served by the One-Stop Career Center (e.g., 

estimates by day, week, month, and/or annually)? 

 Total One-Stop Career Center customers 

 Number/proportion who are veterans 

 How do the characteristics and service needs of the veteran population 

compare to non-veterans served through the One-Stop Career Center – if 

readily available, provide data for current/recent year on characteristics the 

veteran population versus non-veteran population? 

3.	 Does your One-Stop Career Center use the same outreach methods to inform 

veterans and non-veterans about available services? Are there any special 

outreach efforts used to inform/recruit veterans within the local area? Does your 

One-Stop Career Center receive referrals of veterans from other programs, 

military facilities, employers, or other sources? If so, please describe these 

referral sources. 

4.	 Is it any easier or more difficult to get veterans (versus other One-Stop Career 

Center customers) to come in and use One-Stop Career Center services? If so, 

why? 

5.	 When a customer first comes to the One-Stop Career Center, how and when is it 

determined he or she is a veteran? Is the process always the same? 

6.	 Are veterans generally aware of the priority of service provision when they first 

come into the One-Stop Career Center? If yes, where do they learn about priority 

of service? 

7.	 If they are not aware of priority of service when they come in, does your OneStop Career Center staff inform them about the priority of service provision? If 

so, when and who informs the veteran of the POS provision? 

8.	 Please describe the typical way in which veterans versus other (non-veteran) 

customers flow through services at your One-Stop Career Center (i.e., from 

recruitment/assessment into training and job search/placement, etc.)? [Note: If 

readily available, please provide a flow diagram that shows the typical flow of 

veterans through the system from the point of intake.] Please highlight any 

differences in flow, services, or who provides services for veterans versus nonveterans. 

9.	 What does priority of service mean when it comes to the provision of services 

through your One-Stop Career Center? What processes are in place at the OneStop Career Center or within the WIB to ensure the priority of service provision is 

Final Report -- Evaluation of the POS Requirement Page 84 
 

 

being applied? 

10. Has the priority of service provision impacted the "mix" of services available to 

veterans within the One-Stop Career Center? If so, how and why? How do 

quantities and mixes of services provided to veterans compare to those provided 

to non-veterans? How do quantities and mixes of services provided to veterans 

compare to those provided to veterans prior to implementation of POS? [Request 

readily available data for recent program year(s) comparing service mix for 

veterans versus non-veterans.] 

11. What happens when One-Stop Career Center/WIB funding for intensive or 

training services runs low – do veterans get priority for remaining available 

intensive/training funds? How does veteran status rank compared to other factors 

such as income in providing priority of service? 

12. Are One-Stop Career Center/WIB/ES staff provided training on how to apply the 

priority of service provision? If yes, please describe the types of training provided 

(e.g., duration and frequency of training; and content of training). 

13. Does the One-Stop Career Center/WIB/ES have any special practices or 

procedures with regard to “marketing” veterans to businesses for job openings? 

14. If not yet discussed already, how, if at all, do DVOP/LVER staff get involved in 

providing services at the One-Stop Career Center? What role, if any, do 

DVOP/LVER staff play in One-Stop Career Center to ensure veterans receive 

priority of service for all One-Stop Career Center services? 

15. Is the One-Stop Career Center/WIB currently involved or has it been involved in 

the past with the TAP program? If so, please describe the interaction and the 

extent to which the One-Stop Career Center system has integrated service 

delivery with the TAP program. 

16. Does the One-Stop Career Center/WIB offer any other special services or 

activities for veterans that we have not yet described? 

17. How do the employment outcomes for veterans using the One-Stop Career Center 

compare to non-veteran customers? If outcomes differ, why? How do 

employment outcomes compare to results before POS was enacted? [If readily 

available, please provide data for recent program year(s) for veterans versus nonveterans – note that this may related to only WIA-enrolled veterans.] 

18. Are there any procedures/services the One-Stop Career Center/WIB/ES uses that 

are particularly effective in assisting veterans to gain employment and/or improve 

earnings? 

19. Finally, from the perspective of the WIB/One-Stop Career Center/ES, is the 

Final Report -- Evaluation of the POS Requirement Page 85 
workforce investment system giving priority of service to veterans? If available, 

please provide available data to support your view (i.e., that the system is or is not 

giving POS to veterans). If not, where are the gaps in the system and what can be 

done to improve the system? Are all assets (programs/services) within the OneStop Career Center system being used? What challenges does the One-Stop 

Career Center system face in applying the priority of service provision? Does the 

One-Stop Career Center/WIB/ES have any suggestions for improving how POS is 

implemented in the workforce investment system? 

Final Report -- Evaluation of the POS Requirement Page 86 

 

APPENDIX D: 

STATE SITE VISIT SUMMARIES 

Final Report -- Evaluation of the POS Requirement Page 87
 
 

 

 

	 

	 

	 

	 

	 

	 

STUDY OF PRIORITY OF SERVICE UNDER THE JOBS FOR VETERANS ACT 

SITE VISIT SUMMARY -- ALASKA 

State: Alaska 

Dates of Visit: 10/1-10/3/2008 

	 State Geography/Population. Alaska is the largest state in the United States in land 

area (more than twice as large as Texas, the next largest state). It is one of the least 

populated states (ranked 47th), with an estimated population of 683,478 (in 2007). 

Alaska is the least densely populated state, at 1.1 people per square mile.13 

According to the 2000 U.S. Census, 69% of single-race Alaska residents were white 

and 16% were Native American or Alaska Native, the largest proportion of any state. 

Multiracial/Mixed-Race people are the third largest group of people in the state, 

totaling 7% of the population. Alaska has the highest percentage of veterans among 

states in the US – 17 percent of the civilian labor force are veterans. State 

administrators estimated that about 80 percent of the veterans in the state reside in the 

Anchorage/Mat-Su area. Finally, Alaska is the 6th wealthiest state in terms of per 

capita income. 

	 State Economy. The oil and gas industry dominates the Alaskan economy, with 

more than 80% of the state's revenues derived from petroleum extraction. Alaska's 

main export product (excluding oil and natural gas) is seafood (primarily salmon, cod, 

Pollock and crab). Manufacturing is limited, with most foodstuffs and general goods 

imported from elsewhere. Employment is primarily in government and industries 

such as natural resource extraction, shipping, and transportation. Military bases are a 

significant component of the economy in both Fairbanks and Anchorage. There is 

also a growing service and tourism sector. According to the Alaska Department of 

Labor and Workforce Development, Alaska’s seasonally adjusted unemployment rate 

in August 2008 was 6.9 percent, (compared to 6.1 percent, nationally). Alaska’s 

estimated payroll job count in August was 342,200. Although Alaska’s payroll job 

growth has slowed in 2008, gains in the oil industry continued to fuel modest overall 

gains. High oil prices have created job growth and budget surpluses for the state, 

which have helped cushion declines in the construction and seafood processing 

industries, and slowdowns in several other areas.

14 There are seasonable swings in 

employment, with typically higher employment levels in the summer. There is also 

high in-and out-migration to the state. 

	 Structure of Workforce Development System. Alaska is a single-WIB state (note: 

it formerly had two workforce areas, including a “balance of state” workforce area). 

The state has a total of 23 One-Stop Career Centers (referred to as Alaska Job 

13Background on Alaska’s geography, population, and economy comes from Wikipedia (at 

http://en.wikipedia.org/wiki/Alaska). 14 Alaska Department of Labor and Workforce Development, press release September 19, 2008 (available 

at: http://labor.state.ak.us/news/2008/news08-71.pdf. 

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Centers), five of which are considered to be full-service centers (note: at one point, 

the state had 25 One-Stops, but two of these centers recently closed). The One-Stop 

operator is the state’s Wagner Peyser/ES Program. All of the centers have 

ES/Wagner Peyser and WIA staff – most (especially the satellite centers) have a 

small numbers of staff (less than 10 ES and WIA staff combined). The number of 

staff and partnering agencies varies across the One-Stop Centers (note: more detail 

about the structure and composition of the One-Stop Career Centers is provided later 

in this summary). The state’s WIA Adult, Dislocated Worker and Youth Programs 

provide only part of the training resources in the state; other training resources 

include: the State Training and Employment Program (STEP), $6-7 M; NEG, $6M; 

and a High Growth Job Training Grant, $7M. The Wagner Peyser Program has been 

flat funded for a long time – which has translated into a steady decline in inflationadjusted funding, resulting in cuts in program staff and increasing reliance upon 

automated self-service. One of the big shifts in recent years with respect to delivery 

of services has been a move from staff-assisted services to an emphasis of customers 

doing as much as possible on their own within resource rooms. In fact, as discussed 

below, one aspect of service delivery that is distinctively different for veterans 

(versus non-veterans) is that they are more likely to interact one-on-one with Job 

Center staff (usually a veterans representative) and sometimes receive job 

development services (note: by comparison, a relatively small proportion of nonveterans would receive staff-assisted services, usually when they are in need of 

intensive or training services). With respect to serving veterans, there has been a 

steep decline in the number of veterans representatives (DVOPs/LVERs) – decreasing 

over the past 10 years from 12 FTE to 9 half-time staff (i.e., 4.5 FTE veterans 

representatives), with the veterans representatives spending the other half of their 

time in ES positions. The state has attempted to spread these veteran representatives 

across One-Stop centers as broadly as possible by deploying them 1⁄2-time. The 

steady decrease in “veterans representatives” has created challenges at One-Stops to 

provide the types of one-on-one, case-managed services that veterans often want (and 

expect) when they come into Centers. 

	 State Level Policies on Priority of Service. A set of state policies has been 

developed and distributed regarding POS for veterans. The state’s WIA Annual Plan 

includes requirements with regard to providing Priority of Service to veterans. There 

has also been specific policy guidance issued pertaining to priority of service for WIA 

dislocated workers and adults. This policy guidance includes definitions of “veteran” 

and “eligible spouse” (based on an ETA TEGL): 

o	 Veteran is an individual who served in the active military, naval or air 

service, and who was discharged or released from such service under 

conditions other than dishonorable, which may include National Guard or 

Reserve personnel. 

o	 Military Spouse is an individual who is married to an active duty service 

member including National Guard or Reserve personnel on active duty. The 

surviving spouse of an active duty service member who lost his/her life while 

on active duty service is considered to be a military spouse. 

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This policy guidance also includes a stipulation for priority of service to be 

implemented in the WIA adult and dislocated worker program once 65 percent of 

WIA funding has been obligated within a given program year. For example, under 

the WIA Adult program, the policy guidance is as follows: 

o	 In the event WIA Adult Program funding becomes sixty-five percent (65%) 

obligated, and other One-Stop partner agency funding is unavailable, the 

Chief of Field Operations, Employment Security Division (ESD), will 

implement the following priority of service when providing WIA Adult 

program participants with intensive and/or training services: 

(1) Veterans or a military spouse who are low-income; 

(2) Individuals with disabilities who are low-income; 

(3) Public assistance recipients; 

(4) Other low-income individuals; and 

(5) Individuals who are not self-sufficient. 

o	 The Jobs for Veterans Act does not change the requirement that individuals, 

to include veterans and military spouses, must first qualify as eligible under 

the WIA Adult Program before participation.15 

The state has had to invoke the 65 percent provision the last several program years – 

and for the current program year, the 65 percent threshold was reached during the 

first quarter of the program year. Though notification of the 65 percent provision has 

gone out to One-Stops, it does not appear (based on interviews at several One-Stops) 

that non-veterans have as yet been denied training under WIA as a result of this 

provision. This is, in part, due to the fact that the state has a variety of other training 

funding sources that can be used, including a state-funded training program (STEP), 

NEG funding, and a HGJTI grant. With regard to POS in the Wagner Peyser/ES 

Program, there is a statewide policy to place a hold on release of job orders to the 

general public for 24 hours so that veterans have a first chance at applying for the job 

opening. In addition, as discussed below, at the time of entry into a One-Stop, 

veterans are to be identified as early as possible (note: this is done usually by having 

each customer completing a slip of paper with identifying information, including 

checking off if he/she is a veteran), and then veterans are to be provided preference 

(“moved to the head of the line”) with regard to meeting one-on-one with One-Stop 

staff (if available, a veterans representative) and use of self-service computers. The 

fact that Alaska is a single-WIB state and that the One-Stop system is operated in all 

localities by the Employment Service facilitates uniform implementation of POS 

across One-Stop Centers. 

	 Outreach to Veterans. There are some special outreach efforts to bring veterans into 

One-Stop centers (note: see the file for a full listing developed by the Department on 

outreach activities to veterans): 

o	 Veteran representatives (DVOP/LVERs) are part of the teams that conduct Army 

Career and Alumni Program (ACAP) and Transition Assistance Program (TAP) 

workshops at local bases. During these sessions, veterans representatives inform 

soon-to-be-discharged veterans about the employment, training, and support 

15 State of Alaska, Department of Labor and Workforce Development, Policy Number 310.00, “WIA Adult 

Program Participant Eligibility and Priority of Service,” August 19, 2005. 

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services available through the One-Stop system. They also indicate that veterans 

receive priority when they come to One-Stops and often provide the name and 

contact information of the veterans representative at the One-Stop closest to the 

base. For example, at one of the Job Centers in Anchorage, the veterans 

representative facilitated 3-day ACAP seminars at Fort Richardson (Army), and 

TAP seminars at Elmendorf AFB (Air Force). On average, veterans 

representatives from this One-Stop attend three ACAP/TAP sessions per month 

(with average monthly attendance of 100 transitioning service members). 

o	 Other special outreach efforts for veterans vary across the state – One-Stop staff 

make presentations within the prison system, at homeless shelters, and at VA 

facilities (such as drug and alcohol treatment programs). One-Stop staff also 

make sure that partnering agencies, particularly those serving veterans, are aware 

of services available for veterans within One-Stops. There are over 100 

partnering agencies in the Anchorage/Mat-Su area that have been notified of 

services available via the One-Stop. 

o	 In Anchorage, an Annual Veterans’ Job Fair is conducted (the past year there 

were 65 employers and over 1,000 veterans in attendance). Veterans 

representatives are also sent to other job fairs to promote services available 

through the One-Stop Career Center system. 

o	 As part of the UI claims process (which is conducted by telephone or on-line), the 

claimant indicates whether he/she is a veteran and whether he/she wants to be 

referred to a veterans representative. If the box is checked, an automatic referral 

will be triggered, which results in a call from the veterans representative and, 

likely, the scheduling of an in-person visit by the claimant to meet with the 

veterans representative. In addition, all claimants must put an on-line resume 

onto the state’s system, which identifies the claimant as a veteran. Veterans 

representatives also review veterans’ on-line resumes for quality. 

	 Overview of How POS is Administered/Implemented in the One-Stop System. 

According to state administrators and administrators at One-Stops visited as part of 

this study there are several ways in which One-Stops ensure POS: 

o	 Veterans Identified and Moved to the Head of the Line for Services. When 

customers initially arrive at a resource room in a One-Stop Center they are asked 

to complete a short intake slip (1/4 of a sheet of paper) in which they check off if 

they are a veteran (note: there is no place to indicate whether a customer is an 

eligible spouse of a veteran). If the individual is only interested in conducting a 

search of job listings or using other self-service features of the One-Stop, whether 

he/she is a veteran will not have much of an effect. However, if there is not a 

self-service terminal available, the veteran may be able to use a terminal set aside 

especially for veterans. For example, the Muldoon and Midtown Job Centers (in 

Anchorage) each have a Veterans’ Job Lab, which offer several PC workstations 

that are set aside for use by veterans. If the veteran is in need of case 

management or more intensive services, they will move ahead of other nonveterans with regard to seeing an ES staff person (usually a veterans 

representative). There are posters in One-Stop hallways and self-service areas 

highlighting services available within the Center and through veterans 

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representatives. One of the biggest differences between veterans and non-veterans 

in how they are treated is that, if desired by the veteran, one-on-one case managed 

services are available from practically the moment they walk into a Center (where 

these same one-on-one services would normally be available to non-veterans 

further along, generally if they are going into training, have special needs, or 

experience difficulty in securing a job). 

o	 Twenty-Four Hour Hold on Job Listings. A 24-hour hold is placed on all job 

orders coming to the ES unless the business submitting the job order requests 

immediate dissemination of the job order. During this 24-hour hold, veterans will 

have an opportunity to review and apply for the job order. Veterans 

representatives maintain a roster of veterans and their job preferences so that they 

can match veterans to appropriate job orders – and veterans are either called or emailed to notify them within the 24-hour period of job orders. In some instances, 

the veterans representative will make a call on behalf of the veteran to the 

employer to introduce the veteran and perhaps even advocate on his/her behalf. 

According to one veterans representative interviewed at a One-Stop, matching job 

orders to veterans and making calls to employers can make the critical difference 

in terms of the veteran getting an interview and landing a job. 

o	 Provision of One-on-One Services and Job Development Services. Perhaps the 

most important manifestation of POS within the One-Stop system is the rapid 

referral of those in need of staff-assisted services to a case manager – usually a 

veteran representative. Sometimes veterans come into the One-Stop with an 

expressed desire to see a specific veterans representative, who they may have 

learned about in a TAP/ACAP session, from a partnering agency (such as a VA 

Center), or by word-of-mouth from another veteran. If the veterans representative 

is available, the veteran will normally be able to see the veterans representative 

immediately or will be scheduled for the next available slot. If a veterans 

representative is not available at the One-Stop (there are only 9 half-time veterans 

representatives in the state, so there is not coverage at all of the 23 One-Stops in 

the state), the veteran will receive preference over other customers to meet with 

ES/WIA staff (if available, often veterans prefer a staff person who is a veteran, 

even if they are not a veterans representative). As noted above, veterans 

representatives will often work closely with veterans to assist customers in 

securing a job and this may even involve calls to employers to identify 

appropriate jobs for a veteran or to encourage the employer to hire a specific 

veteran for a job opening. 

o	 POS for Veterans Implemented in WIA Adult and Dislocated Worker Program 

When 65% of Funds Are Obligated. As noted above (see specific policy above), 

when funds become 65 percent obligated veterans receive preference over nonveterans for intensive and training services. 

o	 Other Special Services for Veterans. Several One-Stops in the state have set aside 

a room or distinctive area with self-service terminals that only veterans can use. 

For example, in the Midtown One-Stop (in Anchorage), an area has been set aside 

apart from the regular customer self-service area (referred to as the VIP room), 

where there are four self-service computers for exclusive use by veterans. 

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o	 Business Connection Activities to Promote Hiring of Veterans. A special unit 

located at the full-service One-Stop Centers is responsible for interacting with 

employers and securing job listings (referred to as the “Business Connection”). 

This unit conducts a number of activities, especially related to marketing Job 

Centers to employers and seeking out job orders. Members of this unit conduct 

outreach with area businesses that are federal contract recipients to both educate 

them regarding the Federal Contractor Job Listing Program (FCJLP) and to 

promote the advantages of hiring veterans. They also, promote the advantages of 

using Alaska Labor Exchange System (ALEX) to post job openings. This unit 

provides daily job alerts via email to LVER/DVOPs and partner agencies (such 

as, Veterans Industries, Department of Veterans Affairs, Army Career and 

Alumni Program, Division of Rehabilitation, and Guard and Reserve 

representatives). It also responds to out-of-state veteran inquiries about the 

Alaska labor market and employment opportunities. This unit also has established 

relationships with LVERs/DVOPs in other states to assist with veteran relocation 

efforts and developed procedures to assist out of state veterans with ALEX job 

search activities. Members of this unit also provide direct referrals of veterans by 

contacting hiring managers. 

o	 Special Mailing. A special mailing was made to 380 returning National Guard 

members to inform them that they were potentially eligible for WIA dislocated 

worker assistance (but only 2 percent of these National Guard members contacted 

a One-Stop). 

	 Number of Veterans Served and Mix of Services Received. An estimated 11-12 

percent of those served through the One-Stop system over the past several years have 

been veterans (which is below the estimated 17 percent veterans in the civilian 

population). The state has not conducted detailed analyses of characteristics or 

services received by veterans. From discussions with state and One-Stop officials, 

anecdotal evidence suggests that veterans are much more likely to receive staffassisted services, in particular, one-on-one counseling with regard to job 

search/development with a veterans representative. State administrators noted that a 

small percentage of veterans are reluctant to identify themselves as veterans when 

they first come into One-Stop Centers. One state official noted that veterans 

sometimes do not want to be “singled out,” which could be a bad thing during their 

military service. 

	 Do Veterans Receive Priority for Intensive/Training Services When Funds Run 

Low? As noted above, the state has a policy that required POS to kick in when WIA 

Adult and Dislocated Worker funding is 65 percent obligated. The state has issued 

notice to the One-Stop System that this provision should be implemented during the 

last few program years (including for the current program year). It is not clear, 

however, that implementing this rule has had much of a direct effect on whether 

veterans versus non-veterans receive training services – discussion with state and 

one-stop operators indicate that because of the availability of a variety of training 

sources (including a state-funded training) that non-veterans have not generally been 

denied training as a result of this provision so far. 

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	 Training/TA on Priority of Service. One-Stop Staff receive training and technical 

assistance on POS from a variety of sources: 

o	 Specialized Training of Veterans Representatives in Denver. DVOP/LVERs have 

attended training at the National Veterans Training Institute (NVTI) in Denver. 

During various training modules veterans representatives are briefed about 

provisions of priority of service and provided in-depth training on effective 

methods for serving veterans. These staff return to their One-Stops and provide 

training to other staff at the One-Stop on how to effectively recruit and serve 

veterans. The Department has also brought NVTI instructors to Alaska for 

training of both veterans representatives and management. 

o	 “Intra-Learn” Web-based Training for ES Staff. All new ES staff are required to 

complete courses on a web-based training system, referred to as “Intra-Learn.” 

Three courses specifically include modules and references to the need to provide 

Priority of Service for veterans. ES staff are tested at the end of each training 

module and receive an upgrade in pay and status once they have successfully 

completed the various required training modules (and tests associated with each 

module). Prior to the implementation of Intra-Learn, ES had a series of 

PowerPoint slides that focused on POS and effective delivery of services to 

veterans. The Department is in the process of implementing the Intra-Learn 

system as a requirement for all new WIA employees. 

o	 One-Stop Academies. Each year, the state sponsors a workshop (referred to the 

“One-Stop Academy”) in each major region of the state to provide one-stop staff 

(including staff from partnering agencies) information and training on policies 

and effective delivery of service. Academy presentations include workshops that 

focus on POS and delivery of services to veterans within the One-Stop system. 

o	 Monthly Staff Meetings. One-Stops have monthly staff meetings involving 

WIA/ES staff and partners, during which POS and veterans services may be 

discussed. For example, officials at the Gambill Job Center noted that each 

month a veterans representative discusses veteran service issues (including POS) 

for about 5 to 10 minutes. 

	 Monitoring POS. The DOL Regional Office and State monitor from time to time 

that POS is being provided in the delivery of One-Stop services: 

o	 The DOL Regional Office outstations a federal VETS rep, called a “DVET” 

to the state workforce agency office. The DVET conducts a monitoring site 

visit to at least two full-serve Job Centers each year. As part of this visit 

several questions are asked concerning meeting POS requirements. The 

DVET had several observations concerning implementation of POS with 

Alaska: 

 The DVET has received no complaints over the past four years from 

veterans or other veterans’ organization concerning denial of POS for 

veterans served by One-Stops in the state. 

 The DVET indicated that USDOL does not sufficiently advertise POS 

on its website or elsewhere, so veterans may not be fully aware or 

understand key provisions of POS. 

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 The DVET has concern that as resources become more scarce 

(particularly if there is a loss of the various training funds that 

supplement WIA), that POS could become more of a problem (i.e., 

there could be heightened competition for training funds between 

veterans and non-veterans). 

 There is the potential in the future for competition between Alaskan 

non-veterans and incoming out-of-state veterans for pipeline 

construction jobs (an estimated 15,000 new jobs if the natural gas 

pipeline is agreed to). Alaska has had a policy in place that 

encourages training and job placement of Alaskans over out-of-state 

residents. This preference for in-state residents could potentially put 

out-of-state veterans at a disadvantage (vis-à-vis in-state non-veterans) 

when it comes to filling pipeline jobs and various training programs 

that will be implemented to ensure that there are no shortages of 

skilled workers. 

 The DVET indicated there is a need for ETA to provide additional 

regulation and clarification of POS requirements 

o	 The Alaska Workforce Investment Board certifies One-Stop Career Centers 

every two years. As part of this process, questions are asked pertaining to 

POS implementation and availability of services to veterans. The Department 

also periodically reviews data on the percentage of veterans served in the WIA 

and ES Programs (by state region and One-Stop), but does not generally 

conduct more detailed statistical analyses (e.g., of types of services received 

by veterans or outcomes). 

	 Challenges to Implementing POS in One-Stop Career Centers. A number of 

challenges were identified by state and local workforce officials: 

o	 Veterans do not always identify themselves as veterans when they enter OneStops – they may not want to be singled out or may feel that veteran status 

could hurt their chances of securing a job. 

o	 Eligible spouses are often difficult to identify. The form used to collect 

several identifiers and demographic characteristics when an individual enters 

the One-Stop does not include a question to determine if the individual is an 

eligible spouse of a veteran. The definition of an eligible spouse is also long 

and convoluted, which makes it difficult to ask and apply to new customers 

entering the system. 

o	 Some administrators at the state and local levels perceive that there is a lack of 

clear guidance from DOL on key definitions relating to POS and how the 

provision should be applied within a One-Stop setting. For example, 

according to one state official: “ETA has not provided adequate guidance on 

POS....It is difficult to take the Q&As on ETA’s website and tell staff what it 

means in terms of serving someone The VETS unit within DOL does not 

seem to be talking with ETA. I need to be able to give my people clear 

guidance...we need to be able to translate POS to requirements and 

procedures...my people need something a little more concrete with regard to 

POS.” 

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o	 While ES and WIA staff have at least some basic understanding of POS, OneStop partners are not always aware of the provision and may face mandates to 

serve other special populations (such as welfare households, the homeless, 

mentally-ill, and low-income households). Even WIA Program staff face 

requirements to serve other special subpopulation of non-veterans, including 

youth, unemployed/dislocated workers, disable individuals, and lowincome/welfare populations. One-Stop staff need to balance among various 

specially targeted populations. 

o	 With regard to future implementation of POS (as envisioned in the ETA web 

cast), there are several potential added burdens/costs for the state and OneStops – 

 Identifying “eligible spouses” will add burden to the intake process of 

One-Stops. Currently a short form is used, which will need to be 

updated to have new customers check a box similar to the one checked 

for veterans. However, the definition of “eligible spouse” is lengthy 

and difficult to understand. 

 New data elements will need to be added to the state’s data system to 

track eligible spouses. 

 The orientation provided when new customers enter the One-Stop will 

need to be changed to affirm upfront that the veteran and eligible 

spouses have POS – and this could lead to a feeling of “entitlement” 

on the part of veterans. In addition, the nearly 90 percent of customers 

served who are not veterans may feel slighted--so it will be important 

to take care in how veteran and non-veterans are informed about POS. 

 The state will probably have to alter the “65 percent” rule in current 

use, because it does not appear to meet the requirement that POS not 

only be enforced when training and other funds becomes tight. 

Key Findings from the Focus Group (conducted in Anchorage, Alaska): 

	 Attendee Characteristics – A total of 8 individuals attended the focus group, which 

was held in a conference room at the Muldoon Job Center (in Anchorage). Attendees 

were recruited by the One-Stop and included individuals who had recently used OneStop services. All of the attendees were male; there was a mixture by age; most had 

been in the military for periods of five or more years (and two for over 15 years); 

different service branches were represented; and there was a mix of attendees by 

race/ethnicity. Because focus group participants were invited by the One-Stop, it not 

clear that views expressed are generally representative (and probably are somewhat 

more favorable than what might be expected if the group had been randomly selected 

among past One-Stop customers). 

	 Receipt of Priority Affirmed. All of the customers felt they had received priority of 

service over non-veterans at the One-Stop. Several indicated that they had first heard 

that they would receive “priority” over non-veterans at the One-Stop during an 

ACAP/TAP session. Some of the experiences related by attendees with respect to 

POS were the following: 

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o	 One attendee indicated he came to the One-Stop in “dress uniform” to help 

ensure that he received priority – “I came here (the One-Stop) in dress 

uniform – sure enough it worked, I hardly stepped in the door and they helped 

me.” 

o	 Another attendee felt that his veteran status helped him to get one-on-one 

service “Instead of pointing to a bank of computers...I got to talk to a veterans 

representative...veterans seem to get more contact with staff.” 

o	 “As soon as I wrote down that I was a veteran [i.e., on an intake slip 

completed at the time of entry into the One-Stop), I was sent back to talk to a 

veterans representative.” 

	 Lots of One-on-One Attention and Help with Referral to Jobs. Most of the 

attendees felt that the main benefit of POS was that they received staff-assisted 

services tailored to their individual needs. 

o	 Most stressed the importance of being able to work with staff that were either 

a veterans representative or someone who was a veteran; once they had been 

referred to a particular veterans representative, several indicated that they only 

came to the One-Stop to see that veterans representative: 

 “Who is better to understand the needs and preferences of a veteran, 

than another veteran?” 

 “It was nice to have someone that understands the needs of a veteran – 

for example, we haven’t had to use a resume in the military.” 

 “I prefer a veterans representative (to other staff)...I would only come 

in to the One-Stop to see my veterans representative.” 

o	 Attendees particularly cited help they had received in searching for jobs; in 

some instances, veterans representatives directly contacted employers to see if 

job vacancies existed and/or to advocate on behalf of the veteran. 

 “I thought the services offered by the veterans representative were 

outstanding...the veterans representative set me up with two different 

jobs and I was offered both.” 

 “My veterans representative helped me to revise my resume, gave me 

job leads, and told me how much various jobs pay.” 

 “The veterans representative made a call to the employer for me to 

help break the ice...this helped my resume to stand out from others 

received by the employer.” 

 “ I was very pleased with the services I received...I tell other vets to 

come here (to the Job Center)...The Job Center was about the only 

place available to me within the community that I could go for job 

help.” 

 “When you apply for a job here (at the Job Center), they make a phone 

call to the employer...that is the main thing.” 

o	 Veterans representatives helped some attendees to better understand and 

adjust to the civilian job market. When some veterans are coming out of the 

military they are used to “military talk” and may have a tough time translating 

their skills into qualifications for specific jobs. One attendee noted that 

employers often electronically screen resumes and that it is necessary to have 

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certain catch words/phrases in your resume to get an interview. Another 

attendee noted 

o	 Attendees found out about the Job Center mostly from other veterans (word of 

mouth) and during workshops held as part of ACAP/TAP sessions. 

o	 None of the attendees attended a group orientation session at the One-Stop to 

learn about resources available at the One-Stop. They learned about available 

resources at the One-Stop mainly from Resource Room staff and their 

veterans representative. 

o	 One attendee received what he considered to be an “assessment” and no 

attendee had as yet received training. Nearly all of the assistance provided by 

the One-Stop related to finding a job. 

o	 One attendee noted that some employers have a strong preference for 

individuals who have lived in Alaska for at least one year because of fear the 

individual will not stay through the harsh winter. 

o	 One attendee noted that a veteran could be at a disadvantage for certain jobs 

under the “Native American Claims Act.” Jobs funded by the Bureau of 

Indian Affairs, for example, give preference to Native Americans. 

o	 The process by which veterans can apply for federal job openings and receive 

preference over non-veterans was viewed as fragmented. 

