U.S. Department of Labor

Veterans’ Employment and 

Training Service

November 2016
TABLE OF CONTENTS

TABLE OF CONTENTS

TABLE OF CONTENTS .....................................................................................................................II

TAB 1: AGENCY ORGANIZATIONAL OVERVIEW .......................................................................... 1

Mission..........................................................................................................................................1

Authorizing Legislation ................................................................................................................1

Organizational Structure ...............................................................................................................2

Organizational Changes During the Past Eight Years..................................................................5

Key Leaders..................................................................................................................................5

TAB 2: 30/60/90 DAYS – STATE OF PLAY...................................................................................... 6

Key Meetings, Decisions, and Announcements ...........................................................................6

Key Agency Stakeholders.............................................................................................................6

TAB 3: INITIATIVES ....................................................................................................................... 8

Policy and Regulatory Issues........................................................................................................8

Major Grants and Contracts........................................................................................................10

Enforcement................................................................................................................................11

Audits and Reports......................................................................................................................12

Management................................................................................................................................13

Calendar......................................................................................................................................14

TAB 4: BUDGET ........................................................................................................................... 16

TAB 5: AGENCY PERFORMANCE................................................................................................. 20
TAB 1: AGENCY ORGANIZATIONAL OVERVIEW

1

TAB 1: AGENCY ORGANIZATIONAL OVERVIEW

Mission

The Veterans’ Employment and Training Service (VETS) directly supports the Department’s 

Strategic Goal 1: Prepare Workers for Better Jobs; and Strategic Objective 1.1: To advance 

employment opportunities for veterans through increased employer engagement and 

partnerships. 

VETS Mission: We prepare America's veterans, service members and their spouses, for 

meaningful careers, provide them with employment resources and expertise, protect their 

employment rights and promote their employment opportunities.

VETS Vision: We will be the nationally recognized leader in helping veterans, service members 

and spouses find good jobs.

VETS Core Values: Integrity, Commitment, Respect and Excellence 

Authorizing Legislation

The establishment of the position of Assistant Secretary of Labor for Veterans’ Employment and 

Training, the position of Deputy Assistant Secretary of Labor for Veterans’ Employment and 

Training, and the position of Regional Administrator at the six (6) regional offices are codified in 

38 U.S.C. § 4102A. The date of legislation establishing the Assistant Secretary of Labor for 

Veterans’ Employment and Training was October 17, 1980. 

The agency’s programs are authorized through 38 U.S.C. § 4100-4110 A, 4111, 4212, 4214 and 

4321-4327, the Uniformed Services Employment and Reemployment Rights Act of 1994 

(USERRA) (P.L. 103-353), the Stewart B. McKinney Homeless Assistance Act (P.L. 100-77), 

Section 168, VOW To Hire Heroes Act (P.L. 112-56) and the Workforce Innovation and 

Opportunity Act (P.L. 113-128). 

Legislation Links

• 38 U.S.C. Chapter 41, 42, 43: 

http://uscode.house.gov/browse/prelim@title38/part3&edition=prelim

https://www.dol.gov/vets/usc/vpl/usc38.htm

• The Uniformed Services Employment and Reemployment Rights Act of 1994 (USERRA) 

(P.L. 103-353): https://www.congress.gov/bill/103rd-congress/house-bill/995

• The Stewart B. McKinney Homeless Assistance Act (P.L. 100-77):

https://www.congress.gov/bill/100th-congress/housebill/558?q=%7B%22search%22%3A%5B%22100-77%22%5D%7D&resultIndex=1

• VOW To Hire Heroes Act of 2011 (P.L. 112-56): 

http://uscode.house.gov/statutes/pl/112/56.pdf

• The Workforce Innovation and Opportunity Act (WIOA) (P.L. 113-128): 

https://www.doleta.gov/WIOA/
TAB 1: AGENCY ORGANIZATIONAL OVERVIEW

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https://www.congress.gov/bill/113th-congress/housebill/803?q=%7B%22search%22%3A%5B%22113-128%22%5D%7D&resultIndex=1

Organizational Structure

VETS has approximately 250 employees distributed across a National Office and six subordinate 

regional offices. The Office of National Programs and the Office of Field Operations are each led 

by an SES Director. The six regional offices are each led by a GS-15 Regional Administrator. The 

Office of Administration, Management, and Budget, and the Office of Strategic Outreach are each 

headed by a GS-15 Director.

Organizational Chart

Assistant Secretary

Mike Michaud

(PAS)

Deputy Assistant 

Secretary for Operations

Sam Shellenberger 

(Career SES)

Deputy Assistant 

Secretary for Policy

Teresa Gerton

(Non-Career SES)

Office of Agency Budget & 

Administration

Maurice Buchanan

Office of Grants/NVTI

Maria Temiquel

Office of National 

Programs

Vacant

(Career SES)

Office of Compliance/TAP

Kenan Torrans

Regional Offices

Boston – Michael Colman

Philadelphia – Tim Crowley

Atlanta – John Savage

Chicago – Heather Higgins

Dallas – Robert Creel

San Francisco – Albert Kwok

Office of Field Operations

Bill Metheny (Career SES)

George Triebsch (Deputy)

(Career SES)

Office of Strategic 

Outreach

Tim Green

Chief of Staff

Mike Bocchini

(Non-Career)

Senior Advisor

Gordon Burke

(Career SES)

Special Assistant

Jessica Houghton

(Non-Career)

Office of National Programs (ONP)

The Director, ONP, a career SES, serves as VETS’ principal advisor regarding VETS programs, 

which include compliance activities related to the Uniformed Services Employment and 

Reemployment Rights Act (USERRA); compliance activities related to Veterans’ Preference;

activities, processes, and oversight related to VETS grant programs including, but not limited to the 

