Military and Veterans' Benefits: Enhanced Services Could Improve 
Transition Assistance for Reserves and National Guard (20-MAY-05,
GAO-05-544).							 
                                                                 
The National Defense Authorization Act for Fiscal Year 2005	 
mandated that GAO review whether the transition assistance	 
program (TAP) is meeting the needs of service members leaving the
military. GAO (1) assessed TAP administration, including program 
participation, and (2) identified actions agencies are taking to 
improve TAP and challenges that remain. TAP serves military	 
personnel with at least 180 days of active duty who separate or  
retire and members of the Reserves and National Guard who are	 
released from active duty, a process termed demobilization.	 
Recently, the Reserves and National Guard have been called to	 
active duty in greater numbers than at any other time since the  
Korean War.							 
-------------------------Indexing Terms------------------------- 
REPORTNUM:   GAO-05-544 					        
    ACCNO:   A24578						        
  TITLE:     Military and Veterans' Benefits: Enhanced Services Could 
Improve Transition Assistance for Reserves and National Guard	 
     DATE:   05/20/2005 
  SUBJECT:   Aid for the disabled				 
	     Employment assistance programs			 
	     Interagency relations				 
	     Military personnel 				 
	     Military reserve personnel 			 
	     National Guard					 
	     Persons with disabilities				 
	     Veterans benefits					 
	     Veterans employment programs			 
	     Program evaluation 				 
	     Insurance benefits 				 
	     DOD Transition Assistance Program			 

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GAO-05-544

United States Government Accountability Office

GAO

                       Report to Congressional Committees

May 2005

MILITARY AND VETERANS' BENEFITS

Enhanced Services Could Improve Transition Assistance for Reserves and National
                                     Guard

GAO-05-544

[IMG]

May 2005

MILITARY AND VETERANS' BENEFITS

Enhanced Services Could Improve Transition Assistance for Reserves and National
Guard

                                 What GAO Found

Transition assistance is intended to help service members successfully
adjust to civilian life after serving in the military. Jointly
administered by the Departments of Defense (DOD), Labor (DOL) and Veterans
Affairs (VA), the four components of TAP are coordinated through meetings
of agency TAP managers and interagency agreements.

TAP Time Frames, Components, and Providers

Source: GAO analysis.

Both the method of delivery and the level of participation may vary, with
participation rates highest for the mandatory preseparation counseling.
Because they demobilize within days after they return from overseas,
generally members of the Reserves and National Guard may get similar
information but not the time to participate fully in TAP. At
demobilization they may complete their preseparation counseling forms as a
group without individual attention; get 45 minutes of briefing on
veterans' benefits rather than a half-day; and receive no employment
preparation. Participation of service members in the Disabled TAP
component is not known, because VA does not track this information.

The federal agencies have taken actions to improve TAP's content and
increase participation among full-time active duty military personnel but
face challenges serving Reserve and National Guard members because of
their rapid demobilization. To improve content, the agencies have updated,
or plan to update, their manuals, forms, and other materials, and DOL is
assessing its employment workshop curriculum using focus groups and survey
data. To increase participation, DOL and VA provide some employment
workshops and veterans' benefits briefings overseas, and DOD is
considering mandating participation in all components. While the agencies
have not assessed when and where to offer TAP for members of the Reserves
and National Guard, DOL has pilot programs in three states that will offer
employment workshops after the members return home.

                 United States Government Accountability Office

Contents

  Letter

Results in Brief
Background
Administration of the Four Components of TAP and Participation

Vary by Service Many Actions are Under Way to Improve TAP, but Challenges

Remain in Meeting the Needs of Reserves and National Guard Conclusions
Recommendations for Executive Action Agency Comments and Our Evaluation

                                       1

                                      2 4

                                       7

18 24 24 25

Appendix I Scope and Methodology

Appendix II	Checklist Used by the Armed Forces in Preseparation Counseling
until Fiscal Year 2005

Appendix III	Transition Assistance Funding by Military Service, Fiscal
Years 2002 through 2004

Appendix IV	Scheduling and Delivery of TAP Components at Military
Installations

Appendix V	Employment Workshop Critique Form for Completion by
Participants

  Appendix VI	Participation in Transition Assistance Program by Component,
  Fiscal Year, and Military Service 35