Final Report -- Evaluation of the POS Requirement Page 98 
 

 

	 

	 

STUDY OF PRIORITY OF SERVICE UNDER THE JOBS FOR VETERANS ACT 

SITE VISIT SUMMARY -- CALIFORNIA 

State: California 

Dates of Visit: 10/29-30/2008 

	 State Geography/Population. California is the largest state in terms of population, 

with an estimated population of about 36.5M (as of September 2007). The state has 

the most veterans in total numbers (at 2.148M veterans as of September 2007),16 but 

is ranked near the bottom among states (49th) in terms of percentage of the adult 

civilian labor force that are veterans (8%).17 There are pockets of the state where 

there are large concentrations of veterans, particularly the San Diego, Sacramento, 

and Los Angeles metropolitan areas (note: the percentage of veterans by county 

ranged, according to the 2000 Census, from as high as 21 percent in two counties to a 

low of 7 percent in two counties; details on the percentage of veterans by county are 

provided in a notebook EDD assembled as background on the state for the site visit). 

	 State Economy. California has a large, diversified economy. (According to state 

officials, the state has the 5th largest economy in the world.) The state has been a 

bellwether for the deteriorating condition of the U.S. economy, with the state’s 

economic conditions taking a downturn over a year ago, well before the general 

economic slowdown hit much of the rest of the country. The subprime mortgage 

crisis hit the state early (including large layoffs from at mortgage lenders 

Countrywide and Indy Mac) – and as a result, employment in the finance and 

construction industries have been hard hit. Employment has also fallen off in 

resource-based industries (such as timber and fisheries), airlines, automobile 

dealerships, media, restaurants, and most recently the closure of Mervyn’s statewide 

(a department store). General economic conditions have deteriorated throughout 

much of the state over the past year, with a steady string of large company layoffs 

(note: a large notebook was provided by EDD which contains detailed information 

about economic conditions, including layoffs and unemployment rates by county). In 

the first 10 months of 2008, over 1,000 WARN notices affecting over 56,000 workers 

statewide were issued. The unemployment rate in the state was 7.7% as of September 

2008 (well above the rate for the United States, 6.1%, and over two points above the 

state rate in September 2007, 5.6%). There are pockets of high unemployment 

within the state – running as high as one-quarter of the workforce (in Imperial 

County, an agricultural region near the Mexico border) – with 10 of California’s 58 

counties suffering unemployment rates of 10% or higher (as of September 2008). 

Despite predictions of significant dislocations, the Base Realignment and Closures 

(BRAC) 2005 round of closures/realignments has as yet to have much impact on the 

state. Veterans have generally done a little better with respect to unemployment (e.g., 

16 Source: Veterans Administration; available at: 

http://www.va.gov/budget/report/2007/Part_I/VETMap_2.pdf

17 Source: U.S. Census Bureau, 2006 American Community Survey. 

Final Report -- Evaluation of the POS Requirement Page 99 
 

	 

for the 12-month period ending in August 2008, the average unemployment rate for 

veterans 4.6 percent versus 6.3 percent for non-veterans). With regard to veterans, 

unemployment is particularly a problem for younger veterans (in the 20-24 year old 

range) and for recently separated veterans (particularly those returning from the 

conflicts in the Middle East). 

	 Structure of the Workforce Development System. California’s workforce 

development system is highly decentralized, featuring considerable local discretion 

with regard to how service delivery systems are structured and the extent to which 

various partners are engaged in the One-Stop service delivery system. There are a 

total of 49 Workforce Investment Areas in the state (note: there has been some 

consolidation in recent years with the number of workforce areas decreasing from 52 

to 49). Seven of these workforce areas are located in the Los Angeles metropolitan 

area. There are a total of 168 One-Stop Career Centers in the state (150 

comprehensive, 15 specialized (i.e., serving special populations such as youth or 

migrant and seasonal farm workers), and 3 mobile One-Stops (that can serve remote, 

rural areas)). The number of One-Stops has dropped by about one-half since 2001, 

when there was about 300 One-Stops providing services in the state. One-Stop 

Career Center operators are typically city or county governments, though centers are 

also operated by the state Employment Development Department (EDD), the state 

agency that receives Wagner-Peyser/ES funds, and nonprofit community-based 

organizations. California received early One-Stop planning and implementation 

grants (dating back to 1995). Despite these grants, there is quite a bit of variability 

across the state in terms of the extent of WIA/ES integration of services and the other 

partners engaged in the One-Stop system. According to state officials, there is still a 

fair degree of “silo-ing” of funding and programs in local areas across the state. In 

addition, there are still some stand-alone ES offices in localities served by One-Stop 

Centers (in part, because of leases and funding constraints. To try to bring greater 

service integration and collaboration to local workforce areas, the state has initiated a 

“Learning Laboratory” initiative in 12 workforce areas (beginning 7/1/08), which 

features a single case record for customers served by the ES and WIA and an 

integrated assessment process (note: see Section 2 of the notebook, which provides 

additional details about the Learning Lab initiative). The state is looking to roll this 

initiative out to other local areas in the next few years. The entire workforce 

development system has been adversely affected by decreases in funding (both actual 

and inflation-adjusted) in recent years. WIA has been particularly hit by steep 

decreases – dropping by 40% from PY2000-01 ($629M) to 2007-08 ($361M). The 

current year – because of rapidly deteriorating economic conditions – has featured a 

sharp rise in WIA funding ($426M, in 2008-09). Wagner-Peyser funding has 

gradually declined since 2000 (but not as much as WIA funding) – from $89M in 

PY2000-01 to $80M in PY 2008-09. VETS funding has been flat in nominal terms. 

Thus, in inflation-adjusted terms, the WIA, ES, and VETS Programs have seen their 

funding erode significantly since 2008. California also has a state-funded training 

program (referred to as the Employment Training Panel), which is targeted on 

incumbent worker training and is funded by employer contributions tied to the 

unemployment insurance tax base. A total of 81 of the 150 comprehensive OneFinal Report -- Evaluation of the POS Requirement Page 100 
 

	 

Stops in the state have veterans representatives (DVOPs, which are referred to as 

Veteran Employment Service Specialists (VESS), and LVERs, which are referred to 

as Veteran Workforce Specialists (VWS)). Overall, there are about 180 veterans 

representatives across the state – 101 full-time DVOPs; 56 full-time LVERs; 13 halftime DVOPs; and 7 half-time LVERs. The numbers of veterans representatives 

located at One-Stops varies substantially – e.g., in the Golden Sierra workforce area, 

the Roseville One-Stop has 4 full-time veterans representatives and the Auburn OneStop has none. As discussed below, the flow of veterans through One-Stops is largely 

left up to each workforce area and One-Stop, and depends to some extent on whether 

a veterans representative is available on site at the One-Stop. Where a veterans 

representative is available, one of the most distinguishing aspects of service delivery 

is that veterans are much more likely to receive case management services throughout 

their involvement in services in the form of interaction with a vet re (note: this is 

discussed later in the report). 

	 State Level Policies on Priority of Service. EDD has issued three policy guidance 

memoranda that pass along the federal guidance received with regard to Priority of 

Service (all three are in the notebook provided by the state): (1) a June 2003 

memorandum (“One-Stop Service Priorities for Veterans”), which provides a onepage overview of the requirements of the Jobs for Veterans Act (JVA); (2) a 

September 2003 memorandum (“Implementing the Veterans’ Priority Provisions” 

(PL 107-288), which passes on TEGL 5-03 to each local area; and (3) a July 2004 

memorandum, which notifies local areas of the ETA guidance in the form of a series 

of Questions and Answers. Each WIB is required, as part of its annual plan, to state 

local policies and procedures to ensure the JVA POS requirements are being met. 

The basic strategy of the state has been to make sure that local areas are aware of 

federal policies (i.e., a straight pass through of DOL guidance, such as the Q and As 

issued on the ETA website, without interpretation by the state). State officials noted 

the fact that “guidance” (in the form of TEGLs) was issued by ETA rather than 

regulation issued in the Federal Register made it more difficult to be definitive with 

local areas about the specific definition and requirements with regard to ensuring POS 

for veterans: 

“Guidance provided through TEGLs do not have the authority of regulations 

issued in the Federal Register. Because no statutory regulations were issued by 

DOL, we could only release guidance. In addition, DOL indicated when it first 

issued its guidance on POS that regulations would be issued shortly...we waited 

and waited for regulations, but they did not come...normally, you don’t have as 

long of a delay for issuance of regulation. We did not want to interpret federal 

law...we normally wait for federal regulation to come out...the delay and lack of 

regulation made it more difficult for us.” 

If, and when, DOL issues additional regulations, EDD will pass the regulations 

immediately on to local workforce areas and require compliance. Overall, the state 

has not issued policies beyond what has been set forth in ETA guidance. The main 

requirement for local areas is that they implement a 24-hour hold on release of job 

Final Report -- Evaluation of the POS Requirement Page 101 
	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

orders to the general public so that veterans have the first chance at applying for jobs 

listed within CALJOBs. Local areas establish their own criteria for implementing 

POS for training. 

	 Outreach to Veterans. The specific method for outreach to veterans – and the extent 

to which veterans are explicitly informed about their right to POS within the 

workforce system – is left to each local area. The state has developed two brochures 

(see the hardcopy case file) that are specifically aimed at informing veterans about 

employment, training, and support services available through the labor exchange 

(Wagner-Peyser) and WIA systems. These brochures are made available at OneStops, job fairs, VA hospitals, military bases, and other outreach sessions that inform 

the general public and veterans about eligibility and services. Specific types of 

outreach aimed at veterans include: 

o	 Presentations by Veterans Representatives at TAP sessions. A total of 776 

TAP sessions were conducted by EDD staff at 25 military bases in the state 

last program year. A total of 27,400 soon-to-be-released military personnel 

attended these sessions (of which about one-half stay in California after they 

leave the military). EDD veterans representatives attend TAP workshops and 

make presentations. The topics covered, which are tightly controlled by the 

Department of Defense, include an overview of labor exchange and training 

services available at One-Stop Career Centers, including availability of 

veterans representatives and the requirement that local workforce areas are to 

provide special assistance and priority for veterans. 

o	 Veteran Job Fairs. EDD sponsored 10 job fairs for veterans the past 

program year (attended by over 4,000 veterans) around the state. These 

special job fairs are called “Honor a Hero, Hire a Veteran Job and Resource 

Fairs.” During these fairs, EDD has a table that distributes brochures and 

provides information about veteran services available through the One-Stop 

system. There are also several hundred other job fairs in the state (open to the 

general public) during which brochures and other information are 

disseminated about employment and training services available for veterans. 

o	 “Key to Career Success Campaign”. US DOL and DoD launched a 

nationwide campaign entitled “Key to Career Success” in 2005. The 

campaign was intended to heighten veterans’ awareness of the variety of 

services available in One-Stop Career Centers and to help ensure priority of 

service. Under this campaign, a Veteran’s Key to Career Success access card 

was attached to a brochure distributed to transitioning military personnel, 

demobilizing military reserve, and national guard members, and recently 

separated veterans through the TAP program and military branch preseparation sessions. This card is intended to help veterans locate the nearest 

One-Stop Career Center in their local community and lists DOL’s toll-free 

help line. The card is also designed to ensure that One-Stop Career Center 

staff immediately recognize veterans and ensure their access to the full range 

of employment and training services. 

o	 Other Outreach Efforts. Veterans representatives make sure businesses are 

informed about veterans flowing into and through the One-Stop system. 

Final Report -- Evaluation of the POS Requirement Page 102 
	 

	 

	 

	 

	 

	 

Veterans representatives keep One-Stop partners informed about veteran 

services and preference given to veterans within the workforce system. In 

some areas, veterans representatives go to prisons and community events 

(“Stand-downs” focusing on homeless veterans) to make sure that veterans 

and the general public are aware of workforce services available to veterans. 

Veterans representatives may also be outstationed several days a week to 

military bases or VA facilities; for example, one of the four veterans 

representatives at the Roseville One-Stop Center is outstationed 4 days per 

week at a satellite employment center located on the campus of a facility that 

was formerly an air force base (Mather AFB). One-Stops also receive 

referrals of clients from VA hospitals, particularly of veterans involved in or 

completing rehabilitation. 

	 Overview of How POS is Administered/Implemented in the One-Stop System. 

Across the state, there is much discretion extended to local WIBs and One-Stops in 

terms of how service delivery is structured, client flow, and ways in which priority of 

service is ensured. The state encourages veterans to use the entire workforce system 

(i.e. extending beyond case managed services delivered by DVOPS/LVERs). 

According to state administrators and officials interviewed at the two One-Stops 

visited (Roseville and Auburn One-Stops), the specific procedures for implementing 

POS are determined mostly at the local level (within the general policies/guidance 

issued by USDOL). Below, we highlight the mains ways in which priority of service 

is provided. 

o	 Veterans Identified at the Time of Entry into the One-Stop and Extended Priority 

of Service. When customers initially arrive at a resource room in a One-Stop 

Center, they are identified as a veteran, though there is no standard sign-in sheet 

used across One-Stops in the state. Small numbers of veterans and eligible 

spouses may not realize they are veterans – especially some who did not see 

combat and spouses who may be unfamiliar with the POS coverage of spouses. 

In addition, a few veterans may not be willing to self-identify as veterans. In the 

two One-Stops visited (in Roseville and Auburn), each new customer is asked to 

complete a short intake slip (one-half of a sheet of paper) in which they provide 

basic identifying information, including checking off if they are a veteran (note: 

there is no place to indicate whether a customer is an eligible spouse of a veteran). 

This information is entered into a tracking system. The client flow and way in 

which POS is administered differs for the two One-Stops because the Roseville 

One-Stop (a comprehensive, full-service one-stop) has 4 full-time veterans 

representatives on –site and available to meet with incoming veterans, while the 

Auburn One-Stop has no veterans representatives on site. 

	 The Roseville One-Stop aims to get all veterans to see one of its four 

veterans representatives (administrators estimate that 90 percent of 

vets do so). If a veteran self-identifies on the 1⁄2 page tracking sheet, 

the One-Stop “Greeter” checks the scheduling software to see if any of 

the four veterans representatives is immediately available to meet with 

the veteran. If a veterans representative is available (which is often the 

case) the veteran is immediately scheduled to see the veterans 

Final Report -- Evaluation of the POS Requirement Page 103 
 

	 

representative; if not, the veteran will likely be scheduled to meet with 

a veterans representative the next day (or when it is next convenient 

for the customer to meet). During the initial meeting with the veterans 

representative the veteran will be provided with a one-page form 

(called the “Veteran Intake Sheet,” a copy of which is in the site visit 

file). On the front side of this sheet the veteran provides some basic 

identifying information, as well as service-related information 

(including service branch, service status, date of military service, 

whether he or she has a service-connected disability, education level, 

occupation, and minimum starting salary). The veterans 

representative interviews the customer for about a half hour to obtain 

additional background and to make an initial assessment of the 

veteran’s barriers to employment and service needs. The reverse side 

of the Veteran Intake Sheet is completed by the veterans 

representative, identifying barriers to employment, whether the veteran 

is part of a targeted veteran group (e.g., homeless, female, minority, 

transitioning vet, etc.), specific services provided and/or referrals 

needed, whether the individual is enrolled in “case management,” and 

additional case notes. If the veteran is in need of case management or 

more intensive services, he/she is seen by the veterans representative 

as needed. There are posters in One-Stop hallways and self-service 

areas highlighting services available within the Center and through 

veterans representatives. One of the biggest differences between 

veterans and non-veterans in how they are served is that, if desired by 

the veteran, one-on-one case managed services are available from 

practically the moment they walk into a Center (where these same oneon-one services would normally be available to non-veterans further 

along, generally if they are going into training, have special needs, or 

experience difficulty in securing a job). If the veteran is interested in 

moving on to training, the veterans representative normally guides the 

individual through the process of applying for WIA-funded (or other 

funded) training, increasing the likelihood of the individual completing 

all the necessary steps to enter training. Another service often needed 

by veterans is “de-mil-ing” of resumes (that is, help with translating 

skills and experience accumulated in the military to civilian 

applications). 

	 The Auburn One-Stop (a satellite office, with 3 staff) does not have a 

veterans representative. While veterans are similarly identified at the 

point of intake they receive basically the same services as any other 

customer at the One-Stop. Information on veterans who come to the 

One-Stop is transmitted to the Roseville veterans representatives about 

once per month. If the veteran would like to meet with a veterans 

representative and receive case management through a veterans 

representative, he/she is referred to the Roseville One-Stop (about a 

half hour drive away) for services described above. 

Final Report -- Evaluation of the POS Requirement Page 104 
 

	 

	 

	 

	 

	 

	 

	 

	 

o	 Twenty-Four Hour Hold on Job Listings. A 24-hour hold is placed on all job 

orders coming to the ES (and entered into the CALJOBS system). During this 

24-hour hold, veterans have an opportunity to review and apply for a particular 

job order, and employers only receive matches on veterans for listed positions. 

Veterans representatives maintain a roster of veterans and their job preferences so 

that they can match veterans to appropriate job orders – and veterans may be 

either called or e-mailed to notify them within the 24-hour period of job orders. 

According to one veterans representative interviewed at a One-Stop, the 

effectiveness of the 24-hour hold depends in part on the search process used by 

employers – the hold can make a difference for veterans if an employer searches 

for candidates the first 24 hours and if the employer tends to hire the first 

qualified applicant. The veterans representative also noted that employers using 

the ES often tend to hire quickly, and thus, the 24-hour hold can make a 

difference. 

o	 Provision of One-on-One Services and Job Development Contact (JDC) Services. 

Where a veterans representative is available within the One-Stop (which is not 

always the case across One-Stops in California), perhaps the most important 

manifestation of POS within the One-Stop system is the rapid referral of veterans 

to a DVOP/LVER for case management services. If the veterans representative is 

available, the veteran is usually able to see the veterans representative 

immediately or is scheduled for the next available slot. As noted above, veterans 

representatives often work closely with veterans to assist them in securing a job, 

and this may involve calls to employers to identify appropriate jobs for a veteran 

or to encourage the employer to hire a specific veteran for a job opening (referred 

to as JDC). 

o	 Veterans Receive One-on-One Help to Obtain Training and Preference for 

Training If WIA Funds Are Short. The state has not issued specific guidance on 

what One-Stops should do if WIA training funds run short, but has passed along 

ETA guidance that stipulates that veterans should receive POS when it comes to 

employment and training services. Each WIB has discretion with regard to 

restricting or not restricting funds for training for veterans as appropriate. With 

regard to the Roseville One-Stop, circumstances have not yet arisen whereby 

veterans and non-veterans have competed for scarce training dollars. If a veteran 

and non-veteran had the same circumstances and dollars were scarce, then the 

veteran would, according to state and One-Stop administrators, receive 

preference. The one-on-one case management services provided by veterans 

representatives can give veterans a “leg up” with regard to going through the steps 

required to be approved for training. The process can be fairly demanding, with 

particular emphasis on demonstrating a strong commitment to undertaking 

training and a need for training in order to enter a high demand occupation. A 

veterans representative can be of considerable assistance in helping a veteran to 

complete the necessary paperwork and interview to qualify for training. In 

addition, because of this case management assistance, a veteran is likely to get 

into training faster than a non-veteran, as much as 4 to 6 weeks earlier. 

o	 Special Grants to Serve Veterans (Recently Separated Veterans Solicitation for 

Proposals). Over the past 15 years, EDD has awarded grants to, on average, 10 to 

Final Report -- Evaluation of the POS Requirement Page 105 
 

 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

12 public, private nonprofit, and private for-profit organizations to provide 

employment and training services specially targeted on veterans. The purpose of 

these solicitations is to select, though a competitive process, eligible applicants 

that are qualified and prepared to use the funds in innovative ways to provide 

services to recently separated veterans discharged within the past 4 years. During 

the most recent round of grants $2M was awarded (note: the notebook provides 

additional details on the grants awarded and grantee organizations). 

o	 Use of State Veterans Representatives to Serve Local Areas without Veterans 

representatives. There is a shortage of DVOPs/LVERs in the state, and as a result, 

not all One-Stops have a veterans representative. EDD has used state WIA (15 

percent) funds to pay for an additional 11 state Veterans representatives (each 1⁄2 

time, so 5.5 FTE), who have been deployed throughout the state to meet needs of 

veterans, especially in areas that do not already have veterans representatives. 

	 Number of Veterans Served and Mix of Services Received. Overall, California 

has a relatively low percentage of veterans (ranked 49th in the nation in terms of the 

percentage of veterans in the population), but there are some pockets of the state 

where there are high concentrations of veterans. Statewide, about 8 percent of the 

customers registered in CALJOBS are veterans, which is about the same percentage 

as veterans represented in the civilian labor force. In 2008, there were 119,314 

veterans in the CALJOBS database. At the Roseville One-Stop, an estimated 10% of 

customers coming into the One-Stop are veterans. About 10% of One-Stop 

customers enrolling in training are also veterans. State and One-Stop officials 

indicated that veterans are much more likely to receive staff-assisted services, in 

particular, one-on-one counseling with regard to job search/development with a 

veterans representative. 

	 Do Veterans Receive Priority for Intensive/Training Services When Funds Run 

Low? As noted above, veterans are much more likely to receive case management – 

and so to the extent that case management constitutes intensive services veterans 

would be more likely to receive intensive services than non-veterans. As a result of 

one-on-one assistance, veterans also may receive help navigating their way through 

the process of applying for training and may move into training faster and at higher 

rates than non-veterans. However, the policies with regard to priority of service for 

intensive and training services are left to individual workforce areas to determine. 

	 Training/TA on Priority of Service. One-Stop Center staff receive training and 

technical assistance on POS from a variety of sources: 

o	 Specialized Training of Veterans Representatives in Denver. DVOP/LVERs have 

attended training at the National Veterans Training Institute (NVTI) in Denver. 

During various training modules veterans representatives are briefed about 

provision of priority of service and provided in-depth training on effective 

methods for serving veterans. These staff return to their One-Stops and provide 

training to other staff at the One-Stop on how to effectively recruit and serve 

veterans. 

Final Report -- Evaluation of the POS Requirement Page 106 
 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

o	 Monthly Staff Meetings. One-Stops have monthly staff meetings involving 

WIA/ES staff and partners, during which POS and veterans services may be 

discussed. For example, officials at the Roseville One-Stop noted that it is typical 

for one of the four veterans representatives to provide an update on veteran 

services. 

	 Monitoring POS. EDD conducts annual monitoring visits to one-stops. As part of 

this process, questions are asked pertaining to POS implementation and availability of 

services to veterans. The Department also periodically reviews data on the 

percentage of veterans served in the WIA and ES Programs (by state region and OneStop), but does not generally conduct more detailed statistical analyses (e.g., of types 

of services received by veterans or outcomes). 

	 Challenges to Implementing POS in One-Stop Career Centers. A number of 

challenges were identified by state and local workforce officials: 

o	 Veterans do not always identify themselves as veterans when they enter OneStops. Female veterans, those who were not involved in combat, those with 

less than honorable discharges, and eligible spouses sometimes do not selfidentify. 

o	 Eligible spouses are often difficult to identify. The form used to collect 

several identifiers and demographic characteristics when an individual enters 

the One-Stop does not include a question to determine if the individual is an 

eligible spouse of a veteran. 

o	 State administrators noted the lack of regulation provided by ETA with regard 

to implementation of POS. As discussed above, ETA issued guidance in the 

form of TEGLs and Q & A that did not have the full force of regulation, and it 

was anticipated that ETA would eventually issue regulation that would 

provide more definitive guidance that could be passed along to local areas. 

(The draft notice was published in the Federal Register in August 2008, but 

final regulations have not yet been issued.) 

o	 With regard to future implementation of POS (as envisioned in the ETA web 

cast), the state has submitted a comment regarding the need for clarification 

on whether widows of veterans killed in action are to be included as “eligible 

spouses.” 

o	 With the exception of the most recent program year, there has been a steady 

decrease in inflation-adjusted funding for employment and training services 

(e.g., WIA and Wagner-Peyser funding). As a result, staffing levels – 

including DVOPs and LVERs – have decreased in recent years, as well as 

funds to provide training. This has generally made it more challenging to 

provide intensive one-on-one services and training needed by veterans (and 

non-veterans, as well) served through the One-Stop system. 

Final Report -- Evaluation of the POS Requirement Page 107 
 

 

 

 

 

	 

	 


 


 


 

	 

	 


 


 


 

STUDY OF PRIORITY OF SERVICE UNDER THE JOBS FOR VETERANS ACT 

SITE VISIT SUMMARY -- FLORIDA18 

State: Florida 

Dates of Visit: 1/21-23/09 

	 State Geography/Population. Florida is the fourth largest state in terms of 

population, with an estimated population of about 18.3M (as of July 2008).19 The 

state also has the second largest and fastest growing veteran population, with 1.9 

million veterans (1,876,000 as of January 2009).20 Overall, about 8 percent of 

Wagner-Peyser participants are veterans (or “eligible person” or “transitioning 

service member”),21 and the state reports that about 4 percent of its WIA customers 

are veterans. Additionally, close to 10% of those involved with Operation Iraqi 

Freedom and Operation Enduring Freedom are from Florida.22 

The regional workforce boards (RWBs) with the most veterans in the population, 

based on the 2000 census, are Workforce Central Florida (RWB 12), Worksource 

(RWB 8), and the Broward Workforce Development Board (RWB 22). Many who 

leave the military in Florida choose to stay there. This is one reason for the large 

number of veterans in RWB 8 (the metropolitan Jacksonville area), along with the 

services available for veterans there. There are currently 20 military bases across the 

state. After the most recent Base Realignment and Closure (BRAC) actions, Florida 

lost one base, but gained more personnel than they lost, because the BRAC brought 

more people into the state to work at the remaining bases. 

	 State Economy. Florida’s unemployment rate reached 8.1 percent in December 

2008, up drastically from 3.6 percent the prior year and the highest it has been for 

over 16 years. Orlando, Pensacola, Jacksonville, and Miami all have unemployment 

rates below the Florida average but above the U.S. average. According to a January 

press release, “construction losses...[(which are a] react[ion] to declines in the 

housing market [)]...account for almost 30 percent of job losses in the state.”23 

Declines in the trade, transportation, and utilities sectors have accounted for nearly as 

many job losses. Other industries that lost many jobs in 2008 include: “professional 

and business services...manufacturing, financial activities...leisure and 

18 Florida staff could not be reached to obtain responses to all queries raised by the site visitors. 

19 Annual Estimates of the Resident Population for the United States, Regions, States, and Puerto Rico: 

April 1, 2000 to July 1, 2008: http://www.census.gov/popest/states/tables/NST-EST2008-01.xls. 20 Source: Untitled Florida report dated January 2009 and Florida’s State Veterans’ Program Plan of
 

Service Narrative. 

21 Source: DRAFT: Wagner-Peyser ETA9002/VETS200 Report. Available at: 

http://www.floridajobs.org/Reports/wpreports/ETA9002_VETS200_PY08Q1.pdf 22 Source: Returning Veterans and Their Families With Substance Abuse and Mental Health Needs –
 

Florida’s Action Plan, January 2009, page 5. 

23 Source: Florida’s December Employment Figures Released, available at:
 

http://www.floridajobs.org/publications/news_rel/LMS%20Release%2001-23-09.pdf 

Final Report -- Evaluation of the POS Requirement Page 108 
 

 

	 

	 

hospitality...information...total government...and other services.”24 Plants are 

closing throughout the state. Florida has also been recently struck by Tropical Storm 

Fay and a series of hurricanes. 

	 Structure of the Workforce Development System. Florida’s Workforce 

Development System is composed of 24 regions, which have approximately 78 fullservice One-Stop Career Centers and 14 satellites. Some regions have as many as 

five or six One-Stop Career Centers, but other areas (especially rural areas) utilize 

mobile units as One-Stops; about half the Regions have one such mobile unit. With 

regard to staffing, the AWI staff at the One-Stop Centers is mostly from WagnerPeyser (employment service) and Veterans Employment and Training Service 

(VETS). Other staff members are RWB employees or contract staff. The WagnerPeyser and VETS staff are state employees, but they are managed by the local staff. 

Florida provides an $88,250 “incentive award” to “encourage the improvement” of 

workforce services for veterans (as is optional under Veterans’ Program Letter 02­

07).25 

The Workforce Development System has had some recent changes. For one, the 

number of One-Stops in the state has decreased recently due to funding constraints. 

Moreover, the state has been less able to sustain its “work first” philosophy as the 

number of jobs has decreased and the demand for training has increased. 

Another change is that about half the One-Stops (and about half the RWBs) are 

beginning to provide direct core and intensive services (along with Wagner-Peyser 

staff), rather than using vendors. This was permitted by a recent change in a Florida 

statute. Prior to the law, One-Stops were required to outsource work. 

o	 One-Stop Career Centers include a variety of highly integrated services. In 

Florida, the employment service is fully-integrated into the One-Stops. In 

some areas, the Department of Children and Families (DCF) staff is also 

collocated in One-Stop Career Centers (DCF is the state agency responsible 

for Florida’s Temporary Assistance for Needy Families (TANF) Program). In 

such cases, the DCF staff provide services such as eligibility determination 

and benefits for welfare transition, food stamps, and Medicaid; then, the OneStop provides the workforce development services. The workforce 

development system also works closely with the Department of Education. 

This includes partnerships for grants and data sharing. Some funds have also 

been provided for regional boards to incorporate unemployment insurance 

(UI). Currently, the One-Stop Career Centers connect customers to UI 

through the phone or Internet, but they do not process applications. With 

regard to trade adjustment assistance (TAA), the program is not as large in 

24 Source: Florida’s December Employment Figures Released, available at: 

http://www.floridajobs.org/publications/news_rel/LMS%20Release%2001-23-09.pdf 

25 Source: Florida’s State Veterans’ Program Plan of Service Narrative, Pages 7-8 and 

Veteran Program Letter No. 02-07, available at: 

http://www.dol.gov/vets/vpls/VPLs/VPL%202-07.pdf 

Final Report -- Evaluation of the POS Requirement Page 109 
 

 

	 

	 

	 

Florida as it is in other states (Florida only has a few petitions each year). 

However, this could change with the changes recently enacted in the stimulus 

package to include the service industry, which is large in Florida. The Florida 

workforce development system also entails some partnerships that target 

veterans (discussed later). 

Each region has disabled veterans’ outreach program (DVOP) and local 

veterans’ employment representatives (LVER), known collectively as veterans 

representatives. Some veterans representatives are half-time, but they are 

usually full-time in larger areas. In Regions with few veterans 

representatives, the veterans representative will often travel with mobile OneStops to rural communities. Many times, the veterans representative will have 

a dedicated schedule that is advertised at the satellite and on the state website. 