Jobs for Veterans State Grant (JVSG) and the Homeless Veterans’ Reintegration Program 

(HVRP); activities, processes, and oversight related to VETS’ national program contracts including, 

but not limited to the Transition Assistance Program (TAP) for separating service members and the 

National Veterans’ Training Institute (NVTI).
TAB 1: AGENCY ORGANIZATIONAL OVERVIEW

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Office of Field Operations (OFO)

The Director, OFO, a career SES, directs the six regional offices. The VETS’ regional offices 

provide a broad range of management and administrative services that enable the VETS Assistant 

Secretary to successfully perform the VETS mission. There are six regions – Boston, Philadelphia, 

Atlanta, Chicago, Dallas, and San Francisco. Primary regional functions include ensuring the 

operation, implementation, and promotion of all veterans’ employment and training programs and 

services within the region; providing oversight and training to VETS investigative staff; and 

coordinating, monitoring, and providing technical assistance to States and competitive grantees for 

veterans’ employment and training programs. The regional offices have the following geographic 

coverage:

• Boston: Connecticut, Maine, Massachusetts, New Hampshire, New Jersey, New York, Rhode 

Island, Vermont, Virgin Islands and Puerto Rico.

• Philadelphia: Delaware, District of Columbia, Maryland, Pennsylvania, Virginia, and West 

Virginia. 

• Atlanta: Alabama, Florida, Georgia, Kentucky, Mississippi, North Carolina, South Carolina, 

and Tennessee.

• Chicago: Illinois, Indiana, Iowa, Kansas, Michigan Minnesota, Nebraska Ohio, and Wisconsin.

• Dallas: Arkansas, Colorado, Louisiana, Montana, New Mexico, North Dakota, South Dakota, 

Oklahoma, Texas, Utah, and Wyoming.

• San Francisco: Alaska, Arizona, California, Hawaii, Idaho. Nevada, Oregon, Washington, and 

U.S. territories in the Pacific. 

Office of Agency Management and Budget (OAMB) 

The Director, a GS-15, serves as the principle advisor to the Deputy Assistant Secretary of 

Operations and Management on the following management activities: budget formulation, 

execution, tracking and evaluation; purchasing and contract procurements; internal controls; human 

resources and executive services; organizational performance measurement; information 

technology; and agency-wide administrative operations.

Office of Strategic Outreach (OSO)

The Director, a GS-15, sets and guides the strategy for all communications, legislative testimony, 

congressional inquiries, website content and public messaging to consistently articulate the VETS 

mission. OSO also serves as the information, outreach and public affairs contact with employers, 

veterans’ service and military organizations, unions, and the print and broadcast media for all 

matters relating to the programs and activities carried out by VETS. 

 
TAB 1: AGENCY ORGANIZATIONAL OVERVIEW

4

Workforce At-A-Glance
TAB 1: AGENCY ORGANIZATIONAL OVERVIEW

5

Organizational Changes During the Past Eight Years

• Eliminated the Director, Office of Performance & Evaluation

o This performance evaluation position became a subordinate leader position in the Office of 

Agency Management and Budget 

• Eliminated the Director of Legislative Affairs & Outreach

o This outreach position became a direct report and advisor to the Deputy Assistant Secretary 

for Policy as the Director, of Strategic Outreach 

• Created a Deputy Assistant Secretary for Policy (non-career)

• Created a SES Director, Office of National Programs position

o Assumed oversight of VETS grants and compliance programs 

• Created a SES Director, Field Operations position

o Assumed oversight of six Regional offices

• Created a GS-15 Director of Strategic Outreach 

o Became a direct report to Deputy Assistant Secretary for Policy

• Created Six Regional Veteran Employment Coordinators inside OSO 

• What was formerly referred to as “the Atlanta Regional Lead Center” (ARLC), which oversees 

data management for veterans’ preference and USERRA, was transferred from the Atlanta 

Region to ONP’s Compliance and Investigation Division (CID) 

Key Leaders

SES Leadership Positions –

• Michael Michaud, Assistant Secretary (Non-career)

• Teresa Gerton, Deputy Assistant Secretary for Policy (Non-career)

• Sam Shellenberger, Deputy Assistant Secretary for Operations (Career)

• William Metheny, Director of Field Operations (Career)

• Vacant, Director of National Programs (Career)

• George Triebsch, Deputy Director of Field Operations (Career)

• Gordon Burke, Senior Advisor to Deputy Assistant Secretary for Policy (Career) 

Non-SES Leadership Positions –

• Michael Bocchini, Chief of Staff (Non-career)

• Maurice Buchanan, Director of Agency Management and Budget

• Tim Green, Director of Strategic Outreach

• Maria Temiquel, Deputy Director for Grants/National Veterans Training Institute

• William Torrans, Deputy Director for Compliance/Transition Assistance Program

• John Savage, Atlanta Region Director

• Michael Colman, Boston Region Director

• Heather Higgins, Chicago Region Director

• Robert Creel, Dallas Region Director

• Timothy Crowley, Philadelphia Region Director 

• Alfred Kwok, San Francisco Region Director
TAB 2: 30/60/90 DAYS – STATE OF PLAY

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TAB 2: 30/60/90 DAYS – STATE OF PLAY

Key Meetings, Decisions, and Announcements

January 2017

• Nothing Significant to Report.

February 2017 

• IAW Section 4110 of Title 38 USC, the Secretary of Labor shall transmit a copy of the 2016 

Advisory Committee on Veterans’ Employment, Training, and Employer Outreach 

(ACVETEO) report to Congress along with any comment the Secretary considers appropriate.

• Publish Request For Proposal (RFP) for TAP facilitation contract.

• Publish Funding Opportunity Announcement (FOA) for the Homeless Veterans’ Reintegration 

Program and the Homeless Female Veterans and Veterans with Families grants.