Appendix VII	Changes Planned in 2005 to Checklists Used by the Armed
Forces in Preseparation Counseling 37

        Appendix VIII Overseas Locations Where DOL and VA Provide TAP 40

Appendix IX Comments from the Department of Defense

Appendix X Comments from the Department of Labor

        Appendix XI Comments from the Department of Veterans Affairs 45

Appendix XII GAO Contacts and Staff Acknowledgments

Related GAO Products

  Table

Table 1: Circumstances of Reserve and National Guard Members Compared with
Those of Others Separating

  Figures

Figure 1: TAP Time Frames, Components, and Providers 9 Figure 2: The Key
Interagency Agreement and Committees Involved in Coordination and
Oversight of TAP 13

Abbreviations

TAP transition assistance program
DOL Department of Labor
DOD Department of Defense
DTAP Disabled Transition Assistance Program
VA Department of Veterans Affairs

This is a work of the U.S. government and is not subject to copyright
protection in the United States. It may be reproduced and distributed in
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separately.

United States Government Accountability Office Washington, DC 20548

May 20, 2005

The Honorable John W. Warner
Chairman
The Honorable Carl Levin
Ranking Minority Member
Committee on Armed Services
United States Senate

The Honorable Duncan Hunter
Chairman
The Honorable Ike Skelton
Ranking Minority Member
Committee on Armed Services
House of Representatives

The increased role of the armed forces in military operations around the
world, and the greater reliance on the Reserves and National Guard, has
focused national attention on what is done to help servicemen and women
successfully transition to civilian life after serving in the military.
Originally created in 1990, the transition assistance program (TAP)
provides information on specific benefits and services, including
employment and relocation assistance, education opportunities, health
and life insurance, and financial planning. Jointly administered under
agreements among the Departments of Defense (DOD), Labor (DOL), and
Veterans Affairs (VA), TAP is intended to serve military personnel who
separate and members of the Reserves and National Guard who
demobilize after at least 180 days of active duty. Over 300,000 servicemen
and women met these criteria and were eligible for TAP in fiscal year
2004.

Concerns about the needs of transitioning service members-including
those returning from Iraq and Afghanistan-and whether TAP is meeting
their needs---are raised in the National Defense Authorization Act for
Fiscal Year 2005, which mandated a GAO report on TAP. This report
(1) assesses TAP's administration, including program participation, and
(2) identifies actions agencies are taking to improve TAP as well as the
challenges that remain.

To develop the information for this report, we reviewed the legislative
history of TAP, including records of congressional hearings, and
interviewed responsible officials, including TAP program managers, from

DOD, the armed forces and commands, the National Guard Bureau, VA, and
DOL. We also reviewed TAP program materials, including guides and manuals
prepared for participants and facilitators as well as slides and videos.
We compiled and analyzed statistics on TAP program participation and
surveyed selected veterans' service organizations. We also visited Fort
Bragg, North Carolina, to talk to participants and observe briefings for
members of the Army Reserve and National Guard being demobilized there as
well as TAP sessions for others separating at the base. As agreed, the
Coast Guard, which is overseen by Homeland Security, was not included in
our review. To assess the reliability of the data on the numbers
separating and on their TAP program participation, we reviewed
documentation on the data systems and data entry, interviewed
knowledgeable agency officials, and worked closely with them to understand
or correct discrepancies. We determined that the numbers of service
members separating and participating were sufficiently reliable for the
purposes of this report, but that the participation rates we derived from
these numbers represent approximations, as explained in a more detailed
description of our methodology in appendix I. We conducted our work from
December 2004 through April 2005 in accordance with generally accepted
government auditing standards.

While the federal agencies responsible for TAP work closely to coordinate
their administration of the four components of TAP, the method of delivery
and the level of participation may vary. The TAP components are

1. 	the armed forces' preseparation counseling on a range of services and
benefits,

2. DOL's employment workshops,

3. VA's briefings on benefits available to all veterans, and

4. 	VA's disabled transition assistance program (DTAP) on vocational
rehabilitation for individuals who have, or think they may have, a
disability.