As of January 2009, the state had 69 full-time equivalent DVOPs and 51.5 

LVERs; the number of FTE veterans representatives ranges from one in 

RWBs 3, 6, and 19 to 13.5 in Region 8 (the Jacksonville area).26 

Employment services at Florida One-Stops are sometimes provided online, so 

customers (including veterans) do not always need to come in to the OneStops. If a customer does come in, the state has not provided an intake form 

(so there is no uniform way to identify veterans). Instead, the intake process 

varies by RWB. Some RWBs use different forms depending on the type of 

services the customer wants. Enrollment is mostly automated. Because of a 

desire to serve veterans and meet priority of service requirements, greeters at 

the One-Stops generally inquire about veteran status immediately upon entry 

so that a veteran can be referred to a veterans representative if desired. 

The training funded through One-Stops is mostly done by vendors. About 75 

percent of this vendor-provided training is provided by community or 

vocational colleges. 

	 State Level Policies of Priority of Service. The state does not have a specific policy 

for the RWBs to provide POS. However, the state assists RWBs with interpretation 

of POS, especially through training. Along those lines, the state will be providing 

training on POS now that the new regulations have taken effect. The state also 

monitors POS, and has each regional board explain in its two-year report how POS is 

implemented. 

	 Outreach to Veterans. 

o	 Transition Assistance Program (TAP). Transitioning members of the 

uniformed services and their spouses who are retiring within 24 months and 

transitioning members and their spouses who are separating within 12 months 

are served by the TAP program. There are currently 11 locations providing 

TAP services in Florida, serving approximately 6,600 transitioning veterans 

26 Untitled document provided by Florida. Updated on January 21, 2009. 

Final Report -- Evaluation of the POS Requirement Page 110 
 

 

	 

	 


 

	 

	 


 

each year, and staff who participates in these programs is trained and certified 

by the National Veterans’ Training Institute in Denver.27 One state 

administrator viewed TAP sessions as the first manifestation of POS. The 

sessions are staffed by veterans representatives and are mandated to last for 

two days (although some regions, such as Pensacola, sponsor an extra day of 

training). Additionally, the TAP is “associated [with] Family Support/Service 

Centers[, which] are considered One-Stop Career Center Satellites.” In 

Jacksonville, veterans representatives hold four TAP sessions each month and 

assist approximately 60 veterans in each session. 

The state tracks veterans who participate in TAP sessions. This includes 

reviewing resumes to identify barriers to employment (e.g. if the veteran has 

held a large number of jobs). The state also identifies overloaded TAPs and 

divides them when appropriate. During a focus group, TAP participants said 

that the resume assistance and mock interviews were useful. 

o	 Veteran Job Fairs. There are both veteran-specific job fairs and regular job 

fairs where veterans have exclusive access for the first few hours. Some 

veteran job fairs have entailed partnerships with Military STARS (a company 

that organizes job fairs for and provides other employment services for 

veterans)28 and Hire Veterans First (a VETS program intended to “raise 

employer awareness of the value of hiring [veterans]”)29. In Jacksonville, 

there are several large military job fairs (with around 300 employers and 800­

900 veterans). 

o	 Stand-downs. The state has served approximately 1,500 homeless veterans 

through “stand-downs,” which are held annually in every major metropolitan 

area.30 Stand-downs entail the provision of a multitude of services for 

homeless veterans at the VA, health clinics, parks, etc. For example, standdowns have included providing dental services, assistance with obtaining 

stimulus benefits, and clothing. The state partners with a large variety of 

entities to provide these services. Many of the stand-downs use mobile units, 

provide assistance with resumes, and help the veterans with their job searches. 

Veterans representatives are there to work with the homeless veterans and 

begin case management. ETA programs work with the stand-downs and help 

implement them. Florida has applied for reimbursement for nine stand-downs 

and has funded others themselves. 

27 Source: Florida’s State Veterans’Program Plan of Service Narrative (undated). 

28 Source: Military STARS website, “About Us”, available at: 

http://www.militarystars.com/about_us.htm

29 Source: “President’s National Hire Veterans Committee Expands Nationwide Communications 

Campaign”, 10/26/2004. Available at: 

http://web.archive.org/web/20041211163342/http://www.dol.gov/opa/media/press/vets/VETS20041716.ht
 

m 

30 Source: Florida’s State Veterans’ Program Plan of Service Narrative, Page 12. 

Final Report -- Evaluation of the POS Requirement Page 111 
 

 

 

	 


 

	 


 

o	 Marketing veterans to employers. Veterans representatives are part of the 

business services teams that reach out to employers. Veteran services workers 

also reach out to employers on their own, depending on the region. They also 

distribute handouts to employers regarding the hiring of veterans. 

o Other Outreach Efforts. 

 Veterans representatives have identified veterans on their own and 

through collaboration with other groups. For instance, they track 

transitioning service members in the TAP programs (even though 

those members are not yet veterans). Moreover, when a veteran files 

telephonically for UI, the veteran is automatically registered for 

Wagner-Peyser services, and veterans representatives can see that the 

veteran has been registered.31 The VA also shares data with the 

regions on veterans. 

 Veterans representatives go to VA offices and reach out to a variety of 

places where one would expect to find veterans (such as “homeless 

shelters, correctional centers, work-release programs, and DOD family 

support centers”32). Veterans representatives also have out-clinics at 

VA hospitals, colleges, and county service offices. If they are not 

collocated, a veterans representative will usually go for a half-day or a 

day each week. Veterans representatives also provide briefings for 

veteran service operators and visit the American Legion and other 

veterans organizations. They also have focus groups for veterans at 

the community groups that they work with to discuss services provided 

at One-Stops. 

 Florida has VA Vocational Rehabilitation and Employment (VR&E) 

DVOP Coordinators out-stationed at six VA VR&E Centers. These 

staff members perform a variety of tasks, including facilitating efforts 

of the VR&E and One-Stop Career Centers (working with staff at 

both). They also assist with case management and with the monitoring 

of VR&E activities within the workforce system.33 

 The state has one DVOP who works with incarcerated veterans. In 

collaboration with the Department of Corrections, the DVOP is 

stationed in areas with the largest numbers of veterans being released 

from incarceration. The DVOP organizes and provides a variety of 

workforce services for incarcerated and/or transitioning incarcerated 

veterans.34 If a recently released veteran is moving to a new region, 

the DVOP notifies staff in that region. 

31 Annual Report - Federal Programs: Workforce Investment Act (WIA) and Related Workforce Programs
 

Program Year 2007 – 2008, page 16. 

32 Source: Florida’s State Veterans’ Program Plan of Service Narrative, Page 12. 33 Source: Florida’s State Veterans’ Program Plan of Service Narrative, Pages 9-10. 34 Source: Florida’s State Veterans’ Program Plan of Service Narrative, Pages 11. 

Final Report -- Evaluation of the POS Requirement Page 112 
 

 

 

 

	 

	 

	 

	 

	 


 

	 

	 

	 

	 

	 


 

	 Florida launched a website called “Florida Vets First” which provides 

links to information on the benefits and services veterans can receive 

including those provided through the workforce development system.35 

	 Florida is also considering telephoning veterans, “supplementing the 

calls being made by the U.S. [Department of Veterans Affairs] to 

returning veterans to ensure [that veterans] are aware of their federal, 

state, and local benefits and services.”36 

o	 Region 8 (Jacksonville) RWB and One-Stop Career Centers. With over 

158,000 veterans in the area, more than any other RWB in the state, veterans 

are a high priority in Region 8. With 13.5 FTE veterans representatives (4.5 

LVERs and 9 DVOPS), Region 8 has more veterans representatives than any 

other RWB. Some of the outreach efforts in Jacksonville were discussed 

above. Veterans representatives have reached out to homeless shelters and 

veterans service organizations (such as the American Legion), and they visit a 

correctional institution once a month. Veterans representatives are outstationed at a Fleet Family Support Center, two bases, and a community 

college; they also assist with the “Post Deployment Health Assessments 

(PDHAs) at National Guard units”.37 The RWB has also partnered with 

various local groups to “centraliz[e] resources and information for area 

veterans.” This collaboration, called First Coast Veterans, has entailed the 

creation of a Resource Guide and website for veterans in the region.38 The 

state also provides the veterans representatives with a contact list of veterans 

who have been identified on line that the veterans representatives can call. 

Veterans representatives explain One-Stop services at TAP sessions, and the 

services available for veterans are discussed on the Worksource web site. 

The Region 8 veterans representative staff has started collecting email 

addresses, which they have found to be particularly effective. When 

opportunities are available, the veterans representatives can now contact 

thousands of veterans at the same time. Veterans have responded well to the 

emails. For example, many veterans now wait in lines at job fairs to meet 

with the veterans representatives. 

	 Overview of How POS is Administered/Implemented in the One-Stop System. 

o	 Structure of the Region 8 (Jacksonville) One-Stop delivery system. The 

Regional WIB serves an area with a population of 1.4 million, of which over 

150,000 are veterans; 25,197 customers come into the eight One-Stop Career 

Centers in the region each year. Of the 76,100, about 11,000 are veterans. 

35 Source: Florida’s State Veterans’ Program Plan of Service Narrative, page 15 and 

http://www.floridavets.org/first.asp

36 Source: Returning Veterans and Their Families With Substance Abuse and Mental Health Needs –
 

Florida’s Action Plan, January 2009, page 10.

37 The Worksource Comprehensive 2-Year Plan, page 82. 38 Worksource Annual Report, page 15. 

Final Report -- Evaluation of the POS Requirement Page 113 
	 

One staff member expected that the veterans have better skill levels and work 

histories than other customers. However, another employee added that there 

is also an increasing number of disabilities amongst veterans. 

The Region 8 area is growing, and it is on the receiving end of BRAC. The 

WIB includes 7 full-service One-Stops and one intensive service One-Stop. 

The One-Stops are similarly structured. The WIB also has about 10 access 

points with varying degrees of services. Some access points are community 

colleges, and the WIB is attempting to create access points at faith-based and 

community-based organizations (such as by training their staffs). 

Because of funding constraints, 97 percent of the customers only receive core 

services. There are probably about 100,000 registrations for Wagner-Peyser 

services. Approximately 3,000-3,500 customers receive training each year. 

This is a small number, and there is a need for training, but the training is 

costly; at about $750,000-$1,000,000 per year, the training costs make up 

about 8 percent of the overall budget. About one-third of the training funds 

come from TANF (Florida permits TANF funds to be used for training lowincome groups). They use individual training accounts (ITAs), which are 

vouchers, for most of the training, except for employed worker training. They 

are mandated by the state law to spend a certain amount of their WIA funds 

on training each quarter. 

o	 Although the Region believes in rapid attachment to the labor market, they do 

not think that their job ends there. They approach employers to see if they can 

upgrade the skills of employees (i.e. incumbent worker training). Last year, 

they trained about 3,000 people in key occupations (requiring high skill and 

providing high wages). The average wage after training is about $19/hour. 

The Jacksonville One-Stop houses several organizations and services. 

Because of the large number of services, WIA and Wagner-Peyser staff is 

often able to refer customers to other organizations within the same building. 

These services and organizations include: 

 Vocational Rehabilitation, which takes referrals from the OneStop staff. The VR staff includes 2 people who work a total of 

four days per week. 

 The Florida Department of Children and Families (DCF) is 

housed next door. The DCF determines eligibility and then 

sends recipients to the One-Stop for workforce services. They 

work closely with the One-Stop staff. Originally, one DCF 

staff member was housed in the One-Stop. 

 A senior citizen program called “Experience Works” is present 

at the One-Stop Career Centers. Two participants serve as 

greeters in the One-Stop Center we visited. 

 Childcare. Although the One-Stop has an MOU with them, 

and the One-Stop staff asks them for advice, the childcare 

Final Report -- Evaluation of the POS Requirement Page 114 
 

 

 

 

	 

	 

	 

	 

	 

	 

program is not as integrated as Wagner-Peyser. They have 

three workers at the One-Stop Career Center we visited. 

 The Early Learning Coalition, which mostly works with 

childcare providers. 

 Independent Living Resources serves customers with 

disabilities. The staff comes to the One-Stop Career Center on 

a rotating basis. 

 One-Stop staff members with special responsibilities include: a 

staff member funded by WIA and North Florida Career 

Advancement Accounts (CAA) who works with military 

spouses, one staff member who works with community 

colleges, and a staff member who works closely with 

businesses (funded through Worksource). 

As noted above, RWB 8 has 17 DVOPs and LVERs on staff with 13.5 

FTEs. While some of the veterans representatives are fully devoted to 

veteran services, the Region 8 WIB finds it very helpful to have some 

veterans representatives who work half time with Wagner-Peyser 

customers. Such veterans representatives can be placed on bases 

where they can also serve veterans’ spouses and children. Moreover, 

they can serve areas that cannot support full-time veterans 

representatives. 

o	 Veterans Identified at the Time of Entry into the One-Stop . 

	 The state does not have a specific POS policy, other than requiring the 

RWBs to meet the requirements specified in Department of Labor 

guidance and regulations. According to the Florida’s State Veterans’ 

Program Plan of Service, all veterans are identified at the time of entry 

into the One-Stop (the state stresses during training that One-Stop staff 

must ask a customer if he or she is a veteran); “special needs” veterans 

(identified through the “needs-based approach” and with the Employ 

Florida Marketplace (EFM) computer system) are then “referred to the 

[veterans representative] for the appropriate services.” Veterans are 

registered in EFM and those “with barriers to employment will be 

provided with the necessary initial assessment and the required 

documented intensive case management services.”39 In some regions, 

the DVOP/LVERs generally prefer to see veterans first, so they try to 

be in the One-Stop on busy days. The state also encourages veterans 

representatives to go through customer lines to identify and serve 

veterans. Some regions also have veterans-only resource rooms. 

	 Region 8 (Jacksonville area) One-Stop Career Center. When a 

customer first walks into a Region 8 One-Stop Career Center, a greeter 

immediately asks if the customer is registered with Worksource and if 

the customer is a veteran. Customers usually identify if they are a 

39 Source: Florida’s State Veterans’ Program Plan of Service Narrative, Page 3. 

Final Report -- Evaluation of the POS Requirement Page 115 
 

 

	 

	 

	 


 

	 

	 

	 


 

spouse of a veteran. Veterans representatives also work in the 

resource room where they can identify spouses (and assist with 

intake). 

If the customer is not a veteran, then he or she is sent to the resource 

room, where the person is offered services (such as self-service 

computers and workshops). If the non-veteran requests training, he or 

she first receives core services. The One-Stop also provides an 

orientation, explaining that there are other services available if the 

customer cannot find a job. Later on, the customer could receive WIA 

orientation and progress through intensive services and training. 

In contrast, if a veteran walks in, the vet is immediately offered an 

opportunity to meet with a veterans representative, which veterans 

almost always accept. The veterans representatives are usually 

available within a few minutes. If available, the veterans 

representative makes sure the customer is a veteran and then provide 

an “interview...evaluat[ion]....and registrat[ion].”40 If the veterans 

representative is not immediately available, and if there is no other 

staff appropriate for the veteran customer, then the staff provides the 

veterans representative’s card and asks if the veteran would like to 

make an appointment or wait in the resource room. 

o	 Twenty-Four Hour Hold on Job Listings. The state previously had a twenty-four 

hour hold on job listings, but eventually came to view this as a disservice to 

employers. Currently, Florida’s computerized job listing service (called “Employ 

Florida Marketplace”) does not permit RWBs to have a 24-hour hold. For this 

reason, Region 8 ended this aspect of POS around two years ago. Employers can 

still search Employ Florida Marketplace for veterans, and this sometimes occurs. 

o	 Provision of One-on-One Services and Intensive Services. Much of this was 

discussed in the previous section, Veterans Identified at the Time of Entry into the 

One-Stop. In addition, Florida provides specific “Job Skills Workshops and Job 

Clubs for veterans”.41 

	 Region 8, For separating veterans, counseling first begins after the 

TAP sessions with the two staff that serve on the base. At the OneStop office, the veterans representative conducts an intensive 

assessment with all veterans who desire it. The veterans representative 

starts the veteran with core services and makes a determination of 

whether intensive services are required. A veteran who has recently 

left the service typically receives intensive services, while veterans 

who have been out of the service longer usually require fewer 

intensive services. 

40 Worksource Comprehensive 2-Year Plan 2007-2009, page 82, available at:
 

http://www.worksourcefl.com/files/WorkSource_2_Year_Plan.pdf 41 Source: Florida’s State Veterans’ Program Plan of Service Narrative, page 4. 

Final Report -- Evaluation of the POS Requirement Page 116 
 

 

	 

	 

	 

	 

	 

	 

	 

	 

The veterans representative does not immediately focus on quick job 

placement unless appropriate. Depending on what kind of intensive 

services are needed, the veterans representative asks about such issues 

as disabilities and health status, the veteran’s family situation (e.g. if 

the veteran has a spouse), and UI. The veterans representative 

assesses the veteran’s skills to determine how they are transferable into 

the civilian workforce. If the veteran would like to apply for disability 

payments through VA, he or she is sent online or given the appropriate 

forms by the veterans representative. Alternatively, the veterans 

representative sometimes refers the veteran to a specific person at the 

VA clinic (with whom the veterans representative has a close 

relationship). This is helpful, because veterans are typically reluctant 

to deal with the bureaucracy of the VA. Veterans representatives also 

inform veterans about the GI Bill benefits and other services available. 

o	 Job Development Contact Services. The veterans representatives perform a daily 

search on behalf of veterans for new jobs. If a good potential match is found, 

they then send an email to and sometimes call the veteran. Such a process was 

described in Region 8, where veterans representatives contact veterans who are 

among the top five candidates for a position (only occasionally do One-Stop staff 

do this for non-veterans). 

o	 The veterans representatives also review new registrations in Employ Florida 

Marketplace daily. Veterans representatives receive an alert when a veteran logs 

onto the Florida Marketplace system. The veterans representatives inspect the 

applications to make sure they are complete, and they sometimes contact veterans 

to see if they need additional services (especially if the veteran has contacted the 

One-Stop by email or letter). 

o	 Business services staff of the RWBs have set aside specific staff to work with 

employers. DVOP/LVERs are a part of these teams and make sure that 

employers are aware of veterans who are interested in and qualified for listed 

jobs. Additionally, the veterans representatives “take the...lead” of the Hire 

Veterans First campaign, and the state plans on conducting a media campaign to 

encourage the hiring of veterans.42 

	 Region 8. The veterans representative performs an intensive search 

for jobs for veterans in the community. They ask employers about job 

openings, because some employers do not list jobs at One-Stop Career 

Centers. Veterans representatives may also call employers to inform 

them about a veteran customer at the One-Stop. 

Region 8 workers also corroborated that the veterans representative 

staff is included in the marketing effort of each office. One staff 

42 Florida’s State Veterans’ Program Plan of Service Narrative, Pages 4 and 5. 

Final Report -- Evaluation of the POS Requirement Page 117 
 

 

 

	 

	 

	 


 


 

	 

	 

	 


 


 

member believes that this collaboration gives them a more 

professional face for employers (rather than if the staff separately 

contacted employers multiple times). They also have brochures that 

market veterans to employers and other market consultants that reach 

out to employers will mention the talented pool of veterans available. 

o	 Priority of Service for Training (Region 8). All customers seeking training go 

through an intensive assessment to ensure that they have the background to pursue 

the desired career. While there is no formal POS regarding training, veterans 

representatives do personally speak with the training staff if the veteran needs 

training. There are also other funding sources available for training veterans, such 

as the VA Vocational Rehabilitation (about a three-week process, preceded by 

intensive services from veterans representatives) and the GI Bill. Region 8 has 

the largest number of veterans enrolled in training in the state. 

o	 Special Grants and Programs to Serve Veterans. The Florida State Board has 

also partnered with Florida’s three grantees (two in Jacksonville and one in 

Cocoa, totaling $650,000) of the federal Homeless Veteran Reintegration 

Program (HVRP). According to the DOL’s website, HVRP is intended to help 

homeless veterans “obtain meaningful employment” and to bolster other services 

to homeless veterans.43 Staff from One-Stops either goes to grantees, or the 

grantees have a presence at the One-Stops. The state has also given four grants to 

RWBs to “develop innovative, employed worker training programs” for various 

special populations, including veterans.44 Finally, Florida has created the 

“Military Family Employment Advocacy Program” to provide a variety of 

workforce services to the family of those in the military. This program operates 

out of seven One-Stops, all close to bases. 45 

	 Region 8. The region has several special grants and services for 

veterans including: 

 A $25,000 grant for a “Disabled Vets Marketing Campaign.”46 

 Funding for the Career Advancement Account (CAA) project 

for military wives, which a One-Stop staff member described 

as a huge success. Additionally, the One-Stop has a staff 

member solely devoted to working with military spouses. She 

is located in the South Side One-Stop, but she is responsible for 

the entire region. 

 Entrepreneurial classes out of the University of North Florida. 

This is a six-week course for veterans about how to manage a 

business plan, get it underwritten, and launch it. Several 

veterans have started businesses after this program. 

43 Source, Homeless Veterans' Reintegration Program Program Highlights, available at: 

http://www.dol.gov/vets/programs/hvrp/homeless_veterans_fs.htm

44 AWI Report, page 76
 45 Source: Quick Facts: Workforce Services – Military Family Employment Advocacy Program.
 46 Worksource Comprehensive 2-Year Plan 2007-2009, available at: 

http://www.worksourcefl.com/files/WorkSource_2_Year_Plan.pdf 

Final Report -- Evaluation of the POS Requirement Page 118 
	 

	 

	 

	 

	 

	 

 Special grants from the Veterans Workforce Investment 

Program to help veterans obtain wireless certification and to 

assist female veterans with electrician certification. 

 Employment services available through the Ticket to Work 

program for social security disability insurance (SSDI) and 

supplemental security income (SSI) recipients. Region 8 has 

been encouraging disabled customers, including veterans, to 

use this program, which provides support for many of the 

services offered at One-Stops as well as by other providers. 

o	 Partnerships to Help Serve Veterans. In addition to the collaboration 

discussed above with the Homeless Veteran Reintegration Program, in Marion 

County, there is a partnership with the utility companies and the Florida 

Workforce Energy Commission. Utility companies estimate that about half of 

their current employees will soon retire. They are working closely with the 

staff from TAP to target veterans and to get veterans into technical training. 

A similar partnership to provide employment opportunities for veterans is 

occurring with the Department of Corrections. 

	 Region 8. Although they do not have outstationed staff at these 

organizations, they do have monthly contact with veteran service 

organizations including Disabled American Veterans (DAV), 

American Veterans (AMVETS), Florida Department of Veteran 

Affairs (DVA), and the American Legion. Those organizations also 

come to the One-Stops to see how they can assist veterans. The OneStop staff also performs BRAC work. Finally, two members of the 

Region 8 board have worked for veterans organizations. 

More generally, the veterans representatives attempt to go beyond 

providing employment services, with the belief that additional 

supportive services are needed for successful continued employment. 

They also look at the needs of veterans’ spouses and the veterans’ 

childcare, disability, and income needs. 

	 Number of Veterans Served and Mix of Services Received. During the reporting 

period from July 2007 – September 2008, there were 1,104,946 participants in 

Wagner-Peyser, including 90,246 “veterans, eligible persons, and [transitioning 

service members (TSMs)]”. As can be seen below, veterans typically received more 

Wagner-Peyser services than overall participants received. Nearly four percent (3.9 

percent) of veterans were “referred to federal training,” and 4.4 percent were referred 

to a federal job, although only a small portion eventually received either. A large 

percentage of campaign veterans, special disabled veterans, and recently separated 

veterans were “referred to a federal contract job” (between 16 percent – 18.5 percent) 

although very few actually “entered into [a] federal contractor job.” Not shown in the 

table, veterans have about the same entered employment rate as the overall WagnerFinal Report -- Evaluation of the POS Requirement Page 119 
 

 

 

 


 


 


 

	 


 


 


 


 

	 


 

Peyser population (61 percent versus 62 percent), but they have a higher 6-month 

employment retention rate (81 percent in comparison to 78 percent).47 With regard to 

participants in the WIA Adult and Dislocated Worker Programs, in PY 2007-2008, 

veterans had lower outcomes than overall participants across several measures 

(average earnings and the entered employment, employment retention, and 

employment and credential rates).48 

Table A: 49
 

Wagner-Peyser Services Received
 

(July 2007 – September 2008)
 

Total Total Veterans, Eligible 

Participants Persons, and TSMs 

Received workforce 

information services 66.0% 66.7% 

Received staff assisted 

services 86.7% 87.3% 

Career guidance 12.2% 18.6% 

Job search activities 63.2% 66.5% 

Referred to employment 54.2% 56.0% 

Received intensive services * 5.9% 

Referred to WIA services 1.4% 1.5% 

* Data unavailable 

	 Do Veterans Receive Priority for Intensive/Training Services When Funds Run 

Low? The state notes that veterans are to receive priority of service, but they leave it 

up to the local RWBs to implement their own policies. The state Veterans’ Program 

Plan of Service Narrative states that “eligible veterans will also receive priority in all 

Dept. of Labor (DOL) employment and training programs operating in the One-Stop 

Career Center, e.g. WIA, etc.” 50 

In their two-year plans, regions are required to identify how they will prioritize 

services for veterans. The state reviews these plans to see if veterans receive priority. 

47 Source: DRAFT: Wagner-Peyser ETA9002/VETS200 Report. Available at: 

http://www.floridajobs.org/Reports/wpreports/ETA9002_VETS200_PY08Q1.pdf 48 Annual Report - Federal Programs: Workforce Investment Act (WIA) and Related Workforce Programs
 

Program Year 2007 – 2008, pages 49 and 71. 

49 Source: DRAFT: Wagner-Peyser ETA9002/VETS200 Report. Available at: 

http://www.floridajobs.org/Reports/wpreports/ETA9002_VETS200_PY08Q1.pdf 50 Source: Florida’s State Veterans’ Program Plan of Service Narrative, Page 4. 

Final Report -- Evaluation of the POS Requirement Page 120 
 

 

 

 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 Training/TA on Priority of Service. 

o	 Quarterly trainings. As discussed in Florida’s State Veterans’ Program Plan 

of Service Narrative, all One-Stop Career Center staff will “be trained and 

tasked to identify veterans, specially disabled veterans and veterans with 

barriers to employment, and ensure that the necessary positive workforce 

services are provided...[;] One-Stop partners and service providers will [also] 

be trained to identify veterans with barriers and, in most cases,...to refer these 

veterans to the DVOP staff for services.” 51 The state provides quarterly 

regional training for everyone regarding veterans’ issues; one of the first 

issues discussed is POS. They always receive a good turnout from 

management staff. They also encourage the frontline and executive staff to 

attend. In addition, the state provides on-line training periodically and 

conducts quarterly forums.52 Finally, Florida provides One-Stop Career 

Center staff with an online manual (called the “State Veterans’ Services 

Program Guide”). 53 

o	 In addition, the state monitors about one-quarter of the regions each year. 

During the visit, the state raises POS and difficult POS issues. 

o	 In Region 8, all new staff receive training. Every new non-veteran staff has to 

go through tier 1 training, which is provided online and includes a module on 

veteran services (including POS) and responsibilities to veterans. Each OneStop in the RWB has a local veterans representative who is responsible for 

staff training. 

	 Monitoring POS. 

o	 The state prepares a quarterly report on various measures and indicators of 

Regional Workforce Boards on WIA, Wagner-Peyser, and TANF. One focus 

of this “Balanced Scorecard Report” is the employment and earnings of 

veterans.54 The state also looks at the number of veterans entering One-Stops 

and receiving training in comparison to customers overall; if the veterans 

numbers look low, they will speak with the relevant RWB. The Balanced 

Scorecard Report also includes a customer satisfaction survey, which may 

include a veteran component.55 

Beyond the federally-required assessments, Florida also conducts site visits to 

a portion of One-Stops to review veterans’ services and receives “Manger’s 

Report[s] on Services to Veterans” from LVERs.56 Moreover, during site 

visits, they look for a sign asking if customers are veterans. 

	 Challenges to Implementing POS in One-Stop Career Centers. 

51 Source: Florida’s State Veterans’ Program Plan of Service Narrative, Pages 2 and 12. 52 Source: Florida’s State Veterans’ Program Plan of Service Narrative, Page 3 53 Source: Florida’s State Veterans’ Program Plan of Service Narrative, Pages 2 and 12. 54 AWI 2007 Report 

55 AWI Report 

56 Source: Florida’s State Veterans’ Program Plan of Service Narrative, Page 3 

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o	 Some regions have large retiree populations. One administrator suggested a 

special competitive grant for serving unique populations (such as retirees). 

Some of the older veterans are not computer literate, although the veteran staff 

is there to help them get online. 

o	 Because some younger veterans have post-traumatic stress disorder (PTSD) 

there may be a lag time after leaving the military before they enter a One-Stop 

Career Center. However, once at the One-Stop Career Center, these veterans 

do not have problems using the offered services. 

o	 The regional boards may view the new federal POS regulations as an 

additional burden. However, at least one administrator views them as an 

additional tool for enforcing and monitoring POS. 

o	 Florida has a lot of agricultural areas that do not have large veteran 

populations, so there are fewer problems there. 

o	 The customer base has shifted and the workforce system has to shift services 

to address their needs. Because of the Internet, 56 percent of customers want 

to exclusively use the Internet. Customers are asking for different services 

than provided before. Veterans and other customers would like networking 

opportunities with similar job-seekers. Customers are better educated and 

have better work histories. Some are already employed and are just looking 

for new better opportunities. 

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STUDY OF PRIORITY OF SERVICE UNDER THE JOBS FOR VETERANS ACT 

SITE VISIT SUMMARY -- KANSAS 

State: Kansas 

Dates of Visit: 1/26/09 – 1/27/09 

	 State Geography/Population. Kansas is the 33rd most populous state, with a 

population of 2.8 million (July 1, 2008 Census estimate). The state is sparsely 

populated, ranking 40th among all states at only 34 persons per square mile. Kansas 

is ranked in the middle among states (26th) in terms of the percentage of its population 

who are veterans – 11.4 percent of the adult civilian labor force are veterans (versus 

10.4 percent for the U.S. as a whole.57 There are several large military bases in 

Kansas, including Ft Riley, Ft. Leavenworth, and Ft. McConnell, as well as three VA 

hospitals. The characteristics (such as educational level) of military personnel vary 

across bases, which affect the strategies for helping base personnel make the 

transition to the civilian workforce. At Fort Leavenworth, for example, most of the 

military personnel leaving the service are officers, with most (95 percent) having a 

Bachelor’s, Master’s, or Doctorate degree. In contrast, at Fort Riley, nearly all 

military personnel transitioning are enlisted men (most without college or advanced 

degrees). There is roughly an even distribution of officers and enlisted personnel at 

Fort McConnell. Kansas has had no recent base closings, and in fact, is expected as a 

result of BRAC, to receive an influx of new military personnel (by 2012, Fort Riley is 

expected to receive an additional 13,000 soldiers). 