March 2017

• On March 8th the Advisory Committee on Veterans’ Employment, Training, and Employer 

Outreach (ACVETEO) is planning to hold its first meeting of 2017. The Committee is 

responsible for assessing the employment and training needs of the Nation’s Veterans.

April 2017

• Nothing Significant to Report.

Key Agency Stakeholders

Joining Forces

Joining Forces has been leading the way in support of veteran and spouse employment. In August 

of 2011, the President challenged businesses to hire or train 100,000 veterans and military spouses. 

Since then, businesses have hired and trained more than half a million veterans and military 

spouses. 

• William Johnson, COL, U.S. Army, Executive Director

Veteran Service Organizations (VSOs)

Previously, American Legion and other VSO leaders were supporters of moving DOL VETS to VA. 

With our recent outreach efforts and strong performance they have changed their position but we 

need to continue to engage.

• American Legion*: Verna Jones, Executive Director

• Veterans of Foreign Wars (VFW)*: Bob Wallace, Executive Director

• Vietnam Veterans of America (VVA)*: Rick Weidman, Executive Legislative Director

• Student Veterans of America (SVA): Jared Lyon, President & CEO
TAB 2: 30/60/90 DAYS – STATE OF PLAY

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• Paralyzed Veterans of America (PVA)*: Homer Townsend, Executive Director

• Disabled American Veterans (DAV)*: Barry Jesinoski, Executive Director

• Military Officers Association of America (MOAA): Dana Atkins, President

• American Veterans (AMVETS)*: Joseph Chenelly, National Executive Director

• *Indicates the organization is Congressionally chartered.

Advisory Committee on Veterans Employment, Training and Employer Outreach 

(ACVETEO)

The Committee’s charter and obligation is to assess the employment and training needs of the 

nation’s veterans, and advise the Veterans' Employment and Training Service (VETS) with regard 

to the extent to which the Department’s programs and activities are meeting the employment and 

training needs of veterans. The ACVETEO is a non-discretionary federal advisory committee and is 

subject to the Federal Advisory Committee Act (FACA).

• Ryan Gallucci, ACVETEO Chairman

• Shirley Quarles, ACVETEO Vice-Chairman

• Mike Haynie, Executive Director, Institute for Veterans and Military Families (IVMF), 

Syracuse University and previous ACVETEO Chairman

Federal Partners

Many of the Federal Partners are on the Veterans Employment Initiative Task Force – Established 

in 2011, this Task Force is co-chaired by DOL, DoD and VA and includes other federal agency 

partners. The Task Force will provide concrete recommendations on how to ensure that service 

members are career-ready by the time they complete the transition from military to civilian life. 

• Department of Defense (DoD): Daniel Feehan, Principal Deputy Assistant Secretary 

(Readiness)

• Veterans Affairs (VBA): Thomas Murphy, Principal Deputy Under-Secretary for Benefits

• Small Business Administration (SBA): Barbara Carson, Associate Administrator for 

Veteran Business Development

• Office of Personnel Management (OPM): Hakeem Basheerud-Deen, Director of Veterans 

Services and Executive Director of the Federal Council on Veterans Employment.

• Department of Education: Mr. Jon O’Bergh, Senior Policy Advisor

Other Stakeholders

• National Association of State Workforce Agencies (NASWA): Scott Sanders, Executive 

Director

• National Governors’ Association (NGA): Stephen Parker, Legislative Director, Education 

and Workforce Committee, Office of Federal Relations 

• National Conference of State Legislatures (NCSL): Jon Jukuri, Senior Director, Labor and 

Economic Development Committee

• Society for Human Resource Management (SHRM): Hank Jackson, President & CEO

• US Interagency Council on Homelessness (USICH): Matthew Doherty, Executive Director
TAB 3: INITIATIVES

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TAB 3: INITIATIVES

Policy and Regulatory Issues 

In 2002, the Jobs for Veterans Act (JVA - P.L. 107-288) redefined in statute (38 U.S.C. 4103A and 

4104, respectively) the assignment and role of Disabled Veterans’ Outreach Program (DVOP) 

specialists initially authorized in 1980 (P.L. 96-466) and Local Veterans’ Employment 

Representative (LVER) staff, initially authorized in 1944 (P.L. 78-346 “G.I. Bill of Rights”). 

DVOP and LVER staff are state agency employees assigned in state operated American Job Centers 

(AJCs). 

Under the JVA, the principal duties of DVOP specialists included refocusing the provision of 

intensive services to certain disabled and disadvantaged veterans. Given the limitation to the 

number of DVOP specialists that the annual appropriation would support, the Department issued 

guidance identifying populations of veterans with significant barriers to employment (SBEs). 

Those veterans not assessed as having SBEs or among additional categories of individuals defined 

by subsequent legislation would be served by other AJC staff, which is required to provide all 

veterans with priority of service in all DOL-funded employment or training programs (38 U.S.C. 

4215). The Department issued guidance since then to expand the populations of veterans eligible to 

receive DVOP specialists’ services in compliance with subsequent enacted legislation to include 

annual appropriation acts and partner agency agreements. 

LVER staff principal duties under the JVA included reaching out to employers to promote the 

employment or training of veterans, facilitating veterans’ employment through the provision of AJC 

services, producing seminars for businesses and associations, conducting veterans’ job search 

workshops and establishing job search groups. Together, these staff supplement, but do not 

supplant the services provided by the one-stop system delivered through the states’ AJCs. 

On August 5, 2011, the President announced a comprehensive plan to lower the number of 

unemployed veterans and to ensure that service members leave the military career-ready. The 

announcement included several initiatives, including the creation of a suite of Gold Card services 

for veterans. The Gold Card initiative, which provides unemployed post 9/11 era veterans with 

intensive and follow-up services, was announced on November 4, 2011. 