The program emphasizes the workshops that help service members prepare for
civilian employment, but preseparation counseling is the only component
where attendance is mandatory. The administration of TAP is coordinated
through regular meetings of TAP managers from each federal agency and the
armed forces in accordance with interagency agreements. The delivery of
TAP may vary in terms of the amount of personal attention

  Results in Brief

participants receive, the length of the components, and the instructional
methods used. Participation also varies, depending in part on the
circumstances of the service members involved. For example, full-time
active duty service members who are separating from the military may
receive individual assistance in their preseparation counseling, a half
day of information on veterans' benefits, and 2 days of employment
workshops under TAP. By comparison, members of the Reserves and National
Guard generally do not attend formal TAP components because they are often
released from active duty a few days after they return from overseas.
During demobilization, they receive preseparation counseling as a group
and may also be briefed for 45 minutes on veterans' benefits, but few
attend any employment workshops. For DTAP, the level of participation of
Reserves, National Guard and other separating service members is unknown
because VA does not track this information.

The agencies administering the transition program have taken several
actions to improve TAP and increase participation, but they face
challenges in tailoring the program to the Reserves and National Guard. To
improve program content, the three agencies have plans to take, or have
taken, actions to update their manuals, forms, and other briefing
materials, including Internet sites. DOL is assessing its employment
workshop curriculum using focus groups and survey data. To increase
participation, both DOL and VA have expanded availability and now offer
employment workshops and veterans' benefits briefings at some overseas
bases so that service members likely to separate there have the
opportunity to attend TAP. In addition, a draft DOD directive under
consideration would require all service members to attend the VA briefings
and allow all who indicate an interest to attend the employment workshops.
However, agencies face the challenges of providing TAP so its timing and
location can accommodate the Reserves and National Guard. During their
rapid demobilization, the Reserve and National Guard members may not
receive all the information on possible benefits to which they are
entitled. Notably, certain education benefits and medical coverage require
service members to apply while they are still on active duty. However,
even after being briefed, some Reserve and National Guard members were not
aware of the time frames within which they needed to act to secure certain
benefits before returning home. In addition, most members of the Reserves
and National Guard did not have the opportunity to attend an employment
workshop during demobilization. TAP managers are concerned about meeting
the needs of these service members but do not have information on the
number interested, the appropriate topics, or the optimal timing and
location. DOL told us that three state pilot programs will offer a

Background

version of the employment workshop to the Reserves and National Guard
after they have been released from active duty and have returned home.

We recommend that DOD, in conjunction with DOL and VA, determine what
demobilizing Reserve and National Guard members need to make a smooth
transition and explore options to enhance their participation in TAP. In
addition, we recommend that VA take steps to determine the level of
participation in DTAP to ensure those who may have especially complex
needs are being served.

The role of the armed forces in the global war on terrorism and in
military operations in Afghanistan and Iraq has heightened concerns about
the assistance that these and other service members receive when they
transition back into civilian life. The National Defense Authorization Act
for Fiscal Year 20051 mandated that GAO report on TAP for service members
separating or retiring from the military and members of the Reserves and
National Guard who are released from active duty in a process referred to
as demobilization.2

All service members who have been on active duty for at least 180 days are
eligible for TAP, but those separating because of a disability are
eligible regardless of the length of their active duty service. The time
frames for provision of TAP are spelled out in law. Eligible service
members must be provided TAP while they are on active duty and receiving
military pay, either as soon as possible within the 2 years prior to their
anticipated retirement date or in the 1 year prior to their anticipated
separation date-in either case, no later than 90 days prior to their
discharge or release. The exception to this rule occurs when separations
are not anticipated and less than 90 days of active duty remain. In such
cases, TAP must be provided as soon as possible.

About 309,000 servicemen and women were discharged or released from active
military service in fiscal year 2004 with sufficient time on active

1P.L. 108-375. This authorization also mandated a GAO review of mental
health services provided by DOD and VA, including mental health services
for service members and veterans with or at risk of developing
post-traumatic stress disorder.

2In this report we use the term separation to refer to the discharge or
retirement of fulltime active duty service members and also to the release
of members of the Reserves and National Guard from active duty.

duty to meet the TAP eligibility criteria. Of these, about 192,000 were
members of the full-time active duty armed forces---the Air Force, Army,
Navy, or Marine Corps. Generally, the remaining 117,000 were members of
the Reserves and National Guard who had been called to active duty in
response to a national emergency and were later released. Many of these
service members had been employed in civilian occupations before they were
called to active duty and were training for their military mission during
certain weeks and weekends each year.