	 State Economy. The two largest industries in Kansas are state government and 

healthcare. In contrast to much of the rest of the United States, Kansas’ economy has 

held up relatively well during the recession. Despite the deep recession that has 

gripped most of the rest of the country, the manufacturing and construction sectors 

have continued to provide employment growth. The unemployment rate, while 

increasing somewhat in recent months, is low relative to trends for the country as a 

whole (in January 2009 [the time of the site visit], Kansas’ unemployment rate was 

5.8 percent compared to 7.6 percent nationally; by March 2009, the rate was slightly 

higher at 6.1 percent, but compared favorably to 8.5 percent unemployment rate 

nationally). To take full advantage of the still expanding construction sector, 

representatives from the state’s Department of Commerce have recently been in 

negotiations with the builder’s union to create apprenticeships for upcoming 

construction projects. In April 2009, the sector will need several thousand carpenters, 

electricians, and for ironworkers for some major construction projects. The meetings 

with the builder’s union centered on creating positions especially for veterans aged 18 

57 Source: U.S. Census, American Community Survey, 2006; percent of civilian population 18 years and 

older who are veterans. No date was available on the percentage of veterans for the local area that was 

visited. 

Final Report -- Evaluation of the POS Requirement Page 123 
 

	 

	 

to 24, who are returning from deployments in Iraq and Afghanistan (nationally, an 

estimated 16.8% of veterans in this age group are unemployed). 

	 Structure of the Workforce Development System. At the state level, WIA and 

ES/Wagner-Peyser services are administered under the Kansas Department of 

Commerce; the Unemployment Insurance Program is overseen by the Kansas 

Department of Labor. The two departments function almost entirely separately at 

both the state and local levels (e.g., One-Stops do not offer UI claims processing). 

Kansas’ workforce development system consists of five service delivery workforce 

areas, each with a different community organization serving as the operator of the 

local area. The five operators are the Local Area I Workforce Investment Board 

(Area I), Heartland Works (Area II), Kaiser Group (Area III), the Workforce Alliance 

of South-central Kansas (Area IV), and Dynamic Education Systems, Inc (Area V).58 

There are a total of 23 One-Stop Centers spread across the state, five of which are 

considered to be full-service One-Stops (one in each WIB). There are no separate 

Wagner-Peyser/ES offices in the state (i.e., ES/DVOP/LVER staff are co-located with 

WIA staff at the One-Stop Centers). In addition to the One-Stop Centers, there are 

two mobile One-Stop RVs (one housed in the Western part of the state and operated 

by the Department of Commerce, the other housed in the east and owned and 

operated by a partner organization). 

	 Veterans representative Staffing/Organization in the State and One-Stop 

System. There are currently 11 LVERs in the state and 15 DVOPs. The number of 

LVERs and DVOPs has substantially declined over the past several decades (in 1977, 

there were 65 DVOPs and LVERs; by 1995, the number had decreased to 43; and 

today the number of veterans representatives stands at 26 statewide). Each of the fullservice One-Stops contain at least one DVOP or LVER. At non full-service Centers, 

a DVOP or LVER comes in at least once per week. One-Stop staff in Kansas are 

divided into three functional teams: a “Welcome” team which conducts initial intake 

and assessments of customers; a “Skills Assessment” team which conducts a more indepth evaluation of obstacles to employment, identifies potential services, and refers 

customers to appropriate services; and a “Business Services” team which conducts 

employer relations and outreach. DVOPs function as case managers on the skills 

assessment team, while LVERs function as job developers on the business services 

team. In 2006, the Department of Commerce implemented a training program aimed 

at upgrading skill and pay of existing DVOPs and LVERs. This initiative also 

enabled the department to institute new minimum qualifications for newly-hired 

DVOPs/LVERs, requiring that they have at a least a Bachelor’s degree. To transform 

the skills sets of existing DVOPs/LVERs, the Department instituted a “Career 

Development Technician Apprenticeship Program,” wherein staff signed agreements 

they would participate in over 4,000 hours of classroom and OJT instruction (over a 

two-year period). Staff who successfully completed the program received a job title 

increase and 10 percent pay raise each of the two years of the program. The effects of 

this program have been four-fold: (1) enabling the Department to provide pay raises 

58 The five WIB are based in Great Bend, Kansas City, Pittsburg, Topeka, and Wichita. 

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to its DVOPs and LVERs despite state-set pay freezes in place at the time, (2) 

teaching employees valuable new career development skills, (3) allowing the 

Department to require that all new hires have a Bachelor’s degree or equivalent 

training to be on-par with their existing DVOP and LVER staff, and (4) encouraging 

some underperforming staff to retire or seek other jobs without the state having to 

wade through the burdensome administrative paperwork required to terminate state 

employees. 

	 State Level Policies on Priority of Service. Kansas has issued the following policy 

with regard to POS: “Priority of service to veterans and other covered persons will 

be provided within the context of existing policies, operational management, and 

related work processes. Veterans and other covered person must meet WIA eligibility 

guidelines and if seeking Adult funds, must meet the low-income priority system, if in 

effect. A covered person shall be given priority with respect to any qualified job 

training program, over non-veterans for the receipt of employment, training, and 

placement services provided under that program, notwithstanding any other 

provision of law (20 CRF 4215(a)(3)). The term covered person means any of the 

following individuals: 

(1) A veteran; and 

(2) The spouse of any of the following individuals: 

a.	 Any veteran who died of a service-connected disability; 

b.	 Any member of the Armed Forces serving on active duty who, at the 

time of application for assistance is listed, and has been so listed, for a 

total of more than 90 days as: 

i.	 Missing in action, 

ii.	 Captured in line of duty by a hostile force, or 

iii.	 Forcibly detained or interned in line of duty by a foreign 

government or power; 

iv.	 Any veteran who has a total disability resulting from a serviceconnected disability; or 

v.	 Any veteran who died while a disability so evaluated was in 

existence. 

Certain targeting provisions are derived from a statutory mandate that requires a 

priority or preference for a particular group of participants or requires spending a 

certain portion of program funds on a particular group of participants. These are 

mandatory priorities. For example, under the Workforce Investment Act there is a 

mandate that if ‘funds allocated to a local area for Adult employment and training 

activities... are limited, priority shall be given to recipients of public assistance and 

other low-income individuals for intensive services and training services.’ For these 

programs with mandatory priorities, the veteran’s priority is applied as follows: 

1.	 An individual meeting both the veterans’ and the mandatory priorities or 

spending requirement or limitation should obtain the highest preference 

for the program. 

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2.	 Non-veterans within the program’s mandatory priority should receive a 

preference over eligible veterans outside the program-specific mandatory 

priority or spending requirement or limitation. 

3.	 Eligible veterans outside the program-specific mandatory priority or 

spending requirement or limitation should receive priority over nonveterans outside the priority or spending requirement or limitation (once 

the spending requirement or limitation is met). 

Therefore, in the event funds become limited in relationship to the anticipated 

population to be served (as determined by the WIB), the WIB will implement a 

priority system. The priority waiting list contains a variety of applicant information, 

which includes: date of inquiry; name; contact information; potential eligibility status 

(adult, dislocated worker, and demographics including veteran status, etc.). Priority 

will be given to Adult recipients of public assistance, other low-income individuals 

and to individuals 55 and over. The first group to be served will be Veterans meeting 

one or more of the categories. The second group to be served will be a Covered 

Person meeting one or more of the categories. The third group to be served will be a 

Non-veteran meeting one or more of the categories. In order to prioritize individuals 

within each group, points are given for each category the individual meets. The 

individual with the highest points in the group is served first. If the points for 

individuals within the group are equal, the earliest application date will be served 

first. The fourth group to be served will be Veterans meeting none of the categories.” 

State and local staff indicated that veterans are generally familiar with Priority of 

Service provision (or at least that they will be afforded some level of priority over 

non-veterans) due in part to attendance at TAP sessions, word-of-mouth with other 

veterans, signs posted in One-Stops, and the orientation they receive to One-Stop 

services. Veterans representatives noted that veterans may not always be clear about 

what priority of service specifically entitles them to in terms of services. For 

example, veterans may not fully understand that low-income status is considered first 

with regard to qualifying for training under the WIA Adult Program and within those 

who are low income, that veterans receive priority over non-veterans. 

	 Outreach to Veterans. Veterans learn about One-Stops and services available to 

veterans by the following means: 

o	 TAP Sessions. TAP workshops are conducted in three different sites across 

the state: Fort McConnell, Fort Leavenworth, and Fort Riley. Sessions at Fort 

McConnell and Fort Leavenworth are conducted monthly, while those at Fort 

Riley are conducted once each week. A TAP instructor (often a DVOP/LVER 

from a nearby One-Stop), using the nationally-standardized TAP curriculum, 

provides an overview of veteran services available at One-Stops. Several 

PowerPoint slides provide an overview of One-Stop services, identifying 

specific types of employment and training services available for veterans. 

Veterans are encouraged to visit One-Stop Centers and are told that they will 

get first referrals to job opening and preference over non—veterans for 

training. 

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o	 DVOP Contact to Veteran Self-Registrants. When veterans self-register 

via the Internet for Wagner Peyser services in Kansas Works, a DVOP is 

automatically notified in the locality in which the veteran registers. The 

DVOP will follow up with a call to the veteran to inform them of the services 

available through the One-Stop and particularly veteran services. The DVOP 

will also check to see if the veteran has special needs or faces barriers to 

employment, and if so, will encourage the veteran to come into the One-Stop 

to meet with a vet rep. 

o	 Media Advertisement. The Department of Commerce runs quarterly 

advertisements in nine newspapers across the state detailing the One-Stop 

services available to veterans. A LVER in Hays, Kansas has a radio call-in 

show focused on employment and services available for Veterans. 

o	 Job Fairs for Veterans. The Department of Commerce sponsors outreach 

events, particularly job fairs that are specially targeted on veterans. Each 

year, job fairs exclusively for veterans are held around the state. For example, 

in November 2008, there were five Veterans job fairs conducted across the 

state on the same day with a total attendance of 1,000 Veterans and 200 

employers. In April of 2009, the Department is partnering with the Kansas 

City, Missouri WIB to have another Veterans Job Fair day during which 125 

employers and over 600 Veterans are expected to attend. There are also an 

annual homeless Veterans “stand-downs” in Topeka and Kansas City, during 

which the Department of Commerce and partnering organizations set up a 

tent-city and inform homeless Veterans about all services available to them, 

including housing, employment, legal, and medical services. A “field” OneStop office is set up at the stand-down, which include computers that enable 

veterans to register for the ES, search for job openings, and complete resumes 

with help from a DVOP. 

o	 Linkages to Businesses. The state developed a brochure for Kansas 

businesses detailing the advantages of hiring Veterans. The state also 

developed a brochure for Veterans informing them of how to market their 

skills and work experiences to employers. (Note: both of these brochures are 

available in the site visit materials obtained). The Department has created 

additional marketing materials such as pens, clocks, and t-shirts featuring the 

“Hire the Vet” logo. In the more rural areas of the state, veterans 

representatives know many of the employers personally and can use these 

connections to assist veterans in securing jobs. 

o	 “Vet Links” Website. A website currently under development, called “Vet 

Links,” will provide information about all services available for Veterans, 

including training, education, job search, marriage counseling, financial aid, 

and business advice. An on-line questionnaire will enable veterans to explore 

their eligibility for various programs and services, and will then automatically 

generate a resource list with contacts for the veteran – including referrals to 

the One-Stop system. 

o	 Warriors Transition Battalion. This special initiative located at Ft. Riley is 

designed to help nearly 500 wounded military personnel (returning from Iraq 

and Afghanistan) to make the transition to the civilian sector. A full-time 

Final Report -- Evaluation of the POS Requirement Page 127 
	 

DVOP has been assigned to this program to provide one-on-one help that is 

particularly aimed at helping veterans to obtain training and job search 

assistance. 

	 Overview of How POS is Administered/Implemented in the One-Stop System. 

A visit to the Junction City Workforce Center, supplemented by discussions with 

state officials, provided details about the flow of veterans through the One-Stop 

System. 

Client Flow Through the One-Stop. Near to the Welcome Desks of each One-Stop in 

the state is posted an 8 by 10 inch sign (developed by the state) that details basic 

provisions of Priority of Service. The One-Stop sign-in sheet contains a column 

indicating Veteran status. At the One-Stop visited (in Junction City), there is a 

separate check box on the sign-in sheet to indicate that customers are the covered 

spouses for the purposes of priority of service. Upon signing in at the One-Stop, 

customers are asked to self-identify as Veterans by a greeter and indicate their status 

on the sign-in sheet. Next, customers complete a form that inquires about Veteran 

status, identifies barriers, and measures eligibility and receipt of other VA services. 

The Junction City One-Stop has a private conference room space in where veterans 

are able to meet with DVOPs. While the one-stop does not have specially designated 

computer terminals for veterans, if terminals are fully utilized, veterans receive 

priority for usage. 

After sign-in and completion of the form, the customer is sent to an ES staff person to 

review the questionnaire form, discuss barriers, and make an initial assessment of 

whether the customer should be referred to the DVOP for a more in-depth assessment 

and possible case management. If the ES worker determines that the veteran does not 

face barriers, they are encouraged to use the self-services available at the One-Stop 

and they may get additional case management from the ES staff, but do not generally 

see a DVOP. However, if the veteran was to specifically request to meet with a vet 

rep, he or she would be immediately scheduled for such a meeting. Because of the 

scarcity of veterans representatives, DVOP services are reserved for veterans with 

barriers to employment. At the state and in One-Stop Centers, the policy is not 

simply to refer all veterans to DVOP for case management services. Rather, there is 

intent that veterans make full use of ES/Wagner Peyser and One-Stop services 

available in the self-help Resource Room. 

If the veteran is referred to a DVOP, he or she has a more detailed interview covering 

barriers to employment and potential services that could address such barriers. The 

DVOP then makes an informed decision about whether the veteran is in need of 

continuing case management services – and if this is the case, the DVOP would add 

the veteran to his/her case management caseload. The DVOP would then develop a 

plan of service with the veteran. If training is needed, the customer is referred to 

WIA for eligibility determination (note: see above for priority for receipt of WIA 

training when funding is limited). 

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Veteran Priority for Job Listings with the ES. Under state policies, there is also a 

hold on release of job orders submitted by employers so that veterans gain a head 

start over non-veterans in applying for job openings. Employers can submit job orders 

on-line via the web or by telephone (or in-person) to ES staff. For online posting of 

job orders, there is a 24-hour hold during which only veterans are able to see the 

postings. During this 24-hour period, veterans whose qualifications and skills match 

those of the job order are automatically emailed by the system to alert them of the job 

opening. In addition, employers receive a list of matched job seekers with veterans 

listed first (followed by non-veterans). Non-Veterans do not receive an e-mail alert 

during this 24-hour period, and cannot search for the position in the online database 

during the 24-hour hold period. If an employer calls in a job order or submits a job 

order in-person to ES staff rather than using the online system, this is referred to as a 

“staff-assisted job order.” Staff-assisted job orders are placed on a 4-hour hold, during 

which time the staff member taking the job order is to do a job match against veterans 

registered with the ES and call each veteran who matched the qualifications of the 

post. 

	 Number of Veterans Served and Mix of Services Received. The number of 

veterans served in Kansas has been decreasing over the past several years. In 2008, 

roughly 6,000 veterans registered with ES services. By comparison, in 1995, 26,000 

veterans registered. In addition, there have been an increasing number of National 

Guard members needing services after extended tours of duty (around one year at a 

time). The department runs a reintegration program for these National Guard 

members. 

	 Do Veterans Receive Priority for Intensive/Training Services When Funds Run 

Low? Veterans are more likely to receive case management than non-veterans – and 

so, to the extent that case management constitutes intensive services, veterans would 

be more likely to receive intensive services than non-veterans. As a result of one-onone assistance, veterans also may receive help navigating their way through the 

process of applying for training and may move into training faster and at higher rates 

than non-veterans. Under the WIA Adult Program, low-income veterans would be at 

the top of the list to receive training. According to state workforce officials, a 

rescission in WIA funding has affected the availability of ITA funds for the current 

program year. For example, the statewide WIA budget allocated to ITAs was reduced 

by over 50 percent from the previous program year, from about $125,000 last year to 

$54,000 this year. The major effect of these cuts has been a shift to giving priority of 

workforce services to individuals who qualify as low-income. Low-income veterans 

still have priority among the broader population of qualifying low-income 

individuals. 

	 Training/TA on Priority of Service. The State VETS Coordinator personally 

conducts one-on-one orientation meetings for each new DVOP and LVER (within 

two weeks of job start). He also routinely conducts refresher meetings from time to 

time on priority of service and other veteran services topics with non-Veteran (i.e., 

ES/WIA) staff at One-Stops across the state. In addition, within their first two years 

Final Report -- Evaluation of the POS Requirement Page 129 
	 

	 

of employment, DVOPs and LVERs must attend workshops at the National Veterans 

Training Institute (NVTI) in Denver, during which they participate in four sessions 

totaling 18 days. 

There is also cross-training of ES/WIA staff members so that they are aware of the 

priority of service and services for veterans. DVOPs and LVERs also provide 

updates and guidance on veteran services/client flow/POS to their co-workers during 

monthly One-Stop staff meetings. Each ES/WIA staff person is given a “policy field 

guide” that contains information about the priority of service provision (and other 

state policies). Finally, all DVOPs and LVERs across the state meet at least once bimonthly, and often meet monthly, to discuss veteran service issues. 

Each year, the Department hosts a Continuing Education Conference that covers a 

variety of topics. All One-Stop staff, partners, and anyone who works with veterans 

are invited to attend. The first day of the conference is led by a NVTI staff member 

(from Denver). During this day-long conference, staff receives background and 

discusses veteran services, including Priority of Service. 

	 Monitoring POS. The State VET coordinator conducts quarterly reviews of service 

logs and reports to see whether the priority of service is being administered correctly. 

The reports reviewed include the 9002 and the Vets 200), and specific areas reviewed 

include the total number of veterans who are registered or the ES, receive job 

referrals, and receive case management services. Reviews are conducted of each level 

of the workforce center process: regional, site, and staff. 

The state VETS coordinator also conducts site visits to One-Stops to monitor 

implementation of priority of service and veteran services in general. During these 

visits, he checks the office activities to see whether extra activities and services such 

as workshops are being conducted for veterans. 

Also, the federal VET representative (for Kansas) conducts site visits to a sample 

(about one-fifth of One-Stops in the state each year) of One-Stops that house a fulltime DVOP or LVER to review veteran services provided by DVOP/LVERs. This 

federal VET rep also conducts desk audits of other One-Stops that do not have a 

permanent DVOP/LVER. The federal VET rep also conducts quarterly reviews of 

reports on job entry rates and percentage of Veterans receiving intensive training to 

make sure that Veterans are being adequately served. 

	 Challenges to Implementing POS in One-Stop Career Centers. Overall, POS was 

not viewed by state or local personnel as a major challenge – the more pressing 

problem with regard to serving both veterans and non-veterans was the decrease in 

overall resources for the workforce system in recent years and decreasing staff. A 

number of issues/challenges were cited by state and local workforce officials with 

regard to serving veterans: 

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o	 First, identifying eligible spouses of Veterans has proved to be difficult in 

some instances. 

o	 General funding cuts in the Department of Commerce budget (i.e., WIA 

rescissions) have presented a challenge, constraining available funding for 

intensive services and training (for veterans and non-veterans, alike). 

o	 Administrators noted some difficulties finding eligible dislocated workers 

who are veterans, and noted that they would like to find ways of making more 

veterans aware of the availability of dislocated worker services and the fact 

that priority of service applies within this program as well. 

o	 A broader challenge in obtaining employment for veterans is that many 

veterans want a career and a high paying job since they have substantial skills, 

training, and education, and sometimes these paths are not as easy to come by, 

as veterans would like. The more educated veterans (with college degrees) 

tend to have slightly more realistic expectations about how their skills 

translate and recognize that they may not be as valued financially in the 

private market as they would like. It has been particularly difficult to find 

employment for veterans who return with PTSD or traumatic brain injuries. 

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STUDY OF PRIORITY OF SERVICE UNDER THE JOBS FOR VETERANS ACT 

SITE VISIT SUMMARY -- NEW JERSEY 

State: New Jersey 

Dates of Visit: 4/15-16/2009 

	 State Geography/Population. New Jersey is the nation’s most densely populated 

state (with 1.171 persons per square mile in 2007). The northern portion of the state 

is part of the nation’s largest metropolitan area (New York-New Jersey-Long Island 

Metropolitan Area with 18.8 million residents). In addition, the southern region of 

the state is part of the fifth largest metropolitan area in the nation (the PhiladelphiaCamden-Wilmington Metropolitan area with a population of 5.8 million). Overall, in 

2007, the state’s population was estimated at 8.7 million. The state has a high median 

household income ($67,142 in 2007 compared with $50,740 for the U.S.) and a 

relatively low poverty rate (at 8.5 percent in 2007 versus 13.0 percent of the U.S.). 

However, there are several areas of NJ with very high concentration of poor – 

Newark, Camden, Patterson, and Jersey City. New Jersey is ranked 49th in terms of 

the percentage of its population who are veterans – 8.0 percent of the adult civilian 

labor force are veterans (versus 10.4 percent for the U.S. as a whole.59 Still, there are 

several areas within the state where there are concentrations of veterans and retired 

veterans – in particular, near the six major military bases (Ft. Monmouth, Ft. Dix, 

Earle Depot (a major weapons storage facility), Ft. McGuire, Ft. Lake Hurst, and the 

Cape May Coast Guard Facility) and the state’s one VA hospital (in East Orange). 

The Toms River area has particularly high concentrations of veterans. Fort 

Monmouth is scheduled to be closed as part of the most recent BRAC action (with 

personnel being moved to Aberdeen, MD). 

	 State Economy. In recent years, the state’s economy has generally been in better 

condition when compared to the national economy (e.g., on unemployment rate), but 

the recent economic downturn has taken hold of the state. New Jersey was initially 

substantially affected by the downturn of the financial services industry (centered in 

and around New York), but in recent months the downturn has spread from the 

financial services sector and adversely affected employment across a full range of 

other industry sectors within the state. There has been a marked recent downturn in 

new home construction and significant deterioration in employment in the retail 

sector (with closures of stores such as Linen and Things, Drugfare, Cross-cutters, 

Circuit City). Employment in New Jersey has been sharply down in recent months 

and for the past year. February 2009 marked the 13th consecutive month of decline in 

employment, and the state’s unemployment rate moved above the national rate for the 

first time since October 2006. The New Jersey unemployment rate rose by nearly one 

percentage point from January’s 7.3 percent to 8.2 percent in February (just above the 

U.S. rate of 8.1 percent). Job loss in February was widespread, with declines 

59 Source: U.S. Census, American Community Survey, 2006; percent of civilian population 18 years and 

older who are veterans. The Newark-Union, NJ-PA Metro Area was ranked 511th of 528 metro areas with 

7.0 percent veteran. 

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recorded in eight of the 10 super (industry) sectors. The largest contractions occurred 

in professional and businesses services, manufacturing, construction, and financial 

activities.60 According to state officials, the large numbers of new claims for 

Unemployment Insurance benefits have strained the UI claims system and brought 

many new customers to the One-Stop system. The unemployment rate is highest in 

the south of the state (in the Cape May area), but is also highly seasonal, and expected 

to fall as the summer months approach. There is some concern in coastal 

communities about being unable to bring in temporary foreign workers to fill seasonal 

slots this coming summer due to possible curbs on such visas by USDOL. 

	 Structure of Workforce Development System. New Jersey has a total of 19 WIBS 

spread across its 21 counties. The WIBS are generally at the county-level, with the 

following exceptions: 

o	 Morris, Sussex, and Warren Counties are covered by one WIB. 

o	 Somerset and Hunterton Counties are covered by one WIB. 

o	 Atlantic and Cape May counties are covered by one WIB. 

o	 Essex County has two WIBs: the City of Newark is separate WIB and the 

balance of the county is covered by a separate WIB. 

o	 Hudson County has one WIB, but two One-Stop operators (one for Jersey 

City and one for the balance of the county). 

The state has a total of 24 full-service One-Stop Career Centers, as well as an 

estimated six satellite One-Stop Centers (note: this local site visit was to the City of 

Newark One-Stop Center). Every One-Stop is covered by at least one vet rep, with 

most One-Stops having a part-time LVER and a full-time DVOP. Statewide, there 

are a total of 10.5 FTE LVERS (19 individual LVERS, most of whom allocate half 

their time to being a LVER and the other half of their time to serving regular Wagner 

Peyser participants) and 32.5 FTE DVOPs (33 individual DVOPs). By comparison, 

just five years ago, the state had a total of about 48 DVOPS and 24 LVERS (and all 

were full-time). Most One-Stops now have a part-time LVER, but a few have fulltime ones. The state currently has three unfilled vet rep positions due to state hiring 

freeze. It also has been unable to fill many other state Wagner Peyser/ES positions 

due to a hiring freeze on state employees that has been in effect for about the last 3 

years. This has meant that the state has had to return funding to the federal 

government that has gone unspent for these positions – and has meant that federal 

funding has decreased for vet rep and ES positions over time because funds have 

gone unspent. It has also meant that it has been more difficult for One-Stops to 

provide one-on-one services for job seekers (including veterans and non-veterans). 

There are no stand-alone ES offices – Wagner Peyser and WIA operations are fully 

integrated within the One-Stop system. The main partners within the One-Stop 

System are WIA, Wagner Peyser/ES, and VETS. In most instances the vocational 

rehabilitation program is also a partner at One-Stops. Other One-Stop partners 

sometimes include: Older Workers programs and WorkFirst New Jersey (offering 

60 Source: State of New Jersey Department of Labor and Workforce Development, Press Release, “Marc25-09 Employment in NJ Fell in February; Unemployment Rate at 8.2 percent). 

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employment-related activities for TANF, FS, and General Assistance recipients). UI 

claims are no longer taken at One-Stops, though some customers still come to OneStops to submit claims (in which case, they may enter a claim using a computer at the 

One-Stop or call to submit a claim over the telephone) and/or resolve payment 

claims/payment issues. Each WIB chooses a One-Stop operator, who then enters 

into a memorandum of agreement with partners. County or city governments are the 

operators in all local areas (there are no non-profit operators). WIA and WP in reality 

pay all of the expenses, though other One-Stop partners are supposed to share the 

expenses. In addition to the hiring freeze for state workers (which has over time 

eroded the numbers of Wagner Peyser staff and veterans representatives), the WIA 

Program has suffered a gradual decrease in funding, which has also led to cutbacks in 

WIA staff in local areas. The stimulus package recently announced by the Obama 

Administration will bring new funding to the WIA Program and is expected to 

reverse the downward trend in WIA staffing. New Jersey has several special training 

initiatives that are in addition to those funded under the WIA Program (note: none of 

these are specially targeted on veterans, though similar to the WIA Program, veterans 

receive preference over non-veterans once eligibility requirements are met): 

	 The Workforce Development Partnership Program, funded from state UI Trust 

Funds, offers training principally for dislocated workers, but 10% of the funds can 

be used for training for disadvantaged workers. Under this state initiative, 

customized and employer-based training is offered. 

	 The Self-Employment Assistance Program, also funded by UI Trust Funds, 

provides 4 to 6 weeks of classes to prepare UI claimants to become entrepreneurs. 

Participants must be a UI claimant and profiled and those participating are not 

eligible for extended UI benefits. 

	 Teacher Certification Program: This is a new initiative being planned with 

stimulus funds. It will target people affected by the downturn in the financial 

sector. Up to 90 individuals will receive short-term training to be certified as 

math teachers for intermediate and high schools. 

	 State Level Policies on Priority of Service. A set of state policies has been 

developed and distributed regarding POS for veterans through the Department’s webbased “portal” system. (Note: One-Stop Directives are issued by the state to OneStop Operators, directors, etc. via the Internet through a “portal” system). The state’s 

policies mirror the language of DOL’s Training and Employment Guidance Letter 

(TEGL). The guidance sets out POS eligibility for veterans and covered persons and 

provides additional guidance on what is meant by POS in terms of veterans receiving 

priority. In particular, the state policies emphasize that after specific eligibility 

requirements are met within a given program (e.g., meeting of income eligibility or 

the definition of a dislocated worker) that programs with federal funding must then 

give priority to veterans and covered spouses. State officials observed that 

DVOP/LVER staff are fully knowledgeable and understand POS requirements, but 

there may need to be more training of Wagner Peyser and other One-Stop partners’ 

staff on POS. State officials noted several trends across One-Stops in the state: 

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	 Veterans are not typically formally informed about “Priority of Service” as part of 

the intake process into the One-Stop System – though they may learn that they 

have “priority” during TAP workshops or through discussions with other 

veterans. 

	 Veterans are asked whether they are veterans when they are initially greeted at 

One-Stops and most veterans seem to self-identify as veterans. Core services, job 

seeking, etc. are provided by the first staff person who comes into contact with the 

individual. The strategy is not to send someone to a vet rep unless the veteran 

requests such a meeting or faces a particular obstacle to employment (that could 

be addressed by the vet rep). If veterans have special needs, then they are referred 

to veterans representatives for case management services and referral to other 

services. 

	 There is no requirement that veterans get in touch with the vet rep, but veteran 

customers are informed at multiple points about the vet rep and the types of 

assistance that can be provided by a vet rep. If the veteran does not see the vet 

rep, then the vet rep will try to make contact at some point with the veteran to see 

if any special services/help is needed. 

	 One-Stops do not generally have signs notifying customers of the veteran’s 

priority of service (and the state has not created such a sign for use by One-Stops). 

One-Stops have a scan card for every One-Stop customer, which tracks the 

services each individual receives. For example, when an individual participates in 

a group activity, he/she scans this card, which records his/her participation in the 

state’s database. 

	 There is a 24-hour hold on job orders: Employers can submit job orders via the 

Internet or by phone. The vet rep may release the job order before the 24 hours 

elapses if no qualified matching veteran is found; the system releases the job 

order automatically to the general public once the 24- hour period lapses. The 

search for matching veterans is statewide – and each veteran matching a particular 

job order is emailed a notification of their match, which indicates that they should 

contact a local vet rep if they are interested in the job opening. The 24-hour hold 

is uniform: employers cannot select against it. The way that this works is that the 

order is totally suppressed for 24 hours (i.e., no one, not even veterans, can view it 

in the database) or until it is released. Thus, the only way that a veteran would 

know about the job order would be through notification/hearing about it from a 

vet rep. 

	 The heaviest customer volume in most One-Stops is at the Center’s opening in the 

morning. In some offices, several staff will go through the line and ask customers 

what services they are in need of and direct them to specific services. They refer 

to this process as “triage.” This includes identifying veterans who may be waiting 

in line and sending them to a vet rep or the WP staff before other non-Veterans 

are served. 

	 Training services are provided via the One-Stop Operator. If a customer (veteran 

or non-veteran) is identified as needing training, ES staff will typically refer the 

customer to the One-Stop Operator, who will assess the individual and, if 

appropriate, refer the individual to a training provider. 