On November 21, 2011, the President signed the VOW to Hire Heroes Act (P.L. 112-56 - the VOW 

Act) Most significant among its many provisions were the requirements:

• for VETS to monitor states compliance with the statutory roles for DVOP specialists and 

LVER staff redefined by the Jobs for Veterans Act of 2002; 

• to schedule training for DVOP and LVER staff within 18 months of appointment and 

evaluating those trained by the NVTI;

• to provide the ability for states to request the consolidation of DVOP and LVER functions 

in one position to serve veterans and businesses in underserved areas of states;

• to redefining required state agency common outcome measures to report; and
TAB 3: INITIATIVES

9

• to engage contractors to facilitate revamped Transition Assistance Program DOL 

employment workshops for transitioning service members (made mandatory with few 

exceptions) and their spouses.

The VOW Act also required the Department: 

• to provide apprenticeship training opportunities to service members while on active duty; 

• to seek to expedite the civilian credentialing for trained separating military; 

• to expand and continuance of the Work Opportunities Tax Credit (WOTC) providing 

incentives for businesses to hire and train certain categories of veterans; and

• to enter into a short term joint VA/DOL program to retrain up to 99,000 unemployed 

veterans between 35 and 60 years of age in high demand occupations or in emerging 

industries in response to layoffs during the economic downturn.

In July 2014, Congress passed and the President signed the Workforce Innovation and Opportunity 

Act (WIOA), final regulations became effective on July 1, 2016. WIOA provides more 

opportunities for aligning services with the needs of veterans. Prior to WIOA, employment and 

training programs operating in the American Job Centers wrote their service delivery plans 

separately. WIOA mandates joint planning among four DOL and two Department of Education 

core programs, and encourages the inclusion of other AJC programs including JVSG. Twenty-three 

states and territories combined JVSG with their core service plans, ensuring a high degree of 

integration and seamless service delivery. More states are expected to follow this approach in the 

next planning cycle. Additionally, WIOA aligns performance measures for all programs, ensuring a 

collective approach to service delivery and outcomes.

In VETS’ USERRA Annual Reports to Congress for FY 2014 and 2015, we made, in close 

collaboration with the U.S. Department of Justice (DOJ), a number of legislative recommendations 

to amend the USERRA statute. Those proposed amendments include: 1) allow the Attorney 

General, acting on behalf of the U.S. to serve as plaintiff in all USERRA lawsuits; 2) grant 

independent authority to the Attorney General to investigate and file suit challenging employment 

policies or practices that establish a pattern or practice of violating USERA; 3) provide the Attorney 

General with civil investigative demand authority to compel production of existing documents and 

unsworn answers to written questions from the custodian of such documents (gives DOJ subpoena 

power); 4) allow USERRA claimants to sue their own State in Federal or State courts; and 5) clarify 

that USERRA protections extend to both substantive and procedural rights, however they may be 

characterized; and 6) make arbitration agreements subordinate to the USERRA statute, giving 

USERRA claimants the right to file suit in Federal court despite any arbitration agreements to the 

contrary, unless all parties voluntarily and knowingly consent to submit to arbitration. 

VETS’ Compliance staff have worked with DOJ, OSC, SOL, and Members of Congress to draft 

legislation incorporating the above amendments; in 2016, Senator Blumenthal introduced bicameral

legislation incorporating these amendments in the Justice for Servicemembers’ Act, S/ 3042. The 

bill also proposes to replace liquidated damages as a remedy under USERRA with punitive and 

compensatory damages. In addition, the bill would formally establish the window for 

accommodating service-incurred disabilities to five years after returning service members are 

reemployed under USERRA. VETS, DOJ, OSC, VSOs, and the Department strongly support these 

provisions. Although the Justice for Servicemembers’ Act was introduced too late to likely pass 
TAB 3: INITIATIVES

10

this legislative session, we anticipate that it will be reintroduced as part of the annual Defense 

Authorization Bill in January 2017. We may expect opposition from employer-side and corporate 

attorneys, but our position on this matter is well settled. 

VETS 4212, Federal Contractor Program. In FY 2014 and 2015, VETS promulgated regulations 

modifying its Federal Contractor program reporting system in response to a 2013 amendment to the 

Vietnam Era Veterans Readjustment Rights Act of 1974 (VEVRAA) , and developed and 

implemented a new electronic filing system for many thousands of Federal contractors to file 

required VETS-4212 reports as required by VEVRAA. The new system has been very well 

received, and has simplified the filing process for all contractors. VETS’ responsibilities in this 

regard are limited to receiving reports filed by Federal contractors. Enforcement and administration 

of the Federal Contractor provisions lies primarily with the DOL Office of Federal Contract 

Compliance Programs (OFCCP).

Major Grants and Contracts

VETS administers programs to meet the employment and training needs of veterans and eligible 

spouses, especially those with significant barriers to employment, and to connect employers across 

the country with work-ready veterans. 

Jobs for Veterans Service Grants (JVSG): The JVSG is a formula grant awarded to each state, the 

District of Columbia, Guam, Puerto Rico, and the Virgin Islands. Under the program, funds are 

allocated to State Workforce Agencies in proportion to the number of veterans seeking employment 

in the particular state. JVSG is a state staffing grant that supports two types of positions in 

American Job Centers: Disabled Veterans’ Outreach Program (DVOP) specialists and Local 

Veterans’ Employment Representatives (LVER) staff. The program is funded at approximately 

$175 million annually. 

Homeless Veterans’ Reintegration Program (HVRP): HVRP, a competitive grant program, is the 

only federal program dedicated to meeting the employment needs of homeless veterans. The 

purpose of the HVRP is to provide services to assist in reintegrating homeless veterans into 

meaningful employment. HVRP grants are awarded to applicants presenting clear strategies and 

obtainable goals for training, employment, and retention of employment. Homeless female 

veterans and veterans with families are special populations funded by the HVRP. Another 

subcategory of the HVRP is the Incarcerated Veterans’ Transition Program, which seeks to identify 

and provide services to veterans who were formerly incarcerated for more than one day or are 

within 18-months of transitioning out of incarceration and are considered “at risk” of homelessness. 