The use of the Reserves and National Guard has increased dramatically in
recent years, with more called to active duty than at any other time since
the Korean War. About 478,000 members of the Reserves and National Guard
have been called to active duty since September 11, 2001, and about
181,000 members were on active duty as of April 2005. Most of these
members were serving with the Army---many on overseas missions, and on the
front lines in Iraq, Afghanistan, and the Balkans. Not only have more
members of the Reserves and National Guard been called to active duty and
sent overseas, but the number of days they spend on average in active duty
status has doubled since 1990, when TAP was established. DOD expects this
trend to continue through at least fiscal year 2007, with Reserve and
National Guard members serving on active duty for a year or more on
average.3

Delivery of the TAP components for most participants occurs at one of the
215 transition offices located on military installations. This includes 82
Air Force TAP offices located in Family Support Centers, 53 Army offices
that are part of the Army Career and Alumni Program, as well as the 62
Navy offices and 18 Marine Corps offices that constitute their respective
Transition Assistance Management Programs. However, Reserve and National
Guard members who were called to active duty, served, and are returning
home usually transition at fewer locations, referred to as demobilization
sites; for example, the Army has 27 demobilization sites and the Marine
Corps has 5 sites. Typically the demobilization process is rapid, taking a
matter of days once the service members arrive back in the United States
from overseas. The Army standard is to demobilize units in 5 days, and it
is not uncommon for military installations to get 2 days' or less advance
notice before returning troops arrive. During demobilization, service
members may be expected to participate in as many as 18 separate

3Authority to call Reserve and National Guard service members to
involuntary active duty is currently limited to 24 months, but members can
volunteer for extended duty.

briefings on various topics, such as legal and medical issues, and
scheduled activities, such as physical examinations. According to
officials we interviewed, control of the schedule for demobilization is in
the hands of the commanders of the installations where demobilization
occurs, subject to guidance from the armed forces on briefing topics and
activities that must be covered.

TAP provides information and links to a broad range of benefits and
services for separating service members to ease their transition to
civilian life. The topics that must be covered in TAP are spelled out in
law4 and include employment and relocation assistance, education
opportunities, health and life insurance, and financial planning. Most of
the benefits become available to service members once they have separated
and are veterans, but to be eligible for certain of these benefits,
service members must take specific actions while they are still on active
duty. The information that TAP provides on benefits and services needs to
be accurate and up to date, reflecting the most recent changes in law.
Changes enacted in 2004, for example, permit Reserve and National Guard
members who were called to active duty after September 11, 2001, to obtain
a year's worth of health insurance coverage for themselves and their
family for each 90 days of active duty, as long as they contribute a share
of the cost and continue to serve in a reserve capacity after they are
released from active duty. Service members must select this coverage while
on active duty and enroll within 180 days of release from active duty or
they forfeit their right to this benefit.

To take advantage of the various benefits and services, separating service
members need to be aware of the benefits and services and know how to
access them. For example, service members who have been on active duty
continuously for 24 months and plan to pursue an education may receive up
to $816 a month under the Montgomery GI Bill, if they have not previously
declined the benefit. According to DOD, about 5,800 members of the
Reserves and National Guard had been on active duty long enough on January
31, 2005, to qualify for this benefit, which usually is available only to
full-time active duty military personnel.

TAP is designed to serve as a gateway to additional information and
services that are available, either while service members are on active
duty or after they have separated and returned home. For example, the DOL

4See 10 USC 1142 and 1144 for required information and services that
constitute TAP.

workshop highlights many of the skills and techniques helpful in obtaining
employment. After completing the workshop, service members can benefit
further by refining their resumes, practicing their interviewing skills,
and using computers to conduct job searches. To take advantage of
opportunities to do so, they are welcome to return to TAP offices on
military installations. Even after service members have separated from
active duty, DOD policy permits them to use the services at military
installations during the 180 days following their separation. They are
also encouraged to contact state workforce agencies' One-Stop Career
Centers near their homes for further employment and training services.

In our review of TAP in 2002,5 we found that the program was available to
service members but not all participated. Some service members faced
difficulties being released from military duties to attend TAP because of
the priority accorded their military mission or the lack of supervisory
support for TAP. For service members who were able to participate, TAP
varied in content and delivery, in part because the armed forces were able
to exercise their flexibility to tailor the program to better meet the
circumstances of their service members. For example, some service members
received additional services that were designed to enhance TAP; elsewhere,
service members in remote locations got a shorter version of TAP or
experienced the program through videos rather than on-site facilitators.