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	 Outreach to Veterans. There are some special outreach efforts to bring veterans into 

One-Stop Centers: 

o	 The state has assigned several staff (including a DVOP) to assist with 

instruction during Army Career and Alumni Program (ACAP) and Transition 

Assistance Program (TAP) workshops held for transitioning military 

personnel at local bases. During these sessions, soon-to-be-discharged 

veterans learn about the employment, training, and support services available 

through the One-Stop system. The main facilitator is a state employee who is 

a DVOP. A local DVOP or LEVR will usually attend a TAP workshop to 

introduce himself or herself and explain services available through the OneStop System. 

o	 Many job fairs are held around the state throughout the year and some of these 

fairs are targeted exclusively at veterans. In addition, local armories have job 

fair events that the DVOPs and LVERs attend. 

o	 The state is looking at a new initiative that would feature a youth coordinator 

to outreach to youth 23~24 years old who are veterans. 

o	 A DVOP is out-stationed full-time from the state office to the East Orange 

VA Hospital. The DVOP’s job is to inform veterans of services available 

through the One-Stop/workforce development system. The DVOP can 

register veterans with the ES, and provide the full range of ES/Wagner Peyser 

services at the hospital. She can and often does refer individuals to the local 

One-Stop offices for additional services – especially job leads and training 

services. 

o	 Job seekers can register for the ES and search job orders on their own without 

coming into a One-Stop. The ES/WP database is a web-based system, so 

anyone can register on their own via the web. If an individual job seeker selfidentifies as a veteran when registering and does not come into a One-Stop to 

receive services, there is a 60-day close-out report that is provided to veterans 

representatives on a monthly basis that identifies veterans whose cases are 

about to close (i.e., cases will close at 90 days if no additional service is 

received). The purpose of this list is to alert veterans representatives of 

veterans about to close out and to provide an opportunity for the vet rep to 

contact the veteran (whether the veteran has or has not been into a One-Stop) 

to find out what if any additional services the veteran might need. A vet rep 

will look over this list, identify individuals where he knows the situation, and 

call to find out what is going on with the other cases, with the goal of having a 

face-to-face meeting to either provide services or close the case. 

	 Overview of How POS is Administered/Implemented in the One-Stop System. 

The following provides an overview the City of Newark One-Stop and details of how 

customers flow through the One-Stop, including how POS is being implemented: 

o	 Background on the Newark One-Stop and Operations. The One-Stop operator 

is the City of Newark, though the center is located in a state-owned building. 

The Newark One-Stop is quite a bit bigger than most other One-Stops in the 

state, offering programs/services that may not be offered at other one-stops 

Final Report -- Evaluation of the POS Requirement Page 136 
	 

(e.g., case management for TANF cases, an ex-offender program, and the 

state’s Workforce Development Program). The primary geographic area 

served by the Newark One-Stop is the City of Newark, though customers also 

come from outside the city (from Newark County), and in some instances, 

from New York and Pennsylvania. There is a second One-Stop that serves 

residents of the county (Essex County), which is located in East Orange 

(about 10 minutes away). Some residents of the City of Newark are served by 

this One-Stop, while some Essex County residents (i.e., living outside the City 

of Newark) come to the Newark One-Stop for services. The Newark OneStop is providing services for about 800 customers per day (compared to 

about 500 per day before the economic downturn). Essex County’s 

unemployment rate in February 2009 was 8.7%; however the rate is quite a bit 

higher for the City of Newark (in the double digits according to One-Stop 

administrators). Employment trends in Newark are much impacted by trends 

in New York City (particularly recently by the layoffs in the financial services 

industry). Several area hospitals have also recently closed, further adding to 

job losses in Newark (and Essex County). There are no military bases in or 

around the City of Newark, but the VA Hospital is in nearby East Orange. In 

addition, the VA regional office is located in the City of Newark. Both of 

these VA facilities provide referrals of veterans to the One-Stop. The partners 

locating staff at the Newark One-Stop are: WIA, Wagner-Peyser/ES, DVR, 

and Unemployment Insurance (UI). There are a total of nearly 100 staff (98) 

at the One-Stop spread across these 4 programs – ES: 32 staff; WIA: 40; UI: 

11; and DVR: 15 (all of these staff are full-time). The Newark One-Stop 

outstations its only DVOP to the VA regional office (located in Newark); the 

Newark One-Stop has a 1⁄2 time LVER located at the One-Stop (who has a 

current caseload of 519 veterans). There is also a vacant DVOP position at 

the Newark One-Stop that cannot be filled because of the state’s hiring freeze 

(this position has gone unfilled since August when the DVOP retired). The 1⁄2 

time LVER is the only vet rep available at the One-Stop to serve veterans, 

though when needed (e.g., when the LVER is absent), Wagner-Peyser staff fill 

in and serve veterans. The caseload of the LVER is large (about 500 veterans), 

in part because he oversees a number of veterans who are enrolled for a year 

or longer in a substance abuse recovery program run at a VA facility (in 

nearby Lyons, NJ). The LVER checks up on the clients every six weeks to 

see what they are doing and how they are progressing. Most of the veterans 

served by the LVER are Vietnam veterans (in the age range of 45-60); 

significant numbers face serious obstacles to employment (including 

substance abuse issues, being ex-offenders, and lacking high school degrees 

and/or basic skills). Veterans hear about the One-Stop from various sources – 

during TAP sessions; word-of-mouth from other veterans; and at job fairs. 

o	 Client Flow Through the One-Stop. All new customers (whether veteran or 

not) attend a Re-employment Orientation when they first come to the Newark 

One-Stop Center. This orientation is held Monday through Friday, twice a 

day and lasts roughly 45 minutes. During this orientation, a Wagner 

Final Report -- Evaluation of the POS Requirement Page 137 
 

	 

Peyser/ES staff presents a PowerPoint presentation that provides an overview 

of services available at the center (including veteran services). The orientation 

staff asks if there are any veterans attending the session. During the session, 

each attendee completes an ES registration form. So that veterans are 

identified, the registration form completed by veterans is color-coded (green); 

while non-veteran customers complete a form that is copied on regular white 

paper (note: the forms contain the same information). All of those attending 

the orientation receive a scan card, which is used to track subsequent services. 

After the orientation, customers return to the main desk at the entrance to the 

One-Stop to request services and/or set up an appointment with ES staff. 

Veterans and non-veterans are free to request programs and services that they 

want and/or to use self-service computers to search for jobs. To ensure that 

veterans receive the services they need (and priority of service), orientation 

staff notifies the LVER of each veteran attending the initial orientation, 

including those who may request to meet with a vet rep or have special 

needs/barriers to employment. If a veteran requests to see a vet rep following 

the orientation, the front-desk will immediately schedule the veteran for a 

meeting with the LVER (note: if the 1⁄2-time LVER is not available, the 

veteran will be scheduled to meet with a regular ES/Wagner Peyser 

employment counselor). The duration of this initial meeting varies – from 

about 20 minutes to 1 hour if the veteran faces serious barriers to employment. 

According to vet rep staff, most veterans seem to know they have priority of 

service by the time that they meet with the LVER. Because of special 

arrangements with community organizations and support service providers, 

according to the LVER, veterans tend to receive a richer mix of services than 

non-veterans and, if they face serious barriers to employment, tend to receive 

more one-on-one attention and referrals to a fuller range of services (e.g., if 

homeless, the veteran will be referred to a homeless service provider; if they 

have substance abuse issues, they will be referred to a VA facility for 

treatment). With regard to job placement, if appropriate, the LVER will 

contact employers directly to market individual veterans for job openings. 

Veterans follow the same basic flow as non-veterans through services, but 

have priority to receive intensive and training services over similarly qualified 

non-veterans. If they are in interested in and in need of training, veterans (and 

non-veterans) must first take the TABE test and then meet with a counselor 

for assessment and to be authorized for training. Like non-veterans, veterans 

must also go through self-directed job search before being authorized to 

receive training assistance. The TABE is generally scheduled to be taken 

within one week, with the pre-assessment soon after. Typically, veterans have 

a wider range of training resources than non-veterans (including the GI Bill). 

	 Do Veterans Receive Priority for Intensive/Training Services When Funds Run 

Low? There are no specific state policies with regard to when WIA funds run low. 

However, in general once eligibility requirements are met for specific programs, 

veterans receive priority over non-veterans for services. For example, low-income 

veterans would receive priority over low-income non-veterans for training under the 

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WIA Adult Program. The WIB does not have a “threshold” of WIA training funds 

above which it restricts training funds to non-veterans. In the last program year, the 

WIB had obligated its WIA training funds by September; when funds are fully 

obligated, veterans are told to come back at the beginning of the next program year, 

when they will be first in line for these services. When WIA training dollars run out, 

there are several other sources of funds available, including the state’s Workforce 

Development Program.61 The Newark One-Stop also sponsors a forklift-training 

program – veterans go to the head of the line for the forklift training and can be 

placed in training within 24 hours of coming to the One-Stop. 

	 Marketing Veterans to Businesses. An important role of the LVER is to go to 

employers and ask, “Do you want to hire Vets?” There is an effort to try to team the 

LVER with the business reps and LVERs/DVOPs sometime meet with employers to 

urge that employers hire a particular veteran that meets a job opening. 

	 Training/TA on Priority of Service. One-Stop staff receive training and technical 

assistance on POS from a variety of sources: 

o	 Specialized Training of Veterans representatives in Denver. DVOP/LVERs attend 

training at the National Veterans Training Institute (NVTI) in Denver. During 

various training modules, veterans representatives are briefed about provisions of 

priority of service and provided in-depth training on effective methods for serving 

veterans. These staff return to their One-Stops and provide training to other staff 

at the One-Stop on how to effectively recruit and serve veterans. 

o	 An Annual State DVOP/LVER Conference. There is an annual one-day 

conference of veterans representatives from across the state. POS and veteran 

services are covered. LVERs returning to their One-Stops, present an update on 

what they have learned to other One-Stop staff. 

o	 Quarterly In-Person Meetings and Weekly Conference Calls Held with One-Stop 

and Workforce Development Managers. These meetings and conference calls 

focus on issues and problems that emerge in one-stop operations and provide a 

forum for dissemination of information to One-Stop managers, including 

information relating to veteran services. 

o	 Planned Webinar System. The Division of One-Stop Coordination and Support is 

developing a webinar system, that will serve as a training venue for veterans 

service issues (including POS) and a range of other issues. 

	 Monitoring POS. 

o	 The state veterans’ coordinator reviews the ES-202 report to examine numbers 

and types of veterans served. 

61 In addition, the state has a unique program called the tuition waiver program – 

dislocated workers who need to build credentials get free admittance into state four year 

and community colleges for individual classes as long as there is an unfilled seat (have to 

pay student fees and for books, but not for tuition). 

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o	 Within the One-Stops, veterans representatives review the quarterly reports 

for their local area, including numbers and types of veterans served, services 

received and outcomes. The LVER at the Newark One-Stop receives a report 

each month that shows veterans who have not received a service for 60 days 

and will be closed out at 90 days (with a soft exit if no service is received). 

The LEVR runs through this report and will call veterans who appear on the 

report whose status he is unsure of to check on their employment status and to 

see if they need any addition services. 

o	 During semi-annual monitoring visits to One-Stops in the state, the state 

inquires about services for veterans and priority of service. 

o	 There is a newly implemented “Future Works” data system, which brings 

together ES/WP, TAA, and WIA data into one system and allows for state and 

local program managers to customize reports to their needs. The system is 

real-time and provides a highly flexible report generating capability. State 

and local administrators can closely monitor and analyze service delivery 

patterns, client characteristics, outcomes, and other characteristics for any 

special population, including for veterans. 

	 Challenges to Implementing POS in One-Stop Career Centers. A number of 

challenges were identified by state and local workforce officials: 

o	 With respect to serving veterans, there has been a steep decline in the number 

of veterans’ representatives (DVOPs/LVERs) – decreasing over the past 5 

years from 48 DVOPS (to 32.5 FTE DVOPs, currently) and from 24 fulltime 

LVERs (to 10.5 FTE). Five years ago, each One-Stop generally had two 

DVOPs and a full-time LVER. The steady decrease in “veterans 

representatives” has created challenges at One-Stops to provide the types of 

one-on-one, case-managed services that veterans often want (and expect) 

when they come into One-Stop Centers. In some instances, One-Stops have 

had to use Wagner Peyser staff to provide individualized/intensive services 

that might otherwise had been provided by a vet rep. Also, looking ahead, the 

workforce system will need to respond to the largest deployment in the state’s 

history of reserve forces which will be coming back to the state beginning at 

the end of this month – which will further stress the workforce system and 

already stretched veterans representatives. 

o	 To further complicate staffing issues, the Governor has created a one-day per 

month furlough for the coming year (2 days have been approved for this year; 

12 more will be approved for next year). This will affect services available for 

all customers (including veterans), complicating efforts to provide one-onone/intensive case management services. The furlough is across the board 

throughout the state for state employees (though some “essential” employees 

such as health care workers, corrections staff, and SSDI processing staff are 

exempted). The Governor has not exempted positions that are totally 

federally funded (e.g., DVOPs, LVERs, ES/WP), which will mean that 

funding for these positions will go unspent and go back to the federal 

government. 

Final Report -- Evaluation of the POS Requirement Page 140 
	 

	 

o With many One-Stops and WIBs spread across the state, there are some 

natural communication challenges in spreading the work about veteran 

services and priority of service. The One-Stop operators are mandated (by the 

state) to meet with their partners once per month to discuss One-Stop 

services/flow, including services to veterans. The local offices are also 

emailed about policy changes and reminders. If something is a priority, the 

state attaches a return notification to show that the email was viewed. 

o	 POS needs to be explained to all staff, even regular staff. Veterans’ staff gets 

more attention and training than local Wagner Peyser staff on POS and 

veteran services. 

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STUDY OF PRIORITY OF SERVICE UNDER THE JOBS FOR VETERANS ACT 

SITE VISIT SUMMARY -- OHIO 

State: Ohio 

Dates of Visit: 11/17-18/2008 

	 State Geography/Population. Ohio is the seventh largest state in terms of 

population, with an estimated population of about 11.5M (as of 2007).62 The state 

has nearly 1M veterans (at 992,000 veterans as of September 2007),63 and is ranked 

32nd in terms of percentage of the adult civilian labor force that are veterans (11.1% 

compared to a national average of 10.4%).64 Most of the veteran population is 

located in the urban areas, especially Cleveland (metropolitan population of 2.3M), 

Cincinnati (2.1M), and Columbus (1.7M). 

	 State Economy. Ohio is a major producer of machines, tires and rubber products, 

steel, processed foods, tools, and other manufactured goods (including numerous 

automobile plants that are suffering job losses). While there is considerable emphasis 

on production of capital goods, there is also production of consumer goods. The 

state has been hard hit in recent years by large-scale closings and downsizings, 

particularly in the automotive and manufacturing sectors. Ohio is also recognized for 

its health care services, due to several flagship hospitals (including the Cleveland 

Clinic) that operate in the northeast region of the state. General economic conditions 

have deteriorated throughout much of the state over the past year. The 

unemployment rate in the state was 7.3% as of October 2008 (ranked 42 among 

states, above the rate for the United States, 6.5%). There are pockets of high 

unemployment within the state -- for example, among the state's 88 counties, the 

October 2008 (seasonally unadjusted) unemployment rates ranged from a low of 5.0 

percent in Delaware, Geauga, and Mercer counties to a high of 10.5 percent in Pike 

County.65 The Base Realignment and Closures (BRAC) 2005 round of 

closures/realignments has not had and is not expected to have much impact on the 

state (in fact, it is estimated that BRAC will bring an additional 895 jobs to the state). 

State officials noted that veterans have generally a slightly lower unemployment rate 

than the general civilian population, but unemployment rate is high among recently, 

separated young veterans (in the 20-24 year old range). 

	 Structure of the Workforce Development System. Ohio’s workforce development 

system is decentralized, featuring considerable local discretion with regard to how 

service delivery systems are structured and the extent to which various partners are 

engaged in the One-Stop service delivery system. The workforce development 

62 U.S. Census Bureau, "Annual Estimates of the Population for the United States, Regions, States, and 

Puerto Rico: April 1, 2000 to July 1, 2007. 

63 Source: Veterans Administration; available at:
 

http://www.va.gov/budget/report/2007/Part_I/VETMap_2.pdf

64 Source: U.S. Census Bureau, 2006 American Community Survey. 65 Source: www.lmi.state.oh.us/LAUS/Ranking.pdf
 

Final Report -- Evaluation of the POS Requirement Page 142 
 

 

	 

	 

system (including ES, WIA, and the One-Stop System) is administered and monitored 

at the state level by the Ohio Department of Job and Family Services (ODJFS). There 

are a total of 19 Local Workforce Investment Areas (LWIAs) in the state, which 

includes one “balance of state” workforce area (Area 7) which is made up of about 

half of the state’s counties (and are spread across every region of the state). There 

are a total of 90 One-Stop Career Centers in the state -- 30 full-service centers 

(referred to as Tier 2 centers) and 60 satellite centers (referred to as Tier 1 centers). 

There are no stand-alone ES offices in the state (i.e., ES/Wagner Peyser services are 

provided at One-Stops). The full-service centers feature extensive involvement and 

integration of ES, WIA, TANF, and educational providers (note: see below for 

details about partnering arrangements at the Toledo One-Stop, which was visited 

during the site visit). There are a total of 75 veterans representatives (67 DVOP/8 

LVERs) in the state (note: the number of veterans representatives have fallen 

substantially in recent years, from 133 veterans representatives in 2002). All veterans 

representatives are full-time (i.e., there are no half-time veterans representatives)66 

and there is at least one vet rep located in each of the 30 full-service One-Stop 

Centers. All of the 60 satellite centers are served by a vet rep (though most do not 

have a full-time vet rep) – sometimes veterans representatives will have regular office 

hours one or more days a week at satellite centers or meet with veterans at the closest 

center by scheduled appointment. The numbers of veterans representatives located at 

full-service One-Stops varies – e.g., there was one DVOP and one LVER assigned to 

the Toledo (Lucas County) One-Stop. At the state level, there are 3 veteran 

coordinators assigned to monitor veterans representatives and oversee/monitor 

veteran services at One-Stops across the state (note: each coordinator is responsible 

for one of the three regions). As discussed below, the flow of customers through 

One-Stops is largely left up to each workforce area and One-Stop, but generally, with 

an emphasis on having veterans and non-veterans use self-service to the fullest extent 

possible, and thereby focusing veterans representatives on providing case managed 

services to veterans that are most in need (e.g., disabled or homeless vets). 

	 State Level Policies on Priority of Service. The basic strategy of the state has been 

to make sure that local areas are aware of federal policies (i.e., a straight pass through 

of DOL guidance, without interpretation by the state). Each DVOP/LVER has been 

provided with a policy book that defines POS requirements and provides guidance on 

delivery of veteran services. See below (following the discussion of outreach to 

veterans) for details about how POS is administered at the state/local levels. 

	 Outreach to Veterans. Specific types of outreach aimed at veterans include: 

o Presentations by Veterans representatives at OTAP and TAP sessions. 

Regular TAP sessions are held every 2 weeks (26 per year) at Wright-Patterson 

AFB (the only location in the state where TAP sessions are held). A vet rep from 

the local area attends each TAP session for about 1⁄2 to one day, providing an 

overview of labor exchange and training services available at One-Stop Career 

66 The state made the transition to full-time veterans representatives about four years ago in part because of concern that 1⁄2 time 

veterans representatives may focus too much of their attention on providing services for non-veterans (i.e., beyond 1⁄2 time that was 

allocated). 

Final Report -- Evaluation of the POS Requirement Page 143 
 

 

	 

	 

Centers, including highlighting availability of veterans representatives and the 

requirement that local workforce areas are to provide priority of service for 

veterans. Ohio also sponsors Ohio Transitional Assistance Program (OTAP) 

workshops that last 2 to 3 days each at various locations throughout the state.67 

Any veteran or spouse of a veteran, regardless of when they exited from the 

military, may attend these workshops. These sessions (which typically involve 

20-30 veterans) are aimed at helping unemployed or underemployed veterans with 

job search and connecting veterans to the One-Stop system (and other veteran 

services). Attendees are registered in the state’s ES/Wagner Peyser management 

information system (referred to as Sharing Careers and Opportunities Training 

Information or SCOTI), as well as participate in workshops focusing on effective 

job search methods, resume development, and job interview skills (including 

mock interviews). Veterans representatives from One-Stops organize and make 

presentations at the OTAP workshops. Priority of service is discussed at these 

workshops, along with the employment, training, and support services available 

through One-Stops. A total of 10 OTAP sessions were held in the Toledo area the 

past year (and many other OTAP sessions were held around the state). 

o	 Veterans Job Fairs. A total of 25 to 30 veterans job fairs are held around the 

state each year – usually during “Hire a Vet” month (which is November of each 

year). Employers set up tables at these job fairs and veterans go from table to 

table to inquire about job and training opportunities. During these fairs, One-Stop 

staff also distributes brochures and provides information about services available 

through the One-Stop system. For example, The Lucas County One-Stop (in 

Toledo) sponsors a veterans job fair each year, the most recent had 60 employers 

represented and was attended by 350-400 veterans. In addition to these veterans 

job fairs, there are several hundred other job fairs held each year throughout the 

state (open to the general public) during which brochures and other information 

are disseminated about employment and training services available for veterans 

(and nonveterans). At some job fairs a separate table is set up for veterans to 

visit and meet with a vet rep. 

o	 Other Outreach Efforts. Veterans representatives make sure businesses are 

informed about veterans flowing into and through the One-Stop system. Veterans 

representatives attend rapid response sessions (in response to WARN notices), 

during which the veterans representatives often hold special workshops or 

individual meetings with veteran employees to discuss dislocated worker services 

and other services available through the One-Stop system. Veterans 

representatives keep One-Stop partners informed about veteran services and 

preference given to veterans within the workforce system. Veterans 

representatives go to VA facilities, homeless shelters, and other veteran-serving 

agencies to make sure that staff are aware of services available through OneStops. VA rehab facilities often make referrals of job-ready veterans (who have 

received rehabilitative services) to One-Stop Centers. Finally, in Lucas County 

(and other areas), the Veterans Service Commission is co-located at the One-Stop 

67 OTAP was created because TAP sessions cover veterans who are about to separate from the military, 

while there are many other veterans in the state in need of help finding a job or upgrading skills. In 

addition, there is only one base in the state where regular TAP sessions are held (Wright-Patterson AFB). 

Final Report -- Evaluation of the POS Requirement Page 144 
 

	 

	 

	 

	 

Center. This Commission provides a wide range of support services for veterans 

(e.g., pays rent/utilities, provides transportation, dispenses food vouchers, and 

makes referrals to the VA and other service providers). It makes regular referrals 

of veterans to WIA and other One-Stop partners, and also receives referrals of 

veterans from the various One-Stop partners. Finally, the state’s ODJFS website 

has a special page for veterans, which website advertizes job fairs and OTAP 

sessions, as well as describes job seeker/business services available through the 

One-Stop system and how to contact veterans representatives. 

	 Overview of How POS is Administered/Implemented in the One-Stop System. 

The state encourages veterans to use the entire workforce system (i.e. extending 

beyond case managed services delivered by DVOPS/LVERs). According to state 

administrators and officials interviewed at the Lucas County One-Stop, because of the 

limited (and declining) number of veterans representatives assigned to One-Stops, the 

underlying service delivery strategy is to focus vet rep case management services on 

veterans with substantial barriers to employment (such as disabled, homeless, or longterm unemployed/underemployed veterans). Each One-Stop has considerable 

discretion in terms structuring service delivery approaches/flow for both veterans and 

non-veterans. As discussed below, Ohio has several special initiatives that target 

training resources on veterans. Below, we highlight the mains ways in which priority 

of service is provided. 

o	 Veterans Identified at the Time of Entry into the One-Stop, But Initially 

Guided to the Resource Room Unless They Face Serious Barriers to 

Employment. When customers initially arrive at a resource room in a One-Stop 

Center, they are asked whether they are a veteran and complete a sign-in sheet in 

which they check off a box on veteran status. The bullet that follows highlights 

the general flow of veterans through the One-Stop serving the Toledo area (which 

is generally reflect of the philosophy and flow of veterans at other One-Stops 

across the state): 

 Lucas County One-Stop – The Lucas County One-Stop, run by a communitybased organization (specializing in provision of mental health services), is a 

Tier 2 (full-service) center that serves Toledo and the surrounding area. The 

service area is all of Lucas County, which totals about 450,000 persons. 

Residents just over the border in Michigan and Indiana also use the One-Stop, 

as do some resident from bordering counties. A local administrator indicated 

that the One-Stop was busy because of its central location (in downtown 

Toledo), the comparatively high unemployment rate, and the variety of 

services offered there. The One-Stop receives about 3,200 visits per month, 

with about 1,000 new customers coming each month to the One-Stop for 

services. An estimated 11 percent are vets (which is comparable to the 

portion that veterans make up in the service area – note: there are an 

estimated 39K veterans residing in the county). The county has experienced 

several significant downsizings (the most recent and current one is a loss of 

875 jobs paying $28-40 per hour at a Jeep assembly plant). A total of 21 

partners are located at the One-Stop, including the ES, WIA, several education 

providers, the TANF work participation program, the Veterans Service 

Final Report -- Evaluation of the POS Requirement Page 145 
 

Commission, and others. The basic approach and flow of veterans through the 

One-Stop follows: In the Lucas County One-Stop, there are color-coded 

client case files (containing blank client forms), which are handed to each 

customer by the One-Stop greeter (note: there are different color coded 

folders for veterans, older workers, dislocated workers, youth, and for all 

others).68 Each incoming veteran and non-veteran goes to a room next to the 

greeting area to complete the various forms in their color-coded packet. A 

registration form is completed (which asks if the customer is a veteran or a 

spouse of a veteran), which is later entered into the SCOTI system by intake 

staff at the center. Once the client completes the intake forms (which takes 

about 20 minutes), they are encouraged to use the self-service resources of the 

resource room. The One-Stop resource room has several staff assigned, who 

provide a brief orientation to the use of the workstations and other 

resources/service providers available within the One-Stop. One of the 

resource room staff members is referred to as a “vet champion” who provides 

special assistance and guidance to veterans using the Resource Room and also 

tries to identify veterans with barriers to employment.69 An underlying belief 

that guides service delivery at the One-Stop is that job seekers who come into 

the One-Stop for assistance have already undertaken at least some job search 

on their own which has not yet proven to be successful. Hence, while there is 

an emphasis on self-services, staff circulates through the resource room of the 

One-Stop throughout the day to provide one-on-one help and to identify 

individuals in need of intensive and training services. Like non-veterans, 

veterans are encouraged to use the resource room. In addition, there is a 

separate room that is part of the resource room that is set aside for veterans 

use (e.g., for meetings between a veteran and Resource Room staff). If 

veterans are identified as having a serious barrier to employment (either on 

their initial visit or subsequent visits), they are sent to a vet rep for further 

assessment. Also, when they initially come to the One-Stop and specifically 

request to see a vet rep, if one is available, they will be scheduled to see the 

vet rep that same day (or as soon as possible). Veterans representatives will 

meet with veterans referred by the resource room staff initially for 30-60 

minutes to gain additional background on their situation and to determine the 

types of assistance that may be needed. If the veteran does not have special 

barriers or needs, they are typically directed back to the resource room; if the 

veteran faces significant barriers to employment, the vet rep will enroll the 

veteran in intensive services and begin to provide one-on-one case 

management. (Note: See file for a chart showing the veteran job seeker 

customer flow through the One-Stop Center in Toledo). 

68 Veterans’ folders contain veteran (and spouse of veteran) information sheet, a flier that explains barriers 

to employment (and provides an opportunity to self-identify barriers), a referral list, and information on 

OTAP. 

69 The vet champion is not a vet rep and also provides assistance to non-veterans within the Resource 

Room; this position is funded through the One-Stop operator and was created in response to the large 

number of veterans served in the local area. 

Final Report -- Evaluation of the POS Requirement Page 146 
 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

o	 Twenty-Four Hour Hold on Job Listings. A 24-hour hold is placed on all job 

orders coming to the ES (and entered into the SCOTI system). During this 24­

hour hold, veterans have an opportunity to review and apply for a particular job 

order, and employers only receive matches on veterans for listed positions. 

Veterans representatives maintain a roster of veterans enrolled in intensive 

services and their job preferences so that they can match veterans to appropriate 

job orders – and veterans may be either called or e-mailed to notify them within 

the 24-hour period of appropriate job orders. 

o	 Priority Given to Veterans When WIA Funding Becomes Tight. Once a 

workforce area has entered a limited funding situation, defined as WIA funding 

for the program year being 75 percent obligated, a priority system takes effect and 

governs the enrollments to ensure that the those most in need receive intensive 

and training services. The policy in effect in Lucas County (which is similarly 

applicable in all other counties and workforce areas in Ohio is as follows): 

	 WIA Regulations Part 663.600 and ODJFS WIA Guidance Letter #2-2000 

require that the Lucas County Workforce Investment Board (WIB) determine 

when a limited funding situation exists and define who will be given priority of 

service when funds are limited. 

	 Policy: A limited funding situation shall be deemed in effect when Lucas 

County Workforce Investment Act (WIA) Adult funding has expended and/or 

obligated 75% of the available Adult funds for Intensive and/or Training 

services. Obligated shall be defined as the amount of money for registered 

participants that it would take to finish the Intensive and/or Training services 

to that customer. The funds will be monitored at the end of each quarter to 

determine if they are limited. Once the county has entered a limited funding 

situation, the priority system shall take effect and govern the enrollments to 

ensure those most in need are served. Priority for intensive and training 

services will be given to those WIA eligible adults who are low income, as 

defined in the WIA Act, Section 101 (25) or receiving public assistance, and 

are county residents. As with all enrollments, veterans will be given 

preference. 

	 Action: When a limited funding situation exists and the priority of service is 

instituted, staff and subcontractors must enroll into intensive and training 

services only those core customers who are receiving public assistance or are 

considered low income, with preference given to veterans. The public 

assistance or the reason for low income must be documented in the 

participant files. Veteran status must also be documented. Core services will 

remain open to the universal customer. 

o	 Veterans Short-term Training Program (VSTP) and Veterans Rapid Response 

(VR2) Program. Two programs have been established within Ohio that are 

specifically focused on supplementing and extending additional training funds to 

veterans. These programs were created, in part, because the state was concerned that 

there was not sufficiency training funds available for veterans and to help ensure that 

veterans received priority of service when it comes to training services. 70 

70 In addition, local workforce areas or One-Stops may mount special training or service programs for 

veterans. For example, the Lucas County One-Stop recently received a grant to develop and implement the 

Final Report -- Evaluation of the POS Requirement Page 147 
 

	 

	 

 Veterans Short-term Training Program (VSTP) - A portion of the Governor's 

Discretionary funds has been allocated to VSTP to assist WIA-eligible 

veterans in securing employment in higher skill level jobs. Activities and 

services may include: short-term training; on-the-job or customized industryspecific training; supportive services needed to successfully complete a 

training activity or retain a job; funding for gaining a civilian-equivalent 

license or certification; and skills gap training. To ensure the availability of a 

comprehensive array of services, co-enrollment in the local WIA Program is 

mandatory when enrolling a veteran in VSTP. Under VSTP, total training 

expenditures per veteran customer may not exceed $3,000. VSTP funds 

cannot be used for training that occurs after June 30th of the program year in 

which the veteran is enrolled in VSTP training (i.e., training must be confined 

to a single program year, so the type of training support is short-term in 

nature). With co-enrollment in WIA, VSTP funds could be used to pay for the 

portion of training that is completed prior to June 30th, and the supplemental 

funds, such as WIA, could be used for any training that occurs on or after July 

1. Under VSTP, funds for support services cannot exceed $500; if required 

supportive services exceed that amount, other local WIA and non-WIA funds 

may be used to supplement VSTP funds. 