In FY 2016, HVRP was appropriated $38,109,000 to award grants on a competitive basis to eligible 

applicants such as: state and local workforce investment boards, public agencies, forprofit/commercial entities, and non-profit organizations, including faith- and community- based 

organizations. 

The National Veterans’ Employment and Training Services Institute (NVTI): NVTI was established 

in 1986 to provide specialized training and professional skills enhancement of State Employment 

Security Agency and other veterans’ service providers’ staff. Through a contract with VETS, NVTI 
TAB 3: INITIATIVES

11

provides comprehensive training courses to State Agency staff, VETS staff, and other who provide 

service to veterans. In FY 2016, NVTI was Appropriated 3,414,000.

Department of Labor Employment Workshop (DOLEW): This contract covers the delivery of the 

DOL Employment Workshop at military installations worldwide. During FY 2017, DOL VETS 

will re-compete the Transition Assistance Program (TAP) facilitation contract. DOL VETS intends 

to award a five year (Base + four Option Years) contract of approximately $80 million. DOL 

VETS expects to publish the solicitation in February 2017. VETS is working with VA to transition 

the optional Career and Technical Training workshop to VETS during FY 2017.

Enforcement

VETS is responsible for two enforcement programs under the Veterans’ Employment Opportunities 

Act of 1998 (VEOA), 5 U.S.C. § 3330a, et. seq., and the Uniformed Services Employment and 

Reemployment Rights Act of 1994 (USERRA), 38 U.S.C. §§ 4301-4335. 

VEOA: This primarily involves veterans’ preference in Federal hiring and during reductions-inforce (RIFs). The U.S. Office of Personnel Management (OPM) is responsible for interpreting and 

administering those statutes and regulations governing veterans’ preference in the Federal sector. 

VETS is responsible for investigating complaints received from preference-eligible veterans who 

believe their veterans’ preference rights in Federal hiring were violated. VETS receives 600-800 

veterans’ preference complaints annually. VETS does not have enforcement authority over 

veterans’ preference. If VETS finds the evidence supports the claimant’s allegation, VETS will 

work with the subject Federal agency to obtain the appropriate relief which often involves 

reconsideration of the certified list of applicants. If VETS is unable to resolve the matter to the 

veteran’s satisfaction (regardless of the outcome of the case) the veteran may elect to continue to 

pursue the matter on his own with the Merit Systems Protection Board (MSPB). 

VETS’ investigators must first complete a one-week course on VEOA at the National Veterans’ 

Training Institute (NVTI) before being allowed to investigate a veterans’ preference case. Most 

veterans’ preference cases are investigated through telephone interviews, electronic transmission (email) of documents and statements, and mailed hard copy evidentiary material. 

USERRA: VETS is responsible (by statute) for interpreting, administering, and helping enforce 

USERRA. USERRA comprises three major areas: 1) Anti-discrimination – USERRA provides that 

employers cannot take any adverse action against any current or prospective employee, due in any 

part to that individual’s past, present, or future military service, status or obligations; 2) Antiretaliation – USERRA provides that no employer can take any adverse action against any 

employee—regardless of military affiliation—for either asserting or helping another employee 

assert his or her rights under the statute; and 3) Reemployment – USERRA provides that employees 

who meet the criteria for entitlement to reemployment rights must be promptly reinstated into the 

same positions of status, seniority, and rate of pay they otherwise would have attained had they 

remained continuously employed. This is commonly referred to as the escalator principle and has 

been the law since 1946. 
TAB 3: INITIATIVES

12

USERRA is a highly complex statute, and covers virtually all employers, private, public, Federal, 

non-Federal, and political. Employer size is not an issue. VETS provides extensive technical 

assistance through briefings to all members of the general public, military units, and professional 

associations. In addition, VETS investigators investigate complaints received from individuals who 

believe their USERRA rights were violated. If VETS is unable to resolve a case to a claimant’s 

satisfaction, regardless of the outcome, the claimant may elect to either continue to pursue relief on 

his or her own through private counsel or through the U.S. Department of Justice (DOJ) or the U.S. 

Office of Special Counsel (OSC) for independent review and consideration of litigation in either 

U.S. District Court (non-Federal, State, private employers), or before the MSPB (Federal-sector 

employers). 

VETS USERRA investigators must undergo a two-week training course at NVTI before being 

allowed to investigate USERRA cases. Stakeholders include the National Committee for Employer 

Support of the Guard and Reserve, the Office of the Solicitor, DOJ, OSC, and OPM. VETS is 

responsible for publishing Quarterly Reports to Congress on timeliness of its investigations, due 

one month after the end of each quarter, and a USERRA Annual Report to Congress due July 1 

each year. Annual case volume from September 11, 2001 to the present ranges from 1,150 to

1,600. 

For both VEOA and USERRA, cases are tracked through an electronic information management 

system (IMS), which is being replaced by a commercial-off-the-shelf (COTS) case management 

system, the VETS Case Management System (VCMS). The VCMS is expected to become 

operational in the Spring of 2017. 

Audits and Reports

OIG Audits Reports (completed in past 3 years)

1. http://www.oig.dol.gov/public/reports/oa/viewpdf.php?r=06-16-001-02-001&y=2016 – The 

OIG conducted a performance audit to determine if VETS provided reasonable assurance that 

costs charged to the JVSG program were allowable.

Status: The recommendations made by OIG were resolved but have not been closed pending a 

response outlining VETS’ determination if costs were allowable and VETS’ actions taken to 

develop an audit tool.