TAP consists of separate components offered by DOD, DOL, and VA. These
federal agencies facilitate interagency coordination through regular
meetings and formal agreements. Participation in TAP varies by the
component offered and the military service responsible. Preseparation
counseling is the only component mandated in law and, accordingly, has had
the highest rates of participation over the 3 years ending in fiscal year
2004. In general, participation rates are lower for the voluntary
employment workshop. Among the services, the Navy and Marine Corps report
the highest rates for the employment workshop, with the Marine Corps
attributing its high rate to its recent policy of mandatory attendance.
Reserve and National Guard members returning from overseas may get similar
information but generally do not have time to attend formal TAP

5See GAO, Military and Veterans' Benefits: Observations on the Transition
Assistance Program, GAO-02-914T (Washington, D.C.: July 18, 2002).

  Administration of the Four Components of TAP and Participation Vary by Service

components during demobilization. Local installation commanders rather
than TAP managers control demobilization schedules.

    TAP Emphasizes Civilian Employment and Provides Information on Other
    Services and Benefits

The TAP program consists of four core components with a specific federal
agency responsible for the delivery and content of each, as shown in
figure

1. According to DOD, the primary goal of TAP is to prepare separating
service members and their families with the skills, tools, and
selfconfidence necessary to ensure successful reentry into the nation's
civilian workforce. TAP represents the completion of the military
personnel "life cycle" that begins with recruitment, continues through
active duty service, and ends when the service member returns to the
civilian sector. The first component is preseparation counseling that
provides a brief overview of services and benefits available to those who
are separating and is conducted by the armed forces. The second component
is an employment workshop conducted over 2 or 2  1/2 days by certified
facilitators following a DOL guide. The third component covers veterans'
benefits, including disability compensation, and is often provided on the
last day of the employment workshop by VA. The fourth component-the
Disabled Transition Assistance Program, conducted by VA-offers information
and counseling, primarily on vocational rehabilitation and employment
options. It also covers insurance, specially adapted housing, and the
Americans with Disabilities Act, for individuals who have or think they
may have a service-connected disability.

Figure 1: TAP Time Frames, Components, and Providers

                             Source: GAO analysis.

Preseparation counseling is the only component where attendance is
mandated in law; participation in all the other components is voluntary
unless DOD or the services decide otherwise.6 All separating service
members with at least 180 days of active duty must receive preseparation
counseling. This component introduces all the subsequent components,
highlighting each of them briefly. Each military service is required to
provide the counseling prior to release or discharge as specified in law
and to identify the type and source of benefits and services available in
the following areas: employment, relocation, education, health and life
insurance, and financial planning. Separating service members complete a
checklist during this component, certifying that they have been informed
of the services available to them and indicating with a check mark any
subsequent services they wish to receive, such as the employment

6Participation in the employment workshop, however, has been mandatory for
those separating from the Marine Corps, since the policy went into effect
in December 2001.

workshop. A copy of this signed checklist becomes a part of the individual
service member's personnel record and, according to DOD officials, is
required before the service member can be separated or demobilized. See
appendix II for a complete list of the specific services and benefits
covered, as indicated on the preseparation counseling checklist.

More hours are set aside for the employment workshop than for any other
component. As shown in figure 1, from 22 to 30 hours are scheduled for the
delivery of all TAP components, with 16 to 20 hours devoted to this
workshop. This emphasis on preparation for civilian employment is
consistent with the purpose of TAP when it was established in 1990. Agency
managers explained that TAP was designed to serve full-time active duty
service members who generally had little prior civilian employment
experience and might have had difficulty transferring skills acquired in
the military to the civilian economy. Many had specialized in critical
skills, such as those utilized in combat arms, which could not be easily
transferred to civilian occupations. Helping military personnel translate
their military experience into skills valued in the civilian workforce was
viewed as of paramount importance. Although the Reserves and National
Guard were specifically identified in the law that established TAP, the
program was designed to meet the needs of full-time active duty service
members because most Reserve and National Guard members had not served in
an active duty capacity long enough to be eligible for TAP.7

After separating service members complete one or more of the core TAP
components, they may obtain additional, individualized counseling on
specific benefits and services at TAP offices located on military
installations. They may have access to automated tools designed to help
them prepare resumes or cover letters to potential employers or
opportunities to practice their job interview skills. Service members are
also encouraged to contact state workforce agencies' One-Stop Career
Centers and VA hospitals for additional services after they return home.