	 Veterans Rapid Response (VR2)- A portion of Rapid Response funds have 

been set-aside for WIA-eligible veterans who have been classified as 

dislocated workers (including recently separated veterans). Activities and 

services may include: long-term training (much longer than is possible under 

VSTP); on-the-job or customized industry-specific training; supportive 

services needed to successfully complete a training activity or retain a job; 

funding for gaining a civilian-equivalent license or certification; and skills gap 

training. To ensure the availability of a comprehensive array of services, coenrollment in the local WIA dislocated worker program is mandatory when 

enrolling in VR2. Local policies dictate the types and amounts of training 

expenditures. Training under VR2 can cost up to $6,000 per year and last for 

up to three years (a total potential cap of $18,000) – though training typically 

under this program lasts for 2 or fewer years and costs quite a bit less. Under 

VR2 funds for supportive services cannot exceed $3,000; if required 

supportive services exceed that amount, other local WIA and non-WIA funds 

may be used to supplement VR2 funds. 

Neither VSTP nor VR2 is an entitlement program. All veterans must be 

determined suitable as well as eligible. Determining if a veteran is suitable is a 

local decision. One-Stop partner staff and other Service Delivery Point staff 

identify eligible veterans who are in need of short/long-term, on-the-job, or 

Pathways to Employment program. The program, which targets disabled veterans in the Toledo area, has a 

budget of $450,000 and a goal of serving 200 disabled veterans. During its initial recruitment phase (the 

program was just starting up at the time of our visit), staff has reached out to disable veterans through the 

Veterans Service Commission (located at the One-Stop Career Center), a VA clinic, and other programs 

serving veterans in the community. This program provides funds for training for disabled veterans (which 

may be supplemented by other sources, such as the GI Bill, WIA, and Pell Grants). 

Final Report -- Evaluation of the POS Requirement Page 148 
 

 

 

 

 

	 

	 

customized training. Staff completes an initial assessment of the veteran to 

determine need and eligibility for enrollment in VSTP/VR2. Initial intake and 

assessments must be conducted according to the local WIA eligibility 

requirements, such as self-sufficiency, priority of service, and 

core/intensive/training services policies. All veterans enrolled must meet local 

Workforce Investment Board (WIB) WIA eligibility criteria and all those in 

training must be co-enrolled in the local WIA Program. All veterans enrolled 

must be provided SCOTI Labor Exchange intensive services and intensive job 

search services by ODJFS. Funds for VSTP and VR2 are allocated upfront to 

WIA areas, in amounts based upon historical VSTP/VR2 activity. The amount 

allocated includes a 10% allocation to help cover administrative funds. WIA 

areas may request additional funds if their initial allocation is expended. A 

VSTP/VR2 Grant Coordinator at the state level approves each local areas request 

for funding of an ITA, OJT, Customized Training, or supportive service. 

o	 Monster.Com Collaboration. The state has entered into a partnership with 

Monster.Com (referred to as “Ohio Means Jobs”), which results in the automatic 

posting of resumes of job seekers registering with the ES in Ohio. Under this 

agreement, Ohio employers have access free-of-charge to nearly 

4 million resumes posted on the system (by Ohio residents, as well as residents in 

nearby states). The state has worked with Monster.Com so that an automatic 

sorting routine has been implemented that displays veterans before similarlyqualified non-veterans in the listings of resumes shown to employers searching 

the system. Under this agreement, resumes are sorted into three categories in 

terms of their appropriateness for job openings – high, medium, and low 

relevance – and within each of these categories, veterans are shown first, followed 

by non-veterans. There is some concern at the state-level that if new more 

stringent POS requirements are implemented at the national level that it will be 

necessary to undertake expensive new programming in the Monster.Com system 

to meet federal requirements (or alternatively, that it may be necessary to 

terminate the collaboration because requirements cannot be met).71 

	 Number of Veterans Served and Mix of Services Received. As noted earlier, 

Ohio is near the average in terms of its overall percentage of veterans (ranked 32nd in 

the nation, with about 10% of the civilian population being veterans) and there are 

some pockets of the state with higher concentrations of veterans. The state officials 

monitor the 9002 and Vet 200 reports to assess number of veterans served and service 

mix. Generally, 10-12 percent of the veteran customers of One-Stops receive 

71 There is also some concern that the sorting routine used in matching job seekers to job vacancies in Ohio 

Means Jobs (OMJ) could be interpreted as not fully providing priority of service for veterans because 

employers view non-veterans with high relevance to a each job order are listed before veterans with 

medium relevance. At the visit to the local area, two additional concerns were raised about potential longterm effects of OMJ on POS for veterans: (1) OMJ could over time reduce the one-on-one interaction 

provided to veterans within the One-Stop system (for example, veterans may register in SCOTI, so they 

would be matched to job orders, but not take full advantage of other services available through the OneStop); and (2) OMJ could eventually largely supplant/replace the ES job listing/search function which 

would effectively eliminate the 24-hour hold on job orders for veterans. 

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intensive services. State and One-Stop officials indicated that veterans are much 

more likely to receive staff-assisted services, in particular, one-on-one counseling 

with regard to job search/development with a vet rep. 

	 Do Veterans Receive Priority for Intensive/Training Services When Funds Run 

Low? As noted above, veterans are more likely to receive intensive and training 

services than non-veterans. As discussed earlier, once training funds are 75 percent 

obligated, veterans receive priority of service. In addition, the VR2 and VSTEP 

Programs provide training exclusively for veterans (see above). 

	 Training/TA on Priority of Service. One-Stop Center staff receive training and 

technical assistance on POS from a variety of sources: 

o	 Specialized Training of Veterans Representatives in Denver. All new 

DVOP/LVERs (once they have completed their 120-day probationary period) 

attend specialized training at the National Veterans Training Institute (NVTI) in 

Denver. During various training modules held over a 2-week period, veterans 

representatives are briefed about priority of service and provided in-depth training 

on effective methods for serving veterans. These staff returns to their One-Stops 

and provide training to other (non-vet) staff at the One-Stop on how to effectively 

recruit and serve veterans. 

o	 Training/Monitoring Provided by 3 State Veteran Program Managers. The state 

is divided into three geographic regions (used to be 4) and a Veteran Program 

Manager is assigned to each region. These 3 Program Managers provide training 

to One-Stop staff (including partner agency staff) on effective delivery of services 

to veterans, including requirements related to priority of service. These managers 

advocate for veterans within the One-Stop system to ensure that they receiving 

priority and regularly monitor the percentage of veterans being served by OneStops (versus all customers) and whether veterans are receiving priority. The 

state vet coordinators also provide three days of orientation and training for each 

new veterans representative (referred to as Veterans Representatives Orientation 

Workshop, VROW). 

o	 Policy Book. DVOPs/LVERs have each been provided a policy book that sets out 

policies and procedures (including TEGLs) with regard to serving veterans. 

o	 Video Conferencing. Each month (and sometimes bi-weekly), the state sponsors a 

videoconference for workforce staff across the state (in One-Stops and other 

locations); some sessions have focused on services to veterans, including POS. 

o	 Monthly Staff Meetings. One-Stops have monthly staff meetings involving 

WIA/ES staff and partners, during which POS and veterans services may be 

discussed. For example, every 3rd Friday, there are staff meetings at the Lucas 

County One-Stop. These meetings involve program updates, cross-trainings, and 

other exchanges among various partnering organizations. The veterans 

representative makes presentations from time to time on various topics, including 

effective delivery of services for veterans and discusses POS. 

	 Monitoring POS. The state officials monitor the 9002 and Vet 200 reports to assess 

number of veterans served and service mix. The state also closely monitors the 

Final Report -- Evaluation of the POS Requirement Page 150 
	 

	 

	 

	 

	 

	 

	 

	 

percentage of veterans that enter training. During the One-Stop recertification 

process, One-Stops are asked about priority of service, as well as the services and the 

flow of veterans through the service delivery process. The three veteran service 

coordinators (each covering about one-third of the state) regularly monitor local 

policies and procedures with respect to veteran services and POS, as well as review 

data on services provided to veterans. Finally, the DVOPs/LVERs across the state 

serve as the “eyes and ears” with respect to implementation of POS and services for 

veterans – any emerging problems/challenges are reported by veterans representatives 

to the coordinators. 

	 Challenges to Implementing POS in One-Stop Career Centers. A number of 

challenges were identified by state and local workforce officials: 

o	 DOL needs to issue regulation, rather than just guidance on POS – According 

to one official: “DOL needs to say, this isn’t guidance, this is the 

law...Technical letters (TEGLs) do not carry the full weight of regulation 

issued in the Federal Register.” One-Stops and partnering agencies are in the 

position where they have to interpret what is meant by priority of service – 

and this results in differences of interpretation across states and One-Stops. 

At the same time, there is some ambivalence on the extent to which regulation 

and guidance could cut down on state flexibility – for example, one state 

administrator saw a benefit in giving states some flexibility in implementing 

POS (i.e., by allowing Ohio to continue policies that are working well). 

o	 New regulations issued by DOL could alter what is collected on One-Stop 

customers – increasing burden on staff and customers. Careful thought should 

be given to reporting requirements. There is some concern that changes could 

make it difficult or impossible to maintain the collaboration with Monster.com 

or lead to substantial costs for the state in terms of new programming of the 

Monster.com application to meet revised POS requirements. 

o	 The state does not want veterans to lock into a veterans representative, but 

rather use the full range of One-Stop services (including, as appropriate, 

veterans representative assistance). According to one administrator: “We are 

not old school, which was – you are a vet...go see a veterans representative.” 

Also, the state does not want to give veterans the impression that priority of 

service means “entitlement” to training, jobs, or other services. One state 

administrator noted: “There is a question of how far do you take veteran 

priority of service in a self-service world.” 

o One state administrator observed there was a lack of coordination across 

agencies and programs at the national level, which complicates POS 

implementation at the state/local levels: “Every partnering program seems to 

have its own guidance” with respect to veteran services and priority. DOL 

issuance of regulations does not mean that partnering agencies will necessarily 

adhere to these regulations – according to one administrator: “My concern is 

that there is an expectation that if DOL issues regulations that everyone will 

follow...TANF Program administrators see themselves under DHHS 

guidance... programs listen to their funding sources.” 

Final Report -- Evaluation of the POS Requirement Page 151 
o	 There is a need for closer monitoring of federal contractors to make sure that 

they are meeting requirements to post job opportunities so that veterans have a 

chance to apply for such jobs. 

Final Report -- Evaluation of the POS Requirement Page 152 
 

 

	 

STUDY OF PRIORITY OF SERVICE UNDER THE JOBS FOR VETERANS ACT 

SITE VISIT SUMMARY -- VIRGINIA72 

State: Virginia 

Dates of Visit: 3/24/09 – 3/25/09 

	 State Geography/Population. By 2008 population estimates, Virginia was the 12th 

most populous state, with 7.7 million people. The Northern Virginia / District of 

Columbia Metropolitan Statistical Area is the 9th largest in the country (2008 

population of 5.4 million), and the Hampton Roads area was the 35th largest (2008 

population of 1.7 million people). Virginia has a high median household income, and 

ranked 9th in the nation at $59,575 in 2007 (compared to a national median of 

$50,740). The state’s poverty rate was low relative to the U.S. national rate (9.9 

percent compared to 13.0 percent among all people). 

Virginia is the nation’s 14th most densely populated state (with 194.8 persons per 

square mile in 2007). There is considerable variation in population density across the 

state, with high concentrations in the Northern Virginia area and eastern costal areas 

(Virginia Beach/Norfolk / Newport News area, broadly referred to as “Hampton 

Roads”), and relatively low concentrations in the central and western areas of the 

state. 

Virginia is ranked 4th in the nation in terms of the percentage of the population over 

the age of 18 who are veterans. According to U.S. Department of Veterans Affairs 

statistics, there are over 800,000 Veterans in the state. Six of the nation’s top 10 areas 

of highest veteran concentration were located in Virginia. The city of Hampton, near 

the country's largest naval station, had the greatest concentration of veterans of all 

U.S. cities in 2000, at 27.1 percent of the adult population.73 The other five areas in 

Virginia of high veteran concentration were Virginia Beach (21.7 percent), Norfolk 

(19.9 percent), Newport News (19.9 percent), Chesapeake (18.9 percent), and 

Portsmouth (18.4 percent). 

There are over 48 military installations in the state, with most concentrated in the 

Tidewater area and the DC metropolitan area. Major military installations include: 

Army: 

Fort A.P. Hill (Fredericksburg), Fort Lee (Petersburg), Fort Eustis 

(Newport News), Fort Myer (Arlington), and Fort Belvoir (Alexandria) 

Navy & Marine Corps: 

72 Virginia staff could not be reached to obtain responses to all queries raised by the site visitors. 

73 Source: U.S. Census Bureau, Decennial Census, 2000; 

http://factfinder.census.gov/jsp/saff/SAFFInfo.jsp?_pageId=tp12_veterans and 

http://www.census.gov/prod/2003pubs/c2kbr-22.pdf 

Final Report -- Evaluation of the POS Requirement Page 153 
 

	 

MC Combat Development Command (Quantico), Marine Corps Officer 

Basic School (Quantico), Marine Corps Base Quantico (Quantico), Naval 

Surface Weapons Center (Dahlgren), Yorktown Naval Weapons Station 

(Yorktown), and HQ MC/Henderson Hall (Arlington) 

Air Force: 

Langley AFB (Hampton) 

Coast Guard: 

Group Atlantic Area (Portsmouth), Fifth Coast Guard District 

(Portsmouth), Maintenance & Logistics Command (Norfolk), National 

Pollution Funds Center (Arlington), Coast Guard Finance Center 

(Chesapeake), 

Telecommunication & Information Systems Command, Group Eastern 

Shore, 

Group Hampton Roads, Marine Safety Office Hampton Roads, and 

Reserve Training Center Yorktown. 

There are three VA Hospitals in the state, located in Hampton, Richmond, and Salem. 

Veterans in the Northern Virginia area are serviced by Veterans hospitals in West 

Virginia (Beckley and Martinsburg) and the District of Columbia. 

In the most recent round of base realignment and closure (BRAC) actions, the state 

has mainly made gains, including a $5 million hospital construction project to replace 

the Walter Reed facility (which will generate 6,200 jobs), and growth at Fort Belvoir, 

Fort lee, and MCB Quantico. The one major loss was the closing of Monroe, resulting 

in the reassignment of 2,400 personnel to Fort Eustis. 

	 State Economy. Manufacturing has traditionally been a major industry across the 

state. In the “58 Corridor”74, the area west of Interstate 95, furniture and textile 

manufacturing are the major industries. In the southwest part of the state, coal, oil, 

and gas production are major industries. Agriculture, timber, and paper 

manufacturing are also large industries. 

In Newport News, the site of the local one-stop visit in this study, the major industries 

are government (DoD), healthcare, and ship building and repair. Two years ago, a 

major Ford plant in the area closed, which led to the layoffs of 2,400 direct Ford 

employees and an additional 2,000 supplier employees. 

In March 2009, the unemployment rate in Virginia reached 6.9 percent, up from 6.4 

percent in January and 5.1 percent in December of last year.75 Between December 

and January, the state lost 72,500 non-farm jobs. However, there is considerable 

variation in unemployment rates across the state. In some areas of the state, 

unemployment is much higher: in Danville, the unemployment rate is currently 18 

percent. In seven of the past twelve months, unemployment insurance claims have 

been at an all-time state high. 

74 The 58 Corridor follows U.S. Route 58, which runs east to west along the southern border of Virginia. 

75 By comparison, the national unemployment rate in January was 8.5 percent. 

Final Report -- Evaluation of the POS Requirement Page 154 
	 Structure of the Workforce Development System. There are 15 local workforce 

investment areas (LWIAs) in Virginia, though historically there have been as many as 

17 (two areas were recently combined into one shortly before our visit). There are 33 

comprehensive One-Stop Career Centers in the state. Over the past two years, the 

state has been transitioning administration of WIA from the Virginia Employment 

Commission (VEC) to the Virginia Community College System. Prior to VEC, WIA 

was administered by the Governor’s Employment and Training Department under 

Secretary of Health and Human Services. In many cases, One-Stops also house 

Virginia State Department of Veterans Services staff, whose role is to provide 

veterans with information on benefit entitlements (e.g., disability, educational). There 

are no residency rules for WIBs, so One-Stops can serve individuals from 

surrounding states. 

Each One-Stop is administered by a consortium of partners, and VEC is often one of 

the partners. Consortiums for administration of One-Stops must have at least three 

WIA “mandated” partners, but beyond this specification, there are no statewide 

requirements for administration of services. Rather, the partner organizations decide 

amongst themselves how they prefer to administer services. Most One-Stops have 

Wagner-Peyser (WP) staff for delivering core services. 

The WIB for Norfolk, the site of the local One-Stop visited for this report, has VEC 

offices in Norfolk and in Chesapeake. The WIB has a total of 15 DVOPs and LVERs, 

with four of the DVOPs and eight of the LVERs based in the Norfolk office. 

The Norfolk One-Stop visited for this report is a consortium of VEC, The Department 

of Rehabilitation Services, the City of Virginia Beach (the grant recipient and a 

“CLEO”), and Opportunity Inc., the staff organization for the WIB that is a special 

purpose unit of the local government. Opportunity Inc. serves as both the managing 

partner and fiscal agent. The One-Stop serves Virginia Beach, Norfolk, Portsmouth, 

Chesapeake, Suffolk, Allaway County, and Southampton. Staff for the One-Stop 

often split their time between VEC offices and the One-Stop itself, which are located 

on the same street. There is currently a committee examining the possible collocation 

of the two offices. The One-Stop has 21 WIA staff, with six staff from additional 

partnering agencies. These include one full-time VRS staff member, two VEC 

members (one full-time ES staff and a DVOP or LEVR that alternate days onsite), 

one Adult Education tester, one Adult Education GED class instructor, one Older 

Worker (SESCP) program person, and one Education Opportunity Center staff 

member (funded by the Virginia Tidewater Consortium to help customers apply for 

financial aid). Last year, the site served 4,600 new customers. Intensive services 

included 900 served via adult funding and training dollars, 124 via Dislocated 

Workers from formula funding, and 350 via Rapid Response funding given after the 

Ford plant closing. 

The other One-Stop visited on this site-visit is located in Franklin, Virginia within a 

Tidewater Community college campus. The One-Stop has a WIRED grant from the 

Final Report -- Evaluation of the POS Requirement Page 155 
	 

U.S. Department of Labor, and is in the process of bidding on a “Youth Build” grant 

to provide career readiness training, skills training, and other types of training to 

disadvantaged youth. Opportunity, Inc. has one room at the campus on a full-time 

basis and uses another room on a part-time basis. The main industry in the Franklin 

area is pulp and paper. Roughly 60 customers a day use this One-Stop, though 

numbers are considerably lower on later days in the week (around 20 customers on 

Fridays). There are sometimes resource shortages for customers, particularly in terms 

of computer access. The site would like to have Vets Reps come once per month to 

administer services. The Trade Act Representative at the site mentioned that there are 

not many newly separated veterans served; rather, most are retirees. Though the site 

does have authority to establish individual training accounts (ITAs) for training, they 

sometimes refer clients to the Suffolk One-Stop for intensive training. 

Statewide, there are 32 total ES offices, 27 of which have DVOP or LEVR staff. 

Some of these staff members are out-stationed at military bases. Services available 

with WP funds include labor exchange services (a virtual One-Stop that is web-based 

with an applicant database that interacts between the WIA and WP systems, and pulls 

job posting information from various internet websites) and the Extensive Labor 

Market System. 

	 State Level Policies on Priority of Service. The state does not have a specific 

Priority of Service requirement that addresses Veterans only. Rather, each local WIB 

establishes its own policies for Priority of Service, though these policies must follow 

state and federal guidelines (e.g., TEGLs issued by ETA). The state passes these 

guidelines and memorandums through to local sites, which develop their own POS 

policies and submit them to the state for approval. 

Highlights from the state plan include: 

The State does not pre-determine priority of service for local boards. Rather, 

Virginia’s Priority of Service Policy states that in the event that adult funds are 

determined to be limited, the LWIB must develop a priority of service policy. At a 

minimum, the policy must grant first priority to individuals who are receiving 

public assistance or are classified as “low-income” in accordance with WIA 

definitions. Additional priorities may also be set for specific populations, such as 

individuals with significant barriers to employment or for participants interested 

in training for occupations that are in demand in the area. 

... Priority of service, as mandated by Training and Employment Guidance Letter 

(TEGL) No. 5-03, is the responsibility of all employment and training programs 

receiving federal funds, i.e., to give veterans priority in program(s) participation if 

they meet the eligibility requirements. This TEGL was discussed at our statewide 

Veteran Partners Conference held May 2-3, 2006, in Richmond, Virginia. The 

VEC takes steps to ensure that veterans receive priority of service in all of the 

services that it provides and standards of performance governing VEC services to 

veterans have been negotiated with the Veterans Employment and Training 

Final Report -- Evaluation of the POS Requirement Page 156 
	 

Service (VETS). Successfully exceeding these standards documents veterans’ 

preference by the VEC. This priority of service is implemented through priority 

file search for job referral and priority referral to potential job opportunities. 

	 Outreach to Veterans. Outreach to veterans at the state level is conducted for key 

subgroups. Specific groups that are targeted include incarcerated offenders, homeless 

vets, and veteran units returning from Iraq and Afghanistan. 

Local staff conduct outreach at Vet Centers, TAP classes, VA Hospitals, job fairs 

(including Vet job fairs conducted by DVOPs and LVERs), Wounded Warrior 

Program, service provider sites (e.g., family resource centers, the Salvation Army), 

and for the homeless via “stand-downs”. There are roughly 5 to 10 Vet job fairs per 

month conducted around the state; at general job fairs there is generally a booth for 

veterans to learn of specific services for them. At the local One-Stop in Norfolk, 

roughly 25 percent of the LVER’s job is dedicated to outreach. The LEVR that we 

interviewed conducted 16 to 20 job fair per year across the region. 

Transition Assistance Program (TAP): There are nine TAP sites in the state that 

conduct a total of 300 workshops per year for retiring and separating veterans. 

Although departing service members receive TAP services at their last assignment, a 

substantial proportion of TAP participants in Virginia elect to remain in the state, as 

is reflected in Virginia’s high proportion of veterans in its population. Eighty percent 

of TAP sessions are conducted by LVERs and DVOPs. The remainder are led by 

contractors. Norfolk holds the largest TAP session. TAP sessions in Virginia are 

always conducted with two facilitators. This is due in part to large class sizes 

(averaging 70 participants), but also as a way to provide training for new facilitators 

through paired instruction. 

Yellow Ribbon Program: This program serves Virginia National Guard troops 

returning from Afghanistan and Iraq. State official found that Virginia National 

Guard members, who are not eligible for TAP, were often unaware of employment 

services provided by VEC and the One-Stop system. Last summer, the state began the 

Yellow Ribbon Program, which sends Veterans representatives to National Guard 

deployment sites across the United State to conduct outreach about One-Stop services 

for individuals who will be returning to Virginia and to begin pairing them with 

Veterans services across the state. Since inception, the program has sent staff 

members to Fort McCoy, Wisconsin and Aderberry, Indiana. Most returning Guard 

members have served abroad for between nine and 12 months. On these visits, staff 

also conducts outreach to National Guard members who are recalled before 

deployment and to local service organizations to educate them about services 

available for veterans when they return. While other states conduct this type of 

outreach to deployment sites within their borders, Virginia staff thought their program 

was unique for traveling to deployment sites in other states. 

Final Report -- Evaluation of the POS Requirement Page 157 
 

	 

	 

	 

	 

	 

	 

	 

	 

	 Overview of How POS is Administered/Implemented in the One-Stop System. 

o	 General Flow Statewide. When veterans enter the One-Stop Career Center, 

the staff conducts a triage to see if the services of a DVOP or LVER are 

needed. If no DVOP or LVR is available, or if it determined that a veteran 

does not need services from a DVOP or LVER, then an ES or WIA staff 

member provides services. For Wagner-Peyser ES services, there is a series of 

questions that customers must answer, including questions about veteran 

status for the labor exchange services. Depending on how individuals answer 

these questions, they may get asked WIA qualifying questions regarding 

veteran status. The state is currently trying to create a system that would 

automatically transfer information entered for ES services to the WIA 

questionnaire responses, but the qualifications and categories are inconsistent 

between the two programs. 

o	 Flow at the Norfolk One-Stop. Customers enter the office, sign in on a log, 

and fill out a basic information sheet that includes an indicator for veteran 

status. (Note: the log does not include an indication for veteran status). The 

customer then attends an orientation during which they speak with partner 

organizations (veterans representatives, business service, WIRED reps, Older 

Service, etc.) about the various services available. Next, the customer fills out 

his or her information in the Virtual One-Stop System, which contains 

questions pertaining to veteran status. After this information is entered, intake 

triage occurs as staff members validate that all information entered is accurate 

and confirms veteran status. The staff member then informs the customer 

about services available, including one-on-one WIA services and training. 

Staff then schedule appointments for upcoming services, including time to see 

a DVOP or LVER. A DVOP who is based in the nearby VEC offices comes in 

to the One-Stop offices twice a day to speak with veterans. On average, two to 

six veterans come through the One-Stop each day. The majority of veterans 

served by the DVOP and LVER (20 to 40 per day) go directly to the VEC 

offices down the street from the One-Stop. 

o	 Job Order Holds and Automatic Matching. Every job order taken for ES and 

WIA customers goes into a hold for veterans until a DVOP, LVER, or other 

staff member (if neither a DVOP nor a LVR is available) reviews it. As 

decided by the state, job orders may stay in a veteran hold for a maximum of 

48 hours. During this hold, automatic matching in the job database system 

(called the “Virtual One-Stop System” or “VOS”) between job postings and 

qualified individuals is conducted only against veteran records. This provides 

veterans with priority of service for labor exchange services. 

The local One-Stop visited in Norfolk for this evaluation does not have a 

written POS statement. The local officials we interviewed are awaiting 

Final Report -- Evaluation of the POS Requirement Page 158 
	 

	 

	 

	 

	 

	 

	 

	 

training and technical assistance from the state now that formal federal POS 

policies have been made final. 

	 Do Veterans Receive Priority for Intensive/Training Services When Funds Run 

Low? According to the local site visited, there is no need for priority for intensive 

services: everyone who requests intensive services receives them. Local staff noted 

that POS would only apply to training provided through individual training accounts 

(ITAs). 

	 Training/TA on Priority of Service. Training on the 48-hour job hold for veterans 

and the automated matching processes are part of the overall training process for 

WIA and ES staff. The state conducts three to four training sessions per month in the 

field, and occasionally brings local staff to the state office for training. POS is 

discussed at these events. VEC has sent DVOPs, LVERs, and some ES staff to the 

National Veterans Training Institute (NVTI) in Denver. The local One-Stop visited 

reported having conducted no staff trainings on POS to date, as it is awaiting formal 

training from the state. 

	 Monitoring POS. State staff at the VEC monitors the 9002 and 200 reports to look 

for consistency in application of the POS requirements. There is an unwritten policy 

that state staff conducts interviews of staff at 20 percent of offices each year. In the 

future, this will increase to reviews of 80 percent of offices each year, though these 

new audits will be desk audits. Each WIA region is reviewed once per year, though 

not every office is reviewed. Staff commented that since eligibility and priority of 

service must occur before veterans are identified, it is not possible to measure 

whether veterans are truly receiving priority of service. If veterans are turned away at 

some point, they will not show up in employment, retention, and earnings measures 

after receipt of services, but this tells the program nothing about who has tried to get 

services. There is thus no data available to truly measure the POS. 

	 Challenges to Implementing POS in One-Stop Career Centers. One area of 

confusion mentioned by both state and local staff is that by their interpretation, the 

employment service and WIA have different definitions of who should get priority of 

service. It was not clear to site staff how such discrepancies should be resolved. Local 

staff did not feel that WIA staff was well-informed about the POS. State staff noted 

that in some cases, veterans may not indicate their veteran status, making it 

impossible to identify them for the purposes of priority of service. A final area of 

concern mentioned by state staff regarded training difficulties. Recently, there has 

been high staff turnover due to a loss of funding, and staff were concerned that this 

hampers training efforts. The interviews for Virginia were conducted shortly after the 

new federal rules on priority of service became final. Staff at both the state and local 

levels expects that additional guidance from DOL will be forthcoming and enable the 

state to perform more specific POS training and for both state and local level staff to 

understand the requirements for appropriate POS. 

Final Report -- Evaluation of the POS Requirement Page 159 
 

 

	 

	 

	 

	 Focus Group with Veterans. In addition to meeting with state and local workforce 

officials, the research team conducted a focus group with two veterans served by the 

Norfolk local One-Stop. Questions asked during the session included background 

demographics and employment history, specific services received from the One-Stop, 

and impressions of the quality of service provided. 

Phil’s Background and Service Experience:76 

Phil served in the nave for 22 years. Four years and three months of this length of 

service was active duty, while the rest was reserve time. After his active duty 

time, Phil left the military for 10 years. He then rejoined as a reservist during the 

first Gulf War, in which he served as a flight engineer. Phil worked for several 

years in the private sector. When he was laid off three years ago, he turned to the 

Virginia Employment Commission office for employment services. The VEC 

offices referred him to the One-Stop facility. He is currently receiving services 

from the One-Stop and collecting unemployment insurance. 

Phil found services easier to access at the One-Stop than at the VEC for two 

major reasons: 

	 The VEC processes roughly 800 people per day, making it difficult to 

access resources. For example, at the One-Stop, Phil was almost always 

able to find an open computer, while at the VEC there would often be a 

line for computers. 

	 At the VEC, Phil would not always see the same staff person during each 

visit. However, at the One-Stop he has developed a relationship with a 

specific employment counselor. 

He noted that prior to receiving services as a veteran at the One-Stop, he had to 

register upfront at the VEC office. Phil experienced trouble finding his DD214 

(separation) documentation, which made evidentiary claims for pension purposes 

difficult. 