2. http://www.oig.dol.gov/public/reports/oa/viewpdf.php?r=06-15-001-02-001&y=2015 – OIG 

conducted a performance audit to determine if DOL managed its VRAP role in accordance with 

the Veterans Opportunity to Work to Hire Heroes Act.

Status: This audit has been closed.

3. http://www.oig.dol.gov/public/reports/oa/viewpdf.php?r=06-14-001-02-001&y=2014 – OIG 

conducted the audit of the JVSG program operated by Florida’s Department of Economic 

Opportunity (DEO) to determine if VETS ensured Florida DEO’s JVSG staff adequately 

provided intensive services to meet employment and training needs of veterans through its 
TAB 3: INITIATIVES

13

JVSG program and if VETS ensured Florida’s DEO reported JVSG program measures 

accurately. 

Status: The audit has been closed.

Management 

Information & Technology (IT)

The Veterans’ Education and Training Service (VETS) is maturing its IT Infrastructure to better 

meet Agency’s business needs. IT is integral to every program and administrative function. VETS 

continually works to ensure current and future technology trends are evaluated and incorporated, 

where applicable, to support VETS’ programs. The current focus is on improved enterprise 

communication, data management, customer relationship management, document and asset 

management, and streamlined collaborative tools. As a small agency with limited resources, VETS 

faces challenges in keeping its information technology current. Several systems in use are legacy 

systems in need of an upgrade. VETS dedicated IT staff is principally responsible for project and 

process management. VETS’ IT program relies on the Office of the Chief Information officer 

(OCIO) for technical support and management and contractor support for development of its 

mission systems and applications. A listing of current IT systems is provided below:

Veterans Data Exchange Initiative (VDEI) – This application is an enterprise effort to acquire, 

store and analyze data on Transitioning Service Members. VDEI obtains data through a 

memorandum of understanding (MOU) with the Defense Manpower Data Center (DMDC). The 

system went live in 2016 and is intended to allow, for the first time, DOL-VETS to better analyze 

and assess the training and employment gains of the nation’s veterans and transitioning service 

members. In addition, a feature added in October 2016 enables VETS to contact transitioning 

service members via email and provide a quick link to the tools and services available to them 

through DOL. 

Veterans Investigative Preference and Employment Rights System (VIPERS) – Includes the 

USERRA Information Management System (UIMS), Veteran’s Preference Information 

Management System, and VETS on-line USERRA Form E1010). VIPERS provides an automated 

process for collecting, consolidating, and reporting Uniformed Services Employment and 

Reemployment Rights Act (USERRA) data. The information system provides VETS’ Investigators 

with the capabilities to validate and analyze data and provide rollup information through Regional 

Offices to the Regional Lead Center (RLC). VIPERS was developed in 1998.

Vets Case Management System (VCMS) – This application is being developed to replace VIPERS 

for the Compliance functionality that supports the USERRA program. This functionality includes 

electronic filing of USERRA claims, tracking and processing of claims and electronic record 

keeping. The VCMS is being developed under contract and will utilize modified Commercial Off 

the Shelf software. VCMS is scheduled to be in production in March 2017.

VETS Operations and Programs Activity Reporting System (VOPAR) – (Hosted by the 

Employment and Training Administration). VOPAR is a data analysis tool used to collect 
TAB 3: INITIATIVES

14

performance data for state and regional review. The system, receives, and processes reporting data 

that is provided by grantees. This system directly supports the VETS TAP, JVSG and HVRP 

programs. VOPAR was initially developed in January 2003 and needs updated to meet new 

reporting requirements.

VETS-4212 – (Formerly known as VETS-100 and is hosted by OPA). VETS’ has a legislative 

requirement to collect veterans’ employment data, and report that data to Congress. The data must 

also be made available to the Office of Federal Contract Compliance Programs (OFCCP) for 

compliance enforcement and to Contracting Officers for verification of contractor compliance with 

the reporting requirement as part of the acquisition process. Further, VETS-4212 meets the 

requirements of Section 708 of the Camp Lejeune Families Act for the Secretary of Labor to 

maintain an internet website on which to publicly disclose the information that contractors provide 

in their annual reports on veterans’ employment. Federal contractors are required to report annually 

in the system between August 1st and September 30th on the number of veterans employed and 

hired for the preceding year. 

eGrants – (Hosted by ETA). eGrants is an enterprise wide grants management system that is used 

by all grant making entities within the Department of Labor (DOL). It is part of the DOL Grants 

Management Segment Architecture. eGrants supports the DOL Secretary's vision and goal of 

preparing workers for good jobs and ensure fair compensation by effectively managing training 

grants and by reducing the time to award. JVSG and HVRP grants are awarded and grantees 

submit reports to this application. 

Customer Relationship Management (CRM) – CRM software is an online, cloud based fully 

integrated customer relationship management system. VETS uses a Microsoft CRM tools to create 

and maintain contacts for outreach, marketing, and customer service processes. This software is 

used by the Office of Strategic Outreach to maintain a clear view of employers from first contact 

through engagement and post contact tracking. 

Personnel Engagement

The Veterans’ Employment and Training Service (VETS) recognizes the value of its employees and 

the importance of employee satisfaction in the workplace. VETS has consistently ranked as one of 

the best places to work in the DOL as rated by employees through the Federal Employment 

Viewpoint Survey (FEVS). The 2016 FEVS results indicate that VETS employees: continue to put 

in the extra effort; are always looking for ways to do better; understand the work is important; work 

is high quality; and are held accountable. VETS continues to build on past success and provide 

additional focus on gaps and areas where additional effort is needed. Focus for 2016 included 

continuing to improve communications, providing training opportunities for staff and encouraging 

innovation in the workplace. 

Calendar

• Planned release of the Funding Opportunity Announcement for the Homeless Veterans’ 

Reintegration Program and the Homeless Female Veterans and Veterans with Families

grants, February 1, 2017 for a July 1 award date.
TAB 3: INITIATIVES

15

• VETS is responsible for publishing its Annual Report to Congress. DOL has recommended 

changing the due date of the Annual Report to Congress from February 1 to July 1. The 

annual fiscal year data is not available until approximately 60 days after the end of the fiscal 

year (November 30). The report can only be produced once relevant annual fiscal year data 

is collected and analyzed for several workload tables and appendices. In the previous two 

fiscal years, the Annual Reports to Congress were published in May and July. 

• VETS’ 4212 Federal Contractor Program filing season runs from August 1 through 

September 30, each year. However, contractors may continue to submit their 4212 reports 

throughout the year, as needed. 

• Annual notification of the JVSG fiscal year funding estimates to the state workforce 

agencies.

• Annual Stand Down funding is set-aside from the HVRP Appropriation to award funds on a 

first in first out basis to public agencies, nonprofit organizations, and faith- and communitybased organizations.

• The Advisory Committee on Veterans’ Employment, Training, and Employer Outreach 

(ACVETEO) is required to submit an annual report by December 31 to the Secretary of 

Labor and to the Senate and House Veterans’ Affairs Committees. Within 60 days of 

receiving the Committee’s report, the Secretary of Labor shall transmit a copy to Congress 

along with any comments the Secretary considers appropriate.

Quarterly

• The ACVETEO meets quarterly to assess the employment and training needs of the nation’s

veterans. DOL VETS ensures the ACVETEO is complying with the Federal Advisory 

Committee Act (FACA).

• VETS is responsible for publishing its USERRA Quarterly Report to Congress, due 30 days 

at the end of each quarter. Those reports are due on or about: January 30, April 30, July 30, 

and October 30. In addition, VETS’ USERRA Annual Report to Congress is due July 1 

each year. 

• DOL VETS is an integral partner in the Transition Assistance Program (TAP) governance 

structure. The TAP Executive Council meets on a quarterly basis and the ASVET serves as 

a co-chair of that body. The TAP Senior Steering Group meets on a monthly basis and 

reports to the Executive Council. The Deputy ASVET for Policy has served as a co-chair of 

that body.
TAB 4: BUDGET

16

TAB 4: BUDGET

BUDGET AUTHORITY AND FTE SUMMARY

(Dollars in millions)

FY 2013 FY 2014 FY 2015 FY 2016 FY 2017

Enacted Enacted Enacted Enacted Request

Budget Authority $251.7 $269.5 $270.0 $271.1 $285.5

FTE 217 227 229 245 230

At-A-Glance

• The Veterans' Employment and Training Service (VETS) administers programs that address the 

employment, training, and job security needs of Americans who have served in uniform. VETS 

prepares transitioning service members and military spouses for civilian employment and 

providing employment and training services to eligible veterans and their spouses. VETS also

ensures employers respect the rights of service members and veterans, and ensures that federal 

employers give appropriate preferential hiring to veterans.

• VETS is made up of five different programs:

o Jobs for Veterans State Grants (JVSG) – JVSG assists veterans in obtaining and 

maintaining meaningful employment through services provided at American Job Centers 

(AJC) and other locations. Funds are allocated to State Workforce Agencies (SWA) in 

direct proportion to the number of veterans seeking employment in the particular state and 

the number of unemployed persons in the state.

o Transition Assistance Programs (TAP) – TAP is jointly operated by the Department of 

Defense (DOD), the Department of Veterans Affairs (VA), and DOL. DOL provides the 

TAP Employment Workshop, a comprehensive three-day workshop which assists veterans 

in transitioning to civilian employment. TAP Employment Workshops are provided on 

military installations both domestically and abroad. 

o Homeless Veterans’ Reintegration Program (HVRP) – HVRP is the only federal 

nationwide program focusing exclusively on the employment of veterans who are homeless. 

The program provides job training, counseling, and placement services, including job 

readiness, literacy, and skills training, to aid in the re-integration of homeless veterans into 

the labor force. 

o National Veterans’ Training Service Institute (NVTI) –NVTI ensures a high level of 

proficiency and training for staff that provide veterans employment services. NVTI provides 

training to federal staff and veteran service providers and federal staff who perform 

compliance and enforcement activities under USERRA and Veterans’ Preference. 

o Federal Administration – USERRA Enforcement (FA) – FA implements VETS’

activities, programs, initiatives, and administrative and oversight functions. FA also funds 

compliance investigations of claims from protected individuals under two labor laws: the 

Uniformed Services Employment and Reemployment Rights Act (USERRA) and the 

Veterans’ Employment Opportunities Act.
TAB 4: BUDGET

17 

Budget and FTE Trends 

• From FY 2009 to FY 2016, VETS’ budget authority has increased from $239.4 million to 

$271.1 million. 

• The agency received appropriations increases for HVRP and JVSG grants in FY 2009; HVRP 

grants, National Veterans Training Institute grants, Veterans Workforce Investment Programs 

(VWIP) grants, and state grants in FY 2010; and Transition Assistance Programs, HVRP, and 

VWIP Programs in FY 2012. VWIP was later discontinued in FY 2013. 

• In FY 2014, most activities were funded at approximately the pre-sequestration and prerescission levels of FY 2013, which the exception being JVSG which received an increase of 

$14.4 million. The President’s Request for VETS in FYs 2015 and 2016 largely only included 

inflationary increases, which were provided. 

• In FY 2009, VETS’ authorized FTE level was 234 and remained relatively steady through FY 

2015. In FY 2016, VETS is projected to utilize 245 FTE due to improved hiring practices that 

minimize the duration of vacancies.

• Subsequent appropriations have matched the President’s Budget request level. 