Don’s Background and Service Experience: 

Don grew up in Detroit, Michigan where he worked as an automotive technician 

for Volvo / Pinna. He joined the military after a series of layoffs in Michigan, and 

he continued working in the military for 20 years. Military service brought Don to 

Virginia Beach, where he lived from 1984 until 1987, and then again beginning in 

1992. In 1992, he got a job with General Dynamics Electric Boat Company. 

During his time at General Dynamics, he was laid off and then rehired three 

separate times. The first lay off was rescinded, and he never lost a day’s work. 

Following the second layoff, he was, he was immediately rehired into another 

76 Names of the veterans have been changed 

Final Report -- Evaluation of the POS Requirement Page 160 
department of the company. In December 2008, the company had another round 

of layoffs, and this time it did not rehire him. 

After the layoff, Don first went to a Rapid Response session, and he later went to 

the Norfolk One-Stop. He worked with a career developer and a business-tobusiness developer to obtain a job manufacturing railroad equipment. Though he 

received some services from Veterans representatives, most of his services came 

through the general One-Stop staff. The Virginia Workforce Program paid for 

Don to participate in the WorkKeys Certification Program, which certifies 

proficiency in various skill sets. The program costs $350, and he achieved a gold 

rating (the highest possible score) on the test. Don commented that though his 

first two experiences with One-Stop services were not helpful, this past time was 

very useful. 

Final Report -- Evaluation of the POS Requirement Page 161 
APPENDIX E: 

OMB CLEARANCE PACKAGE AND SURVEY INSTRUMENT FOR 

TELEPHONE SURVEY OF VETERAN AND NON-VETERAN CUSTOMERS 

OF ONE-STOP CAREER CENTERS 

Final Report -- Evaluation of the POS Requirement Page 162 
 


 

SUPPORTING STATEMENT FOR PAPERWORK REDUCTION ACT 1995 

SUBMISSION FOR TELEPHONE SURVEY OF VETERAN AND NONVETERAN CUSTOMERS OF ONE-STOP CAREER CENTERS
 

The U.S. Department of Labor’s Employment and Training Administration (ETA) 

is seeking Office of Management and Budget (OMB) approval to collect survey data 

from customers served by DOL-funded One-Stop Career Centers. The proposed survey 

will provide data necessary for a current Department of Labor-funded evaluation effort to 

assess whether veterans are receiving Priority of Service (POS), as specified under the 

Jobs for Veterans Act (JVA). Under JVA, DOL is required to "evaluate whether covered 

persons are receiving priority of service." The survey is intended to provide direct 

feedback from veterans (i.e., “covered” persons under JVA) concerning their perspectives 

on whether they received POS, the timeliness of services received, satisfaction and 

helpfulness of services, and recommendations for service delivery improvements. Nonveterans are also being surveyed to determine the extent to which there is variation in 

responses for veterans in comparison to non-veterans. 

The Employment and Training Administration (ETA) of the U.S. Department of 

Labor has contracted with Capital Research Corporation, a small business located in 

Arlington, Virginia that specializes in research and evaluation studies, and its 

subcontractor, The Johns Hopkins University Institute for Policy Studies, to conduct an 

evaluation of Priority of Service for covered individuals. The evaluation is intended to 

provide a better understanding of how veterans are provided access to the full array of 

workforce services through the One-Stop Career Center system, including those 

administered by other federal agencies. The study is an action item ETA identified in 

response to the recommendations the Government Accountability Office (GAO) made in 

report number GAO-06-17677 to improve accountability and help states integrate veteran 

services in One-Stop Career Centers. The survey data collected through this effort are a 

vital component of this overall evaluative study and, together with other statistical 

analyses of DOL/ETA databases and conduct of site visits to seven states and local 

workforce agencies, will provide a comprehensive picture of whether and how POS is 

being implemented through the One-Stop Career Center System and various workforce 

investment programs administered by ETA. 

The survey will be administered by telephone to randomly selected customers of 

One-Stop Career Centers in seven states. Sample customers will also have the choice of 

completing the survey online. States will provide contact information on veteran and nonveteran customers who used One-Stop Career Centers over a six-month period. From 

this list, a random sample of veterans (i.e., covered persons as defined by JVA) and nonveterans will be selected. Sample customers will receive an introductory letter informing 

them of the survey and offering the opportunity to complete the survey online. The 

survey will gather data from veterans and non-veterans on: types of services received, 

77 GAO, Veterans’ Employment and Training Services: Labor Actions Needed to Improve Accountability 

and Help States Implement Reforms to Veterans’ Employment Services, Report GAO-06-176, December 

2005. 

Final Report -- Evaluation of the POS Requirement Page 163 
 

 

customer rating on the quality of services received, overall customer satisfaction with 

services, and whether the customer was asked about his/her veteran status. In addition, 

veterans will be asked about whether they received priority of services, types of staff 

(Disabled Veterans' Outreach Program [DVOP], Local Veterans Employee 

Representative [LVER], and other staff) from whom services were received, whether the 

veteran felt he/she was afforded priority with respect to viewing/applying for job 

openings and obtaining training, and to provide other comments with respect to POS and 

services One-Stop Career Center services received. As discussed in more detail in 

Section A of this submission, it would not be possible to gather perspectives from a 

randomly selected group of One-Stop Career Center customers of sufficient sample size 

(i.e., to conduct analyses using statistical procedures) with the resources available using 

any other method, such as focus groups with customers. 

A final evaluation report will provide an analysis of the survey data integrated 

with statistical analysis of large-scale ETA databases (for Workforce Investment Act 

exiters) and qualitative findings from site visits to states and local workforce areas. 

A. JUSTIFICATION 

1. Explain the circumstances that make the collection of information necessary. 

Identify any legal or administrative requirements that necessitate the collection. 

Attach a copy of the appropriate section of each statute and regulation mandating 

or authorizing the collection of information. 

The Jobs for Veterans Act (JVA) requires that the U.S. Department of Labor 

"evaluate whether covered persons are receiving priority of service."78 The study is an 

action item ETA identified in response to the recommendations the Government 

Accountability Office (GAO) made in report number GAO-06-17679 to improve 

accountability and help states integrate veteran services in One-Stop Career Centers. 

The proposed telephone survey (with a web option) will provide data essential to 

the Congressionally-mandated evaluation of POS, which would be difficult and 

inefficient to collect using any other method. In addition, no other single means of data 

collection would yield data with sufficient sample size (estimated at 1,200 respondents) 

that would make it possible to determine with statistical precision the views of veterans 

concerning POS and, for example, differences between veterans and non-veterans in 

ratings with respect to discrete services and overall satisfaction. 

This type of survey could possibly be conducted effectively through mail and/or 

web-only surveys. However, these alternatives increase the timeframe and can have 

78 Jobs for Veterans Act, was enacted into Public Law 107–288 on November 7, 2002. 

79 GAO, Veterans’ Employment and Training Services: Labor Actions Needed to Improve Accountability 

and Help States Implement Reforms to Veterans’ Employment Services, Report GAO-06-176, December 

2005. Data collection for this study was conducted between January and November 2005, so study results 

and findings are somewhat dated. 

Final Report -- Evaluation of the POS Requirement Page 164 
	 

	 

	 

	 

several potential drawbacks. Depending upon the population, mail surveys do relatively 

well with regard to response rates using multiple contact attempts (over a minimum of 8 

weeks via mail versus 2-3 weeks via telephone). In addition to the longer timeframe 

(compared to a telephone administration) needed to conduct a mail survey, a significant 

disadvantage of mail surveys is the self-selection bias that emanates from perceived 

burden and topic salience. Mail surveys also offer respondents the chance to preview the 

questions before completing the questionnaire. This can also lead to self-selection bias 

since respondents who feel less engaged by the topic are less likely to participate. 

While a web-only survey can reduce the administration timeframe (compared to 

mail surveys), it can have similar self-selection bias issues to a questionnaire 

administered by mail. However, the main challenge of conducting web-only surveys is 

that computer and Internet access is not universal and access (or lack of access) often 

reflects race/ethnic and socioeconomic differentials. Another disadvantage of web 

surveys is that they require both literacy and computer literacy, which can be an issue for 

some populations. 

Another possible approach would be to conduct the survey in-person rather than 

by telephone. This approach would be much more costly than conducting telephone 

interviews (both for the contractor and respondents). Such in-person interviews would 

not be feasible within the budget for this survey. 

Given the type of population we would like to sample, the telephone collection 

methods presents the most efficient and timely method and affords less potential for selfselection bias. 

2. Indicate how, by whom, and for what purpose the information is to be used. 

Except for a new collection, indicate the actual use the agency has made of the 

information received from the current collection. 

The survey of veteran (and non-veteran) customers of the One-Stop Career Center 

system is a new collection. The survey will be used to provide standardized and 

statistically valid data for analyses of veterans’ (and non-veterans’) experiences in the 

One-Stop Career Center system and the workforce investment system. The purpose of 

the survey is to provide data necessary from a randomly selected group of One-Stop 

customers to determine (with statistical precision) the following information for veterans 

and non-veterans: 

1.	 Types of services received, 

2.	 Customer rating of the quality of services received, 

3.	 Overall customer satisfaction with services, and 

4.	 Whether the customer was asked about his/her veteran status and the timeliness of 

this inquiry. 

In addition, for veterans only, the survey will be used to determine: 

Final Report -- Evaluation of the POS Requirement Page 165 
	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

1.	 Whether veterans believe they received priority of services; 

2.	 Types of staff (DVOP, LVER, and other staff) from whom veterans received 

services; and 

3.	 Whether veterans felt they were afforded priority with respect to 

viewing/applying for job openings and obtaining training. 

This survey will be one of three key data sources in the evaluation of POS, 

integrated with statistical analysis of large-scale ETA databases (for Workforce 

Investment Act exiters) and qualitative findings from site visits to states and local 

workforce areas. The survey results (and overall evaluation report) will be used by ETA 

to meet its Congressionally-mandated responsibility to report on the extent to which (and 

how) the workforce investment system is providing veterans with POS. In addition, all 

results and materials developed from the analyses of this data collection effort are 

intended to reach multiple audiences, including: 

	 ETA and DOL staff, 

	 Policymakers at the state and federal levels of government looking to design 

programs; and services to be responsive to the needs of veterans; 

	 Veterans groups and associations; and 

	 Community colleges, technical colleges, workforce investment agencies and 

organizations, and other similar training-providers. 

The final report (which will include the survey results) will be posted on the ETA 

website. The survey, and the report it informs, will help ETA better understand whether 

and how POS is being implemented at the state and local levels. The survey results will 

help ETA, states, and local workforce investment areas to identify potential 

problems/challenges to providing POS and effectively serving veterans, and inform 

possible changes to policy, strategies, and service delivery to enhance program 

performance and cost-effectiveness of services provided to veterans through the OneStop Career Center system. A copy of the telephone survey is attached, which provides 

the specific questions that will be asked of each survey respondent. 

3. Describe whether, and to what extent, the collection of information involves the 

use of automated, electronic, mechanical, or other technological collection 

techniques or other forms of information technology, e.g., permitting electronic 

submission of responses, and the basis for the decision for adopting this means of 

collection. Also describe any consideration of using information technology to 

reduce burden. 

Data collection will be accomplished through the use of Computer Assisted 

Telephone Interviewing (CATI) with an option to complete the survey online. 

CATI systems collect responses 100 percent electronically. The systems also 

perform a number of functions to avoid errors including: 

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	 Providing correct question sequence; 

	 Automatically executing skip patterns based on prior question answers (which 

decreases overall interview time and consequently the burden on 

respondents); 

 Recalling answers to prior questions and displaying the information in the text of 

later questions; 

	 Providing random rotation of specified questions or response categories (to avoid 

bias); 

	 Ensuring that questions can not be skipped; and 

	 Rejecting invalid responses or data entries. 

The CATI system lists questions and corresponding response categories 

automatically on the screen, eliminating the need for interviewers to track skip patterns 

and flip pages. Moreover, the interviewers enter responses directly from their keyboards, 

and the information is automatically recorded in the computer’s memory. 

CATI allows the computer to perform a number of critical quality assurance 

routines that are monitored by survey supervisors, including tracking average interview 

length, refusal rate, and termination rate by interviewer, and performing consistency 

checks for inappropriate combinations of answers. 

Sampled customers will be provided with the option to complete the survey 

online. Internet surveys provide convenient access that makes it easier for many 

respondents to participate. This can reduce the burden for those individuals who are 

typically not available during normal calling hours and/or wish to complete the survey on 

their own time. The online version offers a number of features including: 

	 Executes complex logic, similar to traditional CATI programs; 

	 Controls “real time” reporting (top line summaries and graphs); 

	 Data can be delivered in a variety of usable formats for analysis, including SPSS, SAS, 

Excel, or Access; 

	 Exceptional scalability and performance; 

	 Support for customer inquiries via email and toll-free number (normal business hours) 

and 

	 State of the art data security. 

Respondents access the survey through the contractor’s website, where they are 

protected by a strict data security system. Using an ID tracking system, respondents can 

access the survey and, if they choose, abandon and return at a later time to the place in 

the survey that they left. Every precaution is made to ensure data collected on the 

Internet remains both secure and confidential. The contractor’s host server is stored in a 

secure location. Only those given a personal identification number (PIN) can enter the 

survey. When the PIN is entered, the respondent is moved to a non-public directory. 

When entered, the data interfaces with a script located on a second non-public directory 

accessible only to the contractor’s system administrator. As each survey is completed, 

Final Report -- Evaluation of the POS Requirement Page 167 
survey responses are downloaded off-line. Once a survey is submitted, the PIN used to 

access the survey becomes invalid, and the survey cannot be re-accessed. These 

measures make it extremely difficult for someone to access the responses of another 

respondent. 

The online version of the survey will be designed to be integrated with data 

collected via CATI. All survey data will be on a stored on a computer that is protected by 

a firewall that monitors and evaluates all attempted connections from the Internet. 

Confidential information about the survey respondent (name and telephone number, only) 

will be maintained in a separate data file and apart from the survey data so that it is not 

possible to link particular responses to individual respondents. Once the survey is 

completed, all confidential data on each respondent will be destroyed. The entire survey 

database will be encrypted so that any data stored will be further protected. 

4. Describe efforts to identify duplication. Show specifically why any similar 

information already available cannot be used or modified for use for the purposes 

described in item 2 above. 

The information being requested is not otherwise available. There is no other 

systematic survey of veterans focused on POS or use of One-Stop Career Centers by 

veterans. There is no existing information on individual veterans in the context. The 

data and insights gathered through this survey will be invaluable in supplementing the 

statistical analyses of administrative data and qualitative assessments that have resulted 

from interviews conducted with state/local workforce agency officials and representatives 

of veterans’ organizations. Hence, without this survey, ETA would not have the full 

range of information needed to assess implementation of POS within the One-Stop 

Career Center system, and, if indicated, to make changes in policies or guidance relating 

to POS implementation at the state and/or local levels. 

It should be noted that some administrative data already exist with respect to 

veteran versus non-veteran characteristics, types of services received, and outcomes for 

Workforce Investment Act (WIA). The ETA contractor has analyzed this administrative 

data source (WIASRD) and conducted analyses comparing veterans and non-veterans on 

these dimensions. However, the administrative data available do not permit analyses of 

veteran views on POS or quality/satisfaction of services received. The existing data is 

not satisfactory to report to Congress on the extent to which POS requirements set for 

under JVA are being fully met by the workforce development system. 

5. If the collection of information impacts small businesses or other small entities 

(Item 5 of OMB Form 83-I), describe any methods used to minimize burden. 

This information collection will have no impact on small business or other small 

entities. All respondents will be individuals (i.e., recent customers of One-Stop Career 

Centers in selected states). 

Final Report -- Evaluation of the POS Requirement Page 168 
	 	 

6. Describe the consequences to federal program or policy activities if the collection 

is not conducted or is conducted less frequently, as well as any technical or legal 

obstacles in reducing burden. 

Without this data collection, ETA would not have the full range of information 

needed to gauge the impact of the veterans Priority of Service provision. This survey 

instrument is the only way we have of measuring the views and experiences of individual 

veterans who have received services from the One-Stop system and being able to contrast 

that information with the experience of non-veterans. Given the significant expenditures 

involved in implementing the workforce investment system and the importance that 

Congress, DOL/ETA, veterans’ organizations, and the public places on serving veterans 

through this system, the proposed data collecting effort is of critical importance. 

7. Explain any special circumstances that would cause an information collection to 

be conducted in a manner: 

 requiring respondents to report information to the agency more often than 

quarterly; 

 requiring respondents to prepare a written response to a collection of 

information in fewer than 30 days after receipt of it; 

 requiring respondents to submit more than an original and two copies of any 

document; 

 requiring respondents to retain records, other than health, medical, 

government contract, grant-in-aid, or tax records, for more than three years ; 

 in connection with a statistical survey, that is not designed to produce valid 

and reliable results that can be generalized to the universe of study; 

 requiring the use of statistical data classification that has not been reviewed 

and approved by OMB; 

 that includes a pledge of confidentiality that is not supported by authority 

established in statute or regulation, that is not supported by disclosure and 

data security policies that are consistent with the pledge, or which 

unnecessarily impedes sharing of data with other agencies for compatible 

confidential use; or 

	 requiring respondents to submit proprietary trade secrets, or other 

confidential information unless the agency can demonstrate that it has 

instituted procedures to protect the information’s confidentiality to the extent 

permitted by law. 

There are no special circumstances that would cause this information collection to 

be conducted in any manner listed above. 

8. If applicable, provide a copy and identify the date and page number of 

publication in the Federal Register of the agency’s notice, required by 5 CFR 

Final Report -- Evaluation of the POS Requirement Page 169 
1320.8(d), soliciting comments on the information collection prior to submission to 

OMB. Summarize public comments received in response to that notice and describe 

actions taken by the agency in response to these comments. Specifically address 

comments received on cost and hour burden. 

Describe efforts to consult with persons outside the agency to obtain their views on 

the availability of data, frequency of collection, the clarity of instructions and 

recordkeeping, disclosure, or reporting format (if any), and on the data elements to 

be recorded, disclosed, or reported. 

Consultation with representatives of those from whom information is to be obtained 

or those who must compile records should occur at least once every 3 years – even if 

the collection of information activity is the same as in prior periods. There may be 

circumstances that may preclude consultation in a specific situation. These 

circumstances should be explained. 

[DOL/CRC INSERT Fed Reg INFO HERE] Notification of this survey was 

published in the Federal Register, Vol. XXX, No. XXX, (Day, Date: pp. XXX – XXX), a 

copy of which is Attachment XX. Readers were given 60 days from the date of 

publication to submit comments. These comments will be summarized once we obtain 

them. 

9. Explain any decision to provide any payment or gift to respondents, other than 

remuneration of contractors or grantees. 

Survey respondents will receive no payments or gifts. 

10. Describe any assurance of confidentiality provided to respondents and the basis 

for the assurance in statute, regulation, or agency policy. 

The One-Stop Career Center customers who will surveyed will be assured that 

their responses will be held in confidence within the limits of the law. Identities of survey 

respondents will not be shared. The survey data will be on a stored on a computer that is 

protected by a firewall that monitors and evaluates all attempted connections from the 

Internet. Confidential information on each survey respondent (name and telephone 

number, only) will be maintained in a separate data file and apart from the survey data so 

that it is not possible to link particular responses to individual respondents. Once the 

survey is completed, all confidential data on each respondent will be destroyed. The 

entire survey database will be encrypted so that any data stored will be further protected. 

Finally, access to any data with identifying information will be limited only to contractor 

staff directly working on the survey. 

Participation in the survey is voluntary. All findings in any written materials or 

briefings will be presented at the aggregate level and it will not be possible to link 

Final Report -- Evaluation of the POS Requirement Page 170 
	 	 

specific responses to individual respondents in any way. The Contractor will not include 

any identifying information such as names, addresses, telephone numbers, or social 

security numbers in the database delivered to DOL. 

11. Provide additional justification for any questions of a sensitive nature, such as 

sexual behavior and attitudes, religious beliefs, and other matters that are 

commonly considered private. This justification should include the reasons why the 

agency considers these questions necessary, the specific uses to be made of the 

information, the explanation to be given to persons from whom the information is 

requested, and any steps to be taken to obtain their consent. 

There are no questions of a sensitive, personal, or private nature included in this 

survey. 

12. Provide estimates of the hour burden of the collection of information. The 

statement should: 

 Indicate the number of respondents, frequency of response, annual hour burden, 

and an explanation of how the burden was estimated. Unless directed to do so, 

agencies should not conduct special surveys to obtain information on which to 

base hour burden estimates. Consultation with a sample (fewer than 10) of 

potential respondents is desirable. If the hour burden on respondents is expected 

to vary widely because of differences in activity, size, or complexity, show the 

range of estimated hour burden, and explain the reasons for the variance. 

Generally, estimates should not include burden hours for customary and usual 

business practices. 

	 If this request for approval covers more than one form, provide separate hour 

burden estimates for each form and aggregate the hour burdens in Item 13 of 

OMB Form 83-I. 

Below is the estimate of the respondent burden for completing the grantee survey. 

The survey will be conducted with 1,500 randomly selected customers of One-Stop 

Career Centers in seven states. The customers will be WIA Adult and Dislocated Worker 

Program exiters who received intensive and/or training service through the One-Stop 

Career Center system and exited in a six-month period prior to the administration of the 

survey. The estimated response rate is 80 percent – yielding valid responses from a total 

of 1,200 One-Stop Career Center customers (800 veterans and 400 non-veterans). The 

estimated response time is for the survey is 20 minutes. 

Final Report -- Evaluation of the POS Requirement Page 171 
 

 

 

Total 

Sample Response Number of Time Per Burden 

Category Size Rate Respondents Frequency Respondent Hours 

Veterans 1,000 80% 800 Once 20 minutes 267 

Non­ 500 80% 400 Once 20 minutes 133 

Veterans 

Total 1,500 80% 1,200 Once 20 minutes 400 

 Provide estimates of annualized cost to respondents for the hour burdens for 

collections of information, identifying and using appropriate wage and rate 

categories. The cost of contracting out or paying outside parties for information 

collection activities should not be included here. Instead, this cost should be 

included in Item 13. 

The total annualized cost to respondents for the survey is presented below. This 

estimated cost is based on average hourly earning of production and nonsupervisory 

workers in September 2009.80 

Total Average Hourly Total Annualized 

Category hours Wage Cost 

Veterans 267 $18.68 $4,988 

Non-Veterans 133 $18.68 $2,484 

Total 400 $18.68 $7,472 

13. Provide an estimate for the total annual cost burden to respondents or recordkeepers resulting from the collection of information. (Do not include the cost of any 

hour burden shown in Items 12 and 14). 

 The cost estimate should be split into two components: (a) a total capital and 

start-up cost component (annualized over its expected useful life) and (b) a total 

operation and maintenance and purchase of services component. The estimates 

should take into account costs associated with generating, maintaining, and 

disclosing or providing the information. Include descriptions of methods used to 

estimate major cost factors including system and technology acquisition, expected 

useful life of capital equipment, the discount rate(s), and the time period over 

which costs will be incurred. Capital and start-up costs include, among other 

items, preparations for collecting information such as purchasing computers and 

software; monitoring, sampling, drilling and testing equipment; and record 

storage facilities. 

80 Based on Bureau of Labor Statistics data (ftp://ftp.bls.gov/pub/suppl/empsit.cesebb2.txt (as of 10/21/09). 

Final Report -- Evaluation of the POS Requirement Page 172 
The proposed data collection for the telephone surveys will not require the 

respondents to purchase equipment or services or to establish new data retrieval 

mechanisms. Survey content is based on the respondents’ experiences, opinions, and 

factual information. Therefore, the cost to respondents solely involves answering the 

questions on the survey. 

(a) We do not expect any total capital and start-up costs. 

(b) We do not expect extensive time spent on generating, maintaining, and 

disclosing or providing the information. 

 If cost estimates are expected to vary widely, agencies should present ranges of 

cost burdens and explain the reasons for the variance. The cost of purchasing or 

contracting out information collection services should be a part of this cost 

burden estimate. In developing cost burden estimates, agencies may consult with a 

sample of respondents (fewer than 10), utilize the 60-day pre-OMB submission 

public comment process and use existing economic or regulatory impact analysis 

associated with the rulemaking containing the information collection, as 

appropriate. 

The proposed data collection will not require the respondents to purchase 

equipment or services or to establish new data retrieval mechanisms. These costs are not 

expected to vary. 

 Generally, estimates should not include purchases of equipment or services, or 

portions thereof, made: (1) prior to October 1, 1995, (2) to achieve regulatory 

compliance with requirements not associated with the information collection, (3) 

for reasons other than to provide information or keep records for the government, 

or (4) as part of customary and usual business or private practices. 

We do not expect respondents to purchase equipment or services in order to 

respond to this data collection effort. 

14. Provide estimates of annualized costs to the Federal government. Also, provide a 

description of the method used to estimate cost, which should include quantification 

of hours, operational expenses (such as equipment, overhead, printing, and support 

staff), and any other expense that would not have been incurred without this 

collection of information. Agencies may also aggregate cost estimates from Items 12, 

13, and 14 in a single table. 

The only cost to the Federal government associated with this data collection is the 

overall cost of the contract with Capital Research Corporation to conduct the evaluation 

of the Priority of Service Provision of the Jobs for Veterans Act. The telephone survey of 

One-Stop Career Center customers is one part of this research contract. The total 

estimated cost to the federal government of conducting the evaluation of the Priority of 

Service Provision of the Jobs for Veterans Act is $499,837, which is the total contractor 

Final Report -- Evaluation of the POS Requirement Page 173 
cost of conducting the evaluation effort. This cost estimate includes $159,994 for the 

design and conduct of the survey, which includes $10,556 for development of the 

questionnaire; $8,445 for the preparation of OMB clearance materials; $117,769 for 

interviewer training, sample locating, and interviewing costs; and $23,224 for the 

processing, editing, and cleaning of ITA2 survey data. The table below provides 

additional details about the total estimated costs for the POS-JVA study. 

ESTIMATED STUDY TASK COSTS 

Study Design $40,741 

Conduct Site Visits to States and Local Workforce Areas $97,116 

Conduct Analysis of Large Scale Existing ETA Data (WIASRD 

Database) $45,512 

Design and Conduct Survey with Veteran and Non-Veteran 

Customers of One-Stop Career Centers $159,994 

Analyze/Synthesize Survey, Site Visit, and Database Analysis Results $82,791 

Prepare Final Report $60,773 

Brief ETA on Study Findings $12,911 

Total Study Costs $499,837 

15. Explain the reasons for any program changes or adjustments reported in Items 

13 or 14 of the OMB Form 83-I. 

This is a new request. 

16. For collections of information whose results will be published, outline plans for 

tabulation and publication. Address any complex analytical techniques that will be 

used. Provide the time schedule for the entire project, including beginning and end 

dates of the collection of information, completion of report, publication dates, and 

other actions. 

The survey analysis will focus on taking information collected through the 

surveys and presenting it in summary formats that allow ETA, veterans organizations, 

and other interested parties to quickly grasp the views of veteran versus non-veterans 

with respect to their experiences in using One-Stop Career Centers. We will use tables, 

charts and graphs to illustrate the results. A statistical software package such as SAS, 

SPSS-PC, or Stata will be used to conduct the analyses. Our analysis will also integrate 

the findings from other data collection activities to provide a comprehensive assessment 

of POS implementation in the One-Stop Career Center system, including interviews with 

Final Report -- Evaluation of the POS Requirement Page 174 
veterans’ organizations, site visits to states and local workforce agencies, and analyses of 

administrative record data maintained on exiters from the Workforce Investment Act 

(WIA). 

The survey analysis will take place in April and May 2010, immediately after the 

survey is completed. 

Once the survey results are analyzed and these results are fully integrated with 

results from other data collection activities, a final report will be developed and finalized 

by June 2010. The final report will present results from the survey, and synthesize results 

with the other qualitative and quantitative analyses conducted under the evaluation effort. 

The final report, which will be submitted in Microsoft Word and PDF formats, will 

contain an executive summary, objectives of the study, the evaluation methods used, 

analyses of the survey, site visits, and large-scale data analyses (of WIASRD database), 

and related findings, conclusions, and recommendations. We anticipate that the final 

report will include cross state/local area comparisons and examples highlighting 

particularly successful models/practices for effectively serving veterans within a OneStop Career Center setting. Finally, the key findings of the study will be presented in an 

oral briefing for ETA staff. 

17. If seeking approval to not display the expiration date for OMB approval of the 

information collection, explain the reasons that display would be inappropriate. 

We will display or cite the OMB approval number and expiration date. 

18. Explain each exception to the certification statement identified in Item 19, 

“Certification for Paperwork Reduction Act Submissions,” of OMB Form 83-I. 

There are no exceptions to the certification statement. 

Final Report -- Evaluation of the POS Requirement Page 175 
 

B. COLLECTIONS OF INFORMATION EMPLOYING STATISTICAL 

METHODS 

B1. Respondent Universe and Sampling Methods 

Describe (including a numerical estimate) the potential respondent universe and any 

sampling or other respondent selection methods to be used. Data on the number of 

entities (e.g., establishments, State and local government units, households, or 

persons) in the universe covered by the collection and in the corresponding sample 

are to be provided in tabular form for the universe as a whole and for each of the 

strata in the proposed sample. Indicate expected response rates for the collection as 

a whole. If the collection had been conducted previously, include the actual response 

rate achieved during the last collection. 

The target population for this survey is adults (both veterans and non-veterans) 

who use One-Stop Career Centers funded by the Department of Labor in the states of 

Alaska, California, Florida, Kansas, New Jersey, Ohio, and Virginia. The objective is to 

select a representative probability sample of both veterans and non-veterans in each of 

the seven states. 

The sampling frame for the selection of veterans and non-veterans will be the list 

provided by state agencies overseeing the One-Stop Career systems in each state. The 

sampling frame will be WIA Adult and Dislocated Worker Program exiters for a sixmonth period prior to the administration of the survey, who received WIA intensive 

and/or training services provided by the One-Stop Career Center system. 

We propose to select a sample of 1,000 veterans and 500 non-veterans in total 

from the seven states. With an 80% response rate, a sample of 800 veterans and 400 nonveterans will be the expected number of completed interviews. The total sample of 

veterans will be allocated to each of seven states in proportion to the number of veterans 

in that state who used the One-Stop-Career Center and similarly the number of nonveterans will be allocated in proportion to the number of non-veterans using the Center. 

Table 1 shows the population and sample sizes for the seven states. 