• The TAP program was split into a separate budget activity in FY 2011. The VOW to Hire 

Heroes Act of 2011 made participation in the TAP employment workshop mandatory for 

transitioning service members.

• In VETS’s FY 2016 and 2015 appropriations, the agency used authority to transfer up to 3 

percent between accounts. In both of these years, they have used this language to transfer funds 

to the Federal Admin account. 

• In FY 2017, the Department requested an increase of $11.9 million for the HVRP program to 

bring funding to the authorized level of $50.0 million. 

Upcoming Issues

• While the JVSG program operates on a fiscal year basis (October 1 to September 30), States run 

the program in concert with their Employment Service, which operates on a Program Year 

calendar (July 1 to June 30). 

Staff Contacts

Erin Rosenfeldt, Agency Budget Officer 

Veterans’ Employment and Training Services 

Rosenfeldt.Erin.S@dol.gov 

(202) 693-4720 

(b) (5)
TAB 4: BUDGET

18

FY 2009 FY 2010 FY 2011 FY 2012 FY 2013 FY 2014 FY 2015 FY 2016 FY 2017

PB

Request $238.4 $255.1 $262.5 $261.0 $258.9 $300.5 $270.0 $271.1 $285.5

Enacted $239.4 $255.6 $255.5 $263.6 $251.7 $269.5 $270.0 $271.1

$0

$50

$100

$150

$200

$250

$300

$350

VETS

Request vs. Enacted, FY 2009-FY 2016

(Dollars in millions)

FY 2009 FY 2010 FY 2011 FY 2012 FY 2013 FY 2014 FY 2015 FY 2016

Enacted $239.4 $256.1 $255.6 $264.4 $250.6 $269.5 $270.0 $271.1

Inflation Adjusted $239.4 $243.4 $251.0 $256.2 $260.0 $264.2 $264.5 $264.5

$220

$225

$230

$235

$240

$245

$250

$255

$260

$265

$270

$275

VETS

FY 2009 Inflation Adjusted BA vs. FY 2009-FY 2016 

Enacted BA

(Dollars in millions)
TAB 4: BUDGET

19

FY 2009 FY 2010 FY 2011 FY 2012 FY 2013 FY 2014 FY 2015 FY 2016 FY 2017

PB

Authorized 234 234 228 218 218 227 230 230 230

Actuals 229 224 218 210 217 222 229 245

190

200

210

220

230

240

250

VETS

Authorized FTE vs. Actuals, FY 2009-2017
TAB 5: AGENCY PERFORMANCE

20

TAB 5: AGENCY PERFORMANCE

VETS is responsible for one of the Department’s Agency Priority Goals, percent of Jobs for 

Veterans State Grants (JVSG) veterans receiving intensive services. Intensive services are provided 

at American Job Centers to assist veterans in overcoming significant barriers to employment 

including homelessness, disability or previous incarceration. The intensive services rate has 

increased from 39.2% in PY 2012 (7/1/12 – 6/30/13) to 85.7% in PY 2015, Q3 (7/1/15 – 3/31/16).1 

Studies show that intensive services significantly help veterans obtain jobs.2

The Homeless Veterans’ Reintegration Program (HVRP) assists veterans who are homeless or at 

risk of homelessness by providing employment and training services. HVRP participants are also 

required to register to receive services at American Job Centers. HVRP placement rates have 

increased from 59% in PY 2010 to 68.5% in PY 2015.3

The Transition Assistance Program DOL Employment Workshop (TAP DOLEW) provides 

employment assistance to transitioning service members and their spouses. VETS tracks the 

 1 Source: ETA EBSS System>VETS-200A Reports and ETA-9133B Reports (WISPR states – TX, PA, UT).

2 Source: Summit Consulting, January 2015, “Veteran and Non-Veteran Job Seekers”; 

http://www.dol.gov/asp/evaluation/completed-studies/VeteranNon-VeteranJobSeekers.pdf. 3 Source: VETS’ VOPAR System>HVRP Reports>Program Status Report.

0.0%

10.0%

20.0%

30.0%

40.0%

50.0%

60.0%

70.0%

80.0%

90.0%

100.0%

PY 2012 PY 2013 PY 2014 PY 2015, Q3

PY 2012 - PY 2015, Q3 Intensive Service Rate Results

Performance Goal VETS 1.1 – Provide increased rates of intensive services to veterans and 

their families to advance their employment opportunities and protect the employment and 

reemployment rights of service members.
TAB 5: AGENCY PERFORMANCE

21

entered employment rate for veterans who have completed the workshop, employment retention 

rate and their average earnings. While the number of TAP participants varies over time, the table 

below identifies that the TAP DOLEW consistently meets the demand of providing employment 

assistance to transitioning service members and their spouses.4

VETS is responsible for administering, interpreting and enforcing the Uniformed Services 

Employment and Reemployment Rights Act (USERRA), which protects the rights of employees 

against adverse actions as a result of military service. VETS tracks timeliness and quality of 

USERRA cases as shown in the tables below.5

 4 Source: FY 2012 – FY 2015 VETS’ Annual Reports to Congress. 5 Source: FY 2012 – FY 2015 independent spreadsheets compiled and maintained by the VETS’ USERRA team.

0

50,000

100,000

150,000

200,000

250,000

FY 2012 FY 2013 FY 2014 FY 2015

FY 2012 - FY 2015 TAP DOL Employment Workshop Participants

0.0%

20.0%

40.0%

60.0%

80.0%

100.0%

FY 2012 FY 2013 FY 2014 FY 2015

FY 2012 - FY 2015 USERRA Investigations Completed within 90 days

0.0%

50.0%

100.0%

FY 2012 FY 2013 FY 2014 FY 2015

FY 2012 - FY 2015 USERRA Closed Cases Meeting the Agency's Quality 

Standard