The expected response rate is 80 percent. This data collection has not been 

previously conducted. The expected response rate is based on DOL/ETA’s minimum 

response rate for the American Customer Satisfaction Index (ACSI) survey, which was 

used to meet the customer satisfaction measurement requirements under the Workforce 

Investment Act. Similar to the proposed survey, the ACSI survey was a telephone survey 

of WIA Title I-B participants. As set forth in its guidance to states for the ACSI survey, 

DOL/ETA required states conducting this survey to obtain a minimum of a 70 percent 

response rate: “The minimum response rate is 70 percent. The response rate is 

calculated as the number of respondents with complete customer satisfaction information 

divided by the total number in the sampling frame. A survey is considered complete 

Final Report -- Evaluation of the POS Requirement Page 176 
 

 

 

 

 

 

 

 

 

 

 

 

 

	 

	 

	 

	 

	 

	 

where valid answers are provided by respondents for each of the core questions outlined 

by ETA.”81 

TABLE 1: POPULATION AND SAMPLE SIZES FOR THE SEVEN STATES 

FOR THE PRIORITY OF SERVICE (POS) SURVEY OF VETERANS AND NONVETERANS 

No. State 

Veterans Non-veterans Total 

Population Sample

(2007) 

Sample Population 

(2007) 

Sample 

1 Alaska 86 23 2,518 23 46 

2 California 2,228 589 20,678 230 819 

3 Florida 438 116 9,069 93 209 

4 Kansas 71 20 1,283 15 35 

5 New Jersey 258 68 4,514 44 112 

6 Ohio 470 124 6,785 65 189 

7 Virginia 226 60 2,685 30 90 

Total 3,777 1,000 47,532 500 1,500 

Note: 2007 population is based on the number of WIA Adult and Dislocated Worker exiters in PY 2007 

receiving intensive or training services, as reported by states in the Workforce Investment Act Standardized 

Record Data (WIASRD) data system. 

Other guidance to states for the conduct of the ACSI survey included the 

following provisions: 

	 Participant customer satisfaction responses must be collected by way of telephone 

interviews; 

	 Participants should be contacted as soon as possible on or after the last expected 

service date and no later than 60 days after the closure date. Closure date is 

another term for the last expected service date; 

	 States must complete a minimum of 500 surveys during the program year to 

81 U.S. Department of Labor, “Guidance on Capturing Satisfaction Results: Using the American Customer 

Satisfaction Index to Measure Customer Satisfaction” (Guidance expired February 28, 2009). 

Final Report -- Evaluation of the POS Requirement Page 177 
 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

accurately assess performance on the ACSI; 

	 If sampling is used, states must randomly select participants to obtain the desired 

number of completed surveys -- states are required to determine the appropriate 

sample sizes and sampling percentages using the required response rate and the 

required number of completed interviews; the sampling methodology used to 

select potential respondents for the surveys must ensure the consistent random 

selection of a sample of participants eligible for the surveys. 

	 A letter in advance of the survey should be sent out informing the customer that 

he or she can expect to receive a telephone call about his or her satisfaction with 

the services; states should place a phone number on the letter, suggesting that 

customers call if they need help or call if their phone numbers changed; 

	 Attempts must be made to contact all eligible participants in the sample to avoid 

introducing bias, with a minimum of five follow-up attempts is required, 

involving various times of the day before closing the record; 

	 Respondents must be told that responding to the survey is voluntary and that the 

information they provide will be kept confidential; and 

	 The interview for the ACSI survey should be limited to 15 minutes or less. 

Through the survey software, we will be able to track response rate our survey. 

We anticipate a response rate of 80 percent, which is slightly above the (minimum) 70 

percent response rate required of states in the ACSI survey. The slightly higher response 

rate (versus the ACSI survey) is expected because we plan (1) to provide respondents 

with an additional method for responding to the survey – respondents will be able to 

respond by telephone (as is the case of the ACSI survey) or to an Internet-based survey 

application; and (2) up to 20 calls will be made to each individual in the sample (versus a 

total of five calls required under the ACSI survey). It is also important to note that the 

70 percent response rate for the ACSI survey was a minimum response rate required of 

states (which state could exceed).82 

2. Describe the procedures for the collection of information including: 

Statistical methodology for stratification and sample selection, 

Estimation procedure, 

Degree of accuracy needed for the purpose described in the justification, 

Unusual problems requiring specialized sampling procedures, and 

Any use of periodic (less frequent than annual) data collection cycles to reduce 

burden. 

82 See B.3. below for additional details about steps to be taken to ensure a high response rate to the survey. 

Final Report -- Evaluation of the POS Requirement Page 178 
 

 

 

For the selection of veterans and non-veterans in each state, the population of 

veterans and non-veterans will be stratified by gender creating four strata for sample 

selection. The required sample of veterans will be allocated to each of the two gender 

strata in proportion to the number of eligible male and female veterans in the state. The 

allocation is shown below. Let Nh be the number of veterans in the population in 

state h . Let Nhm be the number of males and Nhf be the number of females. Let nh be 

the allocated sample that is to be selected in state h . Let the number of male veterans and 

female veterans to be selected in state h be nhm and nhf respectively. We 

N Nhf have n n  hm  nhf . Under proportional allocation, nhm  nh 

hm and nhf  nh . Nh Nh 

We expect that the veteran sample will be predominantly male whereas this may not be 

the case for non-veterans. Therefore, the allocation of the sample of non-veterans will 

not be proportional to male and female non-veterans in the population. Male non-veterans 

will be oversampled. The allocation of the sample of non-veterans to the two strata is 

shown below. Let mh denote the sample size of non-veterans allocated to state h in 

proportion to the number of non-veterans in the state. Let m and denote the hm mhf 

number of male and female non-veterans in the sample respectively. These are computed 

by taking 

N N hm hf m  m and m  m . hm h hf h Nh Nh 

The allocation may be modified based on the actual distribution of non-veterans in each 

state at the time of sample selection. A simple random sample of veterans will be 

selected in each of the two strata in each state. Similarly, a simple random sample of 

non-veterans will be selected in each of the two strata in each state. 

For producing population-based estimates, each responding veteran and nonveteran will be assigned a sampling weight. This weight combines a base sampling 

weight and an adjustment for nonresponse. The base weight will be the reciprocal of the 

probability of selection. The response rates in each stratum will be monitored during data 

collection. As far as possible nonresponse adjustment to the sampling weights of 

respondents will be done within a stratum. 

N The base sampling weight for a responding male veteran in state h is hm . Out of the 

nhm 

n male veterans in the sample, let the number of respondents be , the number of hm nhmr 

nonrespondents be n and the number not considered eligible for the survey be hmnr 

nnmne . 

The nonresponse-adjusted weight for the responding male veterans in state h is 

Final Report -- Evaluation of the POS Requirement Page 179 
 . N (nhmr n hm hmnr )

n n hm hmr 



 

 

 

Similar adjustments will be made in other strata. In some states, collapsing strata by 

gender will be considered if the number of respondents in the stratum is zero or very 

small relative to the sample size. The nonresponse-adjusted weights will be used for all 

statistical analyses. 

Variance estimation based on stratified random sampling design used for the selection of 

veterans and non-veterans. We propose to use SUDAAN software for computing 

estimates and standard errors. 

The sample of completed interviews with 800 veterans will provide estimates of 

population percentages with a margin of error no greater than plus or minus 3.5 

percentage points at the 95% confidence level. The sample of completed interviews with 

400 non-veterans will provide estimates of population percentages with a margin of error 

no greater than plus or minus 4.9 percentage points. If we are comparing the veterans 

and non-veterans, then with a sample of 1,000 veterans and 500 non-veterans the 

minimum detectable difference with 80% power will be 8.5 percentage points when we 

do a two-sided statistical test at 5% level of significance. It is assumed that the percentage 

for one of the groups is 50%. 

We have two populations, one of veterans and the other non-veterans. We are 

selecting stratified simple random samples from each of these populations, and we 

compute estimates and variance estimates using SUDAAN software. We have given 

below the mathematical formula for computing the variance of means and totals. 

Let H denote the number of strata created for sample selection. Let Nh denote 

the number of veterans in the population in stratum h . Let nh denote the number of 

veterans in the sample (completes) in stratum h . Let N denote the total population 

H 

veterans over all strata. That is 

h 1 

interest for veteran i in the sample. The estimator of the population mean of y is given 

by 

H 

N  N Let denote the value of a characteristic of h . yhi 



Nh yh 

h 1 

where yh is the sample mean based on sample of nh veterans in stratum h . The variance 

estimator for estimating the variance of yst is given by 

H 2 

h 

h 1 

yst  N 

1 Nh 

2 (1 fh ) s 

v( y st )  N 2 nh 



Final Report -- Evaluation of the POS Requirement Page 180 
 

 

 

 

 

 


 
 


 


 
 


n where fh is the sampling fraction in stratum h and is equal to h and sh 

2 is the sample Nh 

variance in stratum h and is given by nh 

i 1 

i

th where y is the value of the observation in stratum h . hi 

The estimator for estimating population total of y is given by 

H 



yh )

2 ( yhi 
 2 

sh  nh 1 

Yˆ
 

h 1 

and the variance estimator is 

H 2 



 Nh yh 

s 

v(Yˆ) h 

h 1 



No specialized sampling procedures are required to correct any unusual problems. 

This is a one-time data collection effort and will not require periodic data collection 

cycles. 

3. Describe methods to maximize response rates and to deal with issues of nonresponse. The accuracy and reliability of information collected must be shown to be 

adequate for intended uses. For collections based on sampling, a special justification 

must be provided for any collection that will not yield “reliable” data that can be 

generalized to the universe studied. 

In order to attain the highest possible response rate, a study strategy with the 

following major components will be followed. Sample customers will receive a 

personalized advance letter explaining that he/she was selected to participate in the 

survey and the purpose of the survey. Sample customers will also have the choice of 

completing the survey online. The initial contact script has been carefully developed and 

refined to be persuasive and appealing to prospective respondents. Interviewers will 

identify survey sponsorship as the Department of Labor. The interviewing content and 

skip patterns have been carefully designed to only ask relevant questions depending on 

the respondent's answers to previous questions to reduce respondent burden. Only 

thoroughly trained and experienced interviewers, highly motivated and carefully 

monitored, will conduct the interviewing. Interviewers will be trained on how to 

overcome initial reluctance, disinterest or hostility during the contact phase of the 

interview. The contractor will make up to 20 call attempts to ring-no-answer numbers, 

and shall leave an approved message on answering machines according to study 

protocol.83 

83 Study strategies to maximize response rates based on industry best practices. See Dillman, D (2009) Mail 

and Telephone Surveys. The Total Design Method. New York: Wiley; Groves and Couper (1998) 

Final Report -- Evaluation of the POS Requirement Page 181 

2  N
 (1 f ) . h h 

nh 
 

The CATI program will record all refusals and interview terminations in a 

permanent file, including the nature, reason, time, circumstances, and the interviewer. 

This information will be reviewed on an ongoing basis to identify any problems with the 

contact script, interviewing procedures, questionnaire items, etc. Also, the refusal rate by 

interviewer will be closely monitored. Using these analyses, a “Conversion Script” will 

be developed. This script will provide interviewers with responses to the more common 

reasons given by persons for not wanting to participate in the survey. The responses are 

designed to allay concerns or problems expressed by the telephone contacts. 

The contractor will implement a refusal conversion plan in which each person 

selected for the sample who refuses to participate will be re-contacted by the contractor 

approximately one-to-two weeks following the refusal. The contractor will use the 

Conversion Script in an attempt to convince the individual to reconsider and participate 

in the survey. Only the most experienced and skilled interviewers will conduct the 

refusal conversions. Exceptions to refusal conversion will be allowed on an individual 

basis if for some reason the refusal conversion effort is deemed inappropriate. 

There will be maintenance and regular review of outcome data in the reporting 

file so that patterns and problems in both response rate and production rates can be 

detected and analyzed. Meetings will be held with the interviewing supervisory staff and 

the study management staff to discuss problems with contact and interviewing procedures 

and to share methods of successful persuasion and conversion.

 The sampling methods described above will yield reliable data that can be 

generalized to the universe studied (Adult One-stop Career Center customers in the seven 

states). 

Non-Response Analysis 

The actual difference between respondents and non-respondents on estimates will 

not be known. In this instance, nonresponse bias is typically explored using indirect 

measures. Should this study not reach the 80% response rate expected, we will complete 

nonresponse analysis using various demographic characteristics. This comparison of the 

characteristics of the completed and non-completed cases from the sample will be 

conducted to determine whether there is any evidence of significant non-response bias in 

the completed sample. 

The sample elements will include age, gender, ethnicity, race, veteran status, 

employment status prior to program participation, highest school grade completed, and 

services received (e.g., intensive and training services). A comparison of the 

characteristics of all cases in which an interview had not been completed with those that 

had been completed can be employed using these variables. Analysis of the 

Nonresponse in Household Survey, New York, John Willey & sons (p.21); Hox, J.J and De Leeuw, E. 

(194) A Comparison of Nonresponse in Mail, Telephone and Face-to-Face Surveys – Applying Multilevel 

Modeling to Metaanalysis. Quality and Quantity, 28, 329-344. 

Final Report -- Evaluation of the POS Requirement Page 182 
 

 

nnr B( y )  ( y  y ) r r nr n 

 

 

characteristics of respondents and non-respondents to the survey should identify whether 

there is any evidence of significant non-response bias in the most likely areas: age, 

gender, ethnicity, race, veteran status, employment status prior to program participation, 

highest school grade completed, and services received (e.g., intensive and training 

services). This analysis will suggest whether any weighting or other statistical adjustment 

needs to be made to correct for non-response bias in the completed sample.84 

We will keep track of response rates by state, veteran and non-veteran, and gender. 

During data collection, if we find that in some strata response rates are low, every effort will be 

made to increase the response rates in those strata to reduce the nonresponse bias in overall 

estimates. We plan to keep track of types of nonrespondents like refusals along with reasons for 

refusal, unable to contact, unable to respond etc. The type of nonresponse and reasons for 

nonresponse might help in nonresponse bias analysis. The analysis will be according to the OMB 

guidelines. 

The size of the nonresponse bias in the sample respondent mean of a characteristic of 

interest is a function of the nonresponse rate and the difference between the respondent and 

nonrespondent population means. An estimate of the bias in sample mean based only on the 

respondents is given by 

where yr is the mean based only on respondents, ynr is the mean based on nonrespondents, n is 

the sample size and nnr is number of nonrespondents. 

If there are several attempts to collect data, then, we will keep track of the respondents at 

each wave and compute the estimates based on respondents at the end of each wave. These 

estimates will be compared, and the difference in the estimates at the end of each wave will 

provide the estimated size and direction of the bias in the estimates. For example, if we have 4 

waves of data collection, then we compute four means y1, y2, y3 , and y4 based on cumulative 

increasing sample sizes n1, n2, n3, and n4 . We will look at differences ( y1  y2 ), ( y2  y3 ), 

( y3  y4 ) where y4 is the final estimates based on all n4 respondents. These differences might 

help to assess the size of the difference between y4 and the sample mean we would have obtained 

if we had 100% response to the survey. If there is no large difference in the estimates based on 

early respondents and respondents after repeated attempts, this may be an indication that the bias 

in estimates is not large. We will also compare initial respondents with initial refusals with 

respect to gender, race and age. We will also look at the mean of respondents who originally 

refused to respond to the surveys but later responded (refusal conversions). 

84 The use of indirect measures such as demographics to conduct nonresponse analysis is supported in the 

literature. See O’Neil, G. and J. Dixon (2005). Nonresponse bias in the American time Use Survey. ASA 

Section in Survey Research Methods (p2958-2966). [www.bls.gov/tus/papersandpubs.htm]; Groves, R.M. 

(2006). Nonresponse Rates and Nonresponse Bias in Household Surveys. Public Opinion Quarterly, 70, 

646-675.; and Kasprzyk, D and Geisbreecht (2003). Reporting Sources of Error in U.S. Government 

Surveys. Journal of Official Statistics, 19(4), pp 343-363. 

Final Report -- Evaluation of the POS Requirement Page 183 
 

We plan to make comparisons between respondents and nonrespondents available in the 

7 sampling frames in the 7 states that the survey is being conducted. Since gender has been used 

as a stratification variable, the comparison of respondents and nonrespondents by gender will 

show whether proportionately more male veterans are responding than female veterans and also 

whether more male non-veterans than female non-veterans are responding. We will also look at 

some frame characteristics like age and race for both respondent and nonrespondent veterans and 

non-veterans if these data are available on the sampling frame obtained from different states. If 

there are substantial differences in response rates for race and/or ethnicity groups, then we will 

examine survey data to see whether there are differences in survey responses between 

respondents in different race/ethnicity groups or different age groups. This analysis does not give 

any information on whether the respondents and nonrespondents within a race/ethnicity group or 

age groups are similar. But if there are differences between these groups, a poststratification 

adjustment by race or age within each stratum may reduce bias due to nonresponse assuming that 

within these groups respondents are similar to nonrespondents. Depending on sample sizes in 

these groups, we may use poststratification adjustment within strata. Variance estimation will 

then be done using the poststratification option. 

There is no known data from an external source with which we can compare the 

estimates obtained from the survey based on respondents and to assess the bias based on the 

difference between the known value and the estimate from the survey. We will examine the use 

of multivariate modeling of response depending on the availability of respondent and 

nonrespondent frame variables on the state sampling frames of different states. 

4. Describe any tests of procedures or methods to be undertaken. Testing is 

encouraged as an effective means of refining collections of information to minimize 

burden and improve utility. Tests must be approved if they call for answers to 

identical questions from 10 or more respondents. A proposed test or set of test may 

be submitted for approval separately or in combination with the main collection of 

information. 

A pretest will be conducted of 9 people (veterans and non-veterans) who used the 

One-Stop-Career Center, to ensure the CATI script and online version are functioning 

properly and the data is being collected accurately. The pretest will consist of the entire 

survey process from sample management to tabulation of results. Any problems 

encountered during the pretest of the questionnaire will be resolved before the survey is 

put into the field. 

5. Provide the name and telephone number of individuals consulted on statistical 

aspects of the design and the name of the agency unit, contractor(s), grantee(s), or 

other person(s) who will actually collect and/or analyze the information for the 

agency. 

The following individuals have reviewed technical and statistical aspects of 

procedures that will be used to conduct the Telephone Survey Of Veteran And NonVeteran Customers Of One-Stop Career Centers: 

Final Report -- Evaluation of the POS Requirement Page 184 
 

 

 


 


 


 


 


 


 

Statistical aspects of the design: 

K.P. Srinath 

Principal Associate 

Abt Associates Inc. 

4550 Montgomery Avenue 

Bethesda, MD 20814 

(301) 634-1836 

KP_Srinath@abtassoc.com
 

Technical aspects of the design: 

Cheryl L. Lampkin, Ph.D. 

Senior Analyst 

Abt SRBI, Inc. 

8403 Colesville Road; Suite 820 

Silver Spring, MD 20910 

(301) 608-3883 

lampkin@srbi.com
 

The agency responsible for receiving and approving contract deliverables is: 

Employment and Training Administration 

U.S. Department of Labor 

Frances Perkins Building 

200 Constitution Avenue, NW
 

Washington, DC 20210 

Person Responsible: Richard Muller, COTR 

202-693-3680 

Muller.Richard@dol.gov 

All data collection and analysis will be conducted by: 

Abt Associates Inc. 

55 Wheeler Street 

Cambridge, MA 02138 

Person Responsible: Glen Schneider, Principal Associate 

Telephone: 617-349-2471 

E-mail: glen_schneider@abtassoc.com 

Final Report -- Evaluation of the POS Requirement Page 185 
 

 

Capital Research Corporation 

1910 N. Stafford Street 

Arlington, VA 22207 

Person Responsible: John Trutko, Co-Principal Investigator 

 Telephone: 703-522-0885 

E-mail: jtrutko@aol.com 

Johns Hopkins University 

Institute for Policy Studies 

3400 Charles Street 

Baltimore, MD 21218 

Person Responsible: Burt Barnow, Co-Principal Investigator 

 Telephone: 410-516-5388 

 E-mail: barnow@jhu.edu 

Final Report -- Evaluation of the POS Requirement Page 186 
 

 

 

- - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - -

- - 

 

Abt SRBI, INC. STUDY NUMBER 4842 

275 SEVENTH AVENUE, SUITE 2700 October 21, 2009 

NEW YORK, NEW YORK 10001 OMB No.:

 Exp. Date:

 Version 1 

TELEPHONE SURVEY OF VETERAN AND NON-VETERAN 

CUSTOMERS OF ONE-STOP CAREER CENTERS 

TELEPHONE NUMBER: ___ ___ ___ - ___ ___ ___ - ___ ___ ___ ___ 

Interviewer: ________________________________________ 

Interview Date: ____/____/ 

CONTACT INFORMATION: 

 Name

 Telephone Number 

Date of visit 

 Sample version 

Introduction 

S1. Hello, may I speak to [CONTACT PERSON]? I am calling on behalf of the Department of 

Labor. I am with Abt SRBI, a national research firm, and we are conducting a 20-minute 

survey of recent customers of a government funded [READ IN CENTER NAME]. 

1 Speaking 

2 New person comes to phone [Skip to S3] 

3 Not available – schedule call back [SCHEDULE CALL BACK] 

9 (vol) Refused [THANK AND TERMINATE THE INTERVIEW] 

S2. Participation in this quick customer satisfaction survey is completely voluntary. Your 

individual answers will be kept completely confidential and will not affect any current or future 

access to the [READ IN CENTER NAME] services in any way. The information you provide 

will help us evaluate and improve the services provided by the [READ IN CENTER NAME]. 

[Skip to Q1] 

S3. Hello, I am calling on behalf of the Department of Labor. I am with Abt SRBI, a national 

research firm, and we are conducting a 20-minute survey of recent customers of a government 

funded [READ IN CENTER NAME]. Participation in this quick customer satisfaction survey 

is completely voluntary. Your individual answers will be kept completely confidential and will 

Final Report -- Evaluation of the POS Requirement Page 187 
not affect any current or future access to the [READ IN CENTER NAME] services in any 

way. The information you provide will help us evaluate and improve the services provided by 

the [READ IN CENTER NAME]. 

Q1. According to our records, you visited the [READ IN CENTER NAME] between [READ 

IN: Date and Date] to get help finding a job or to get free vocational training? Is that right? 

1 Yes 

2 Yes visited, but not sure of the exact date 

3 No, never been [PROBE, IF STILL NO, NOTE COMMENTS, THANK AND 

TERMINATE THE INTERVIEW] 

8 (vol) Don’t Know [THANK AND TERMINATE THE INTERVIEW] 

9 (vol) Refused [THANK AND TERMINATE THE INTERVIEW] 

Q2. What month and year did you first visit the One-Stop?

____# MONTH (1-12) 18 = DK; 19 = RF 

___# YEAR (1998-2009) 998=DK, 999=RF 

Q3. Are you still using services that were provided by the center or that you were referred to 

and enrolled in off site? 

1 Yes (SKIP TO Q4) 

2 No 

8 (vol) Don’t Know 

9 (vol) Refused 

Q3A. What month and year did you stop using services that were provided by the 

center or that you were referred to and enrolled in off site?

___# MONTH (1-12); 18 = DK; 19 = RF 

___# YEAR (1998-2009) 998=DK, 999=RF 

Q4. When you first came to the One-Stop, were you asked if you are a veteran?

 1 Yes 

2 No 

8 (vol) Don’t Know 

9 (vol) Refused 

Q5. When you first came to the One-Stop, were you asked if you are the spouse of 

 a veteran?

 1 Yes 

2 No 

8 (vol) Don’t Know 

9 (vol) Refused 

[CATI: IF Q4 = 1 OR Q5 = 1 ASK Q6. OTHERS SKIP TO Q7.] 

Q6. Within how many hours of first entering the One-Stop were you asked about 

your veteran status? 

Final Report -- Evaluation of the POS Requirement Page 188 
 

 

 

 

______# HOURS (0 = immediately; 1 = 1 hour or less; 2 = 2 hours; 3 = 3 hours; 4 = 4 

hours; 5 = 5 hours or more; 8 = Don’t Know; 9 = Refused) 

Q7. Are you a veteran of the armed forces? 

1 Yes 

2 No 

8 (vol) Don’t Know 

9 (vol) Refused 

Q8. Are you the spouse or widow/widower of a veteran of the armed forces? 

1 Yes 

2 No 

8 (vol) Don’t Know 

9 (vol) Refused 

Q9. Which of the following services did you receive? [MULTIPLE MENTION] 

Y N DK R 

1 Orientation to services 1 2 8 9 

2 Self-service use of resource room with computers 

 and reference materials 1 2 8 9 

3 Staff-assisted use of resource room with computers 

 and reference material 1 2 8 9 

4 Assessment services (i.e., tests to find out what career might 

 be best for you) 1 2 8 9 

5 Counseling services 1 2 8 9 

6 Case management 1 2 8 9 

7 Career exploration 1 2 8 9 

8 Resume preparation assistance 1 2 8 9 

9 Job search assistance/coaching on how to look for/find a job 1 2 8 9 

10 Occupational skills job training 1 2 8 9 

11 Job placement or job referral 1 2 8 9 

[If no "Yes" selection for Q9.1-Q9.13, skip to Q10; Q9A will be asked for each "yes" in Q9] 

We would like you to rate the quality of the services that you received on a scale of 1 to 5, where 1 

indicates that the services were very poor and 5 indicates that the services were outstanding. 

Q9A. How would you rate...[Read in: Q9 "yes"; continue for each "yes" selection 

in Q9] .. (would you give it a 1, 2, 3, 4, or 5)? (Repeat scale as needed) 

1 1 

2 2 

3 3 

4 4 

5 5 

8 (vol) Don't Know 

9 (vol) Refused 

Final Report -- Evaluation of the POS Requirement Page 189 
 

 

 _______________________________________ 

 _______________________________________ 

 

Q10. Overall, thinking about your whole experience, on a scale from 1 to 5 where 1 is completely 

unsatisfactory and 5 is completely satisfied, how would you rate your experience(s) with the 

One-Stop system? 

1 1 

2 2 

3 3 

4 4 

5 5 

8 (vol) Don’t Know 

9 (vol) Refused 

[If Q10 = 1 or 2 ask Q10a, else skip to Q11] 

Q10 A. Why did you give the One-Stop System a rating of [Read-in from Q10]?

 [RECORD RESPONSE VERBATIM] 

8 (vol) Don't know 

9 (vol) Refused 

[Skip to instructions before Q13] 

Q11. Where you offered all of the services you felt you needed? 

1 Yes (SKIP TO Q13) 

2 No 

8 (vol) Don’t Know (SKIP TO Q13) 

9 (vol) Refused (SKIP TO Q13) 

Q11A. What additional services would you have liked to receive or made available? 

[RECORD RESPONSE VERBATIM] 

8 (vol) Don’t Know 

9 (vol) Refused 

[Continue to Q13 if Q7 or Q8 = 1 (Yes); else skip to Q20] 

Q13. Do you believe you received preference or special treatment over some or all 

other One-Stop customers because of your veteran status? 

1 Yes, Some 

2 Yes, All (SKIP TO Q14) 

3 No (SKIP TO Q15) 

8 (vol) Don’t Know (SKIP TO Q15) 

9 (vol) Refused (SKIP TO Q15) 

Q14. Which of the following services or activities do you believe you received priority for 

because of your veteran status? 

Final Report -- Evaluation of the POS Requirement Page 190 
 

 

 

 

 

 _________________________ 

 

 

Y N DK R 

1 Quicker access to self-service resources 1 2 8 9 

2 Quicker access to staff assistance with computer and 

 reference material 1 2 8 9 

3 Priority or quicker access to workshops 1 2 8 9 

4 Priority or quicker access in receiving one-to-one 

 counseling/assessment 1 2 8 9 

5 Priority or quicker access in receiving vocational training 1 2 8 9 

6 Priority in receiving job listings or job referrals 1 2 8 9 

7 Other [RECORD SUBJECT’S RESPONSE 

VERBATIM] _________________________ 1 2 8 9 

Q15. Were you referred to special staff for veterans including the local Veterans’ 

Employment Representative (LVER) or Disabled Veteran Outreach Program (DVOP) 

staff, sometimes called “vet reps”? 

1 Yes 

2 No (SKIP TO Q18) 

8 (vol) Don’t Know (SKIP TO Q18) 

9 (vol) Refused (SKIP TO Q18) 

Q16. Did you receive services from the veteran representatives (DVOP/LVER) 

 staff? 

1 Yes 

2 No (SKIP TO Q18) 

8 (vol) Don’t Know (SKIP TO Q18) 

9 (vol) Refused (SKIP TO Q18) 

Q16A. What services? [RECORD SUBJECT’S RESPONSE VERBATIM] 

8 (vol) Don't Know 

9 (vol) Refused 

Q16B. How would you rate the services you received from the veteran 

representatives on a scale of 1 to 5, where 1 indicates that the services was 

very poor and 5 indicates that the service was outstanding? 

1 1 

2 2 

3 3 

4 4 

5 5 

8 (vol) Don’t Know 

9 (vol) Refused 

Q17. Which of the following statements best describes how you felt about the use of the 

veterans staff services versus the use of the One-Stop services? 

Final Report -- Evaluation of the POS Requirement Page 191 
 

 

_________________________ 

 

1. "I was steered to use the veterans staff services only." 

2. "I was steered to use the One-Stop services only." or 

3. "I was steered to use both the veterans staff services and the One-Stop services." 

8. (vol) Don't Know/Not Sure 

9. (vol) Refused 

Q18. Do you feel that you were given the first opportunity to view and apply for job 

openings listed at the Employment Service or One Stop because of your veteran status? 

1 Yes 

2 No 

8 (vol) Don’t Know 

9 (vol) Refused 

Q19. Do you feel that you were given priority for enrollment or placement in 

vocational classroom or on-the job-training because of your veteran status? 

1 Yes 

2 No 

8 (vol) Don’t Know 

9 (vol) Refused 

Q20. Do you have any other comments about your experience with the One-Stop 

system you would like to share with us? [RECORD RESPONSE VERBATIM] 

8 (vol) Don’t Know 

9 (vol) Refused 

Now, just a few last questions for statistical purposes... 

D1. INTERVIEWER: RECORD SEX IF KNOWN. IF NOT KNOWN, ASK: Are you...?

 1. Male 

2. Female 

D2. How old are you? 

1. Record age (18 to 97; 97=97+) 

98. (vol) Don't Know 

99. (vol) Refused 

D3. Do you consider yourself to be of Hispanic, Latino or of Spanish origin? 

1. Yes 

2. No 

8. (vol) Don’t know 

Final Report -- Evaluation of the POS Requirement Page 192 
 9. (vol) Refuse 

D4. Which of the following best describes you? (You may choose one or more.) 

1. American Indian or Alaska Native 

2. Asian 

3. Black or African American 

4. Native Hawaiian or Other Pacific Islander 

5. White 

6. Other Specify: __________________ 

8. (vol) Don’t know 

9. (vol) Refuse 

D5. What is the last year or grade of school you completed? 

1. Less than high school graduate 

2. High school graduate (GED) 

3. Some college 

4. Trade/technical/vocational training 

5. College graduate 

6. Post Graduate work/degree 

8. (vol) Don’t know 

9. (vol) Refuse 

D6. Which of the following categories best describes your total 2009 household income 

before taxes? Was it... 

1. Less than $25,000 

2. $25,000 to less than $35,000 

3. $35,000 to less than $50,000 

4. $50,000 to less than $75,000 

5. $75,000 to less than $100,000 

6. $100,000 or more 

8. (vol) Don’t know 

9. (vol) Refuse 

That concludes the interview. Thank you for participating. 

Final Report -- Evaluation of the POS Requirement Page 193