Although veterans' service organizations do not have a formal role in the
provision of TAP, they often serve as an informal referral resource for
service members who seek their assistance. To varying degrees, the

7Many members of the Reserve and National Guard were called to active duty
for the Persian Gulf War, from 1990 to 1991, at the time when TAP was
established, but they were demobilized after serving less than 180 days on
average. For the next decade, relatively few were called to active duty.

veterans' service organizations that we contacted were primarily involved
in helping service members complete claims such as those for VA disability
compensation, as well as claims for other VA benefits and medical
treatment. Other activities performed by the veterans' service
organizations include briefings on VA benefits and advice and counseling
on a range of issues. Many military installations have provided these
organizations with office space where they can assist service members.
Certain veterans' organizations, such as the Disabled American Veterans,
AMVETS, and the Veterans of Foreign Wars, have taken advantage of this
opportunity. For example, the Disabled American Veterans reports that it
has 25 staff members located on installations who assist service members
at about 80 military installations and 18 military treatment facilities.

    Interagency Meetings and Agreements Assist in Coordination and Oversight

To facilitate interagency coordination and oversight, the federal agency
partners established the TAP Steering Committee, which is chaired by DOL.
Each federal agency has also designated a single person as the point of
contact for TAP, generally referred to as the agency TAP manager. In
addition, within DOD, each of the armed forces has identified a single
person who is responsible, generally referred to as the service TAP
manager. The DOD managers meet as a group on a quarterly basis and also
with other agency TAP managers on a quarterly basis to discuss issues,
propose initiatives, and act as a sounding board. Any problems that
develop and are not resolved at the local level can be sent back to the
Steering Committee for resolution.8

Broad planning and budgeting for TAP takes place at the federal level
within DOD and DOL--the only agencies that have funds dedicated to the
support of TAP. DOD and the services estimate that about 200,000 service
members, not including members of the Reserves and National Guard, have
been eligible for TAP each fiscal year since 2001 and have provided an
average of $45 million per year in budget authority. (See app. III for a
breakout by military service.) DOL develops its TAP budget using DOD's
estimates of the number separating and historical information that about
70 percent of those separating actually attend the employment workshops.
DOL reports that in fiscal year 2004 it actually spent about $13 million
on TAP. VA estimates that it spent $0.7 million in the same year for its

8In addition to the committee meetings, annual conferences held in 2000,
2001, and 2002 brought together all the entities responsible for TAP to
share information on the program and, in some cases, propose improvements.

components of TAP. (For more information about the scheduling and delivery
of employment workshops and other TAP components at the local
installations, see app. IV.)

To clarify the roles of the federal agencies involved, an interagency
agreement is required by law for all TAP components except preseparation
counseling, where DOD has sole responsibility. Pursuant to law, the roles
and responsibilities of DOD, DOL, and VA for the transition program are
outlined in a 1994 agreement called a memorandum of understanding.9 (See
fig. 2.) Under this agreement, DOL has the leadership role in delivering
the employment workshops, DOD ensures that service members participate and
supplies logistical support, and VA provides information on veterans'
benefits and delivers the DTAP component for separating members who have
or may have service-connected disabilities. A separate 1993 agreement
between DOD and VA outlines how VA provides its TAP components overseas,
with VA providing the staff and DOD providing the funding and logistical
support.10 In addition to carrying out these agreements at the national
level, the federal agencies encourage similar agreements among state and
regional offices and the installations located in their areas.

9A revised agreement ready for signature in 2005 includes the Department
of Homeland Security, the agency responsible for the Coast Guard.

10According to VA, DOD provided $364,000 to VA for this purpose in fiscal
year 2004, a 23 percent increase from the prior year due to the
fluctuating value of the U.S. dollar against other foreign currencies.

Figure 2: The Key Interagency Agreement and Committees Involved in
Coordination and Oversight of TAP

                             Source: GAO analysis.

Uniformity in the content and quality of TAP is achieved in part by
standardized guidebooks and manuals as well as certification of
facilitators for one or more components. For both preseparation counseling
and the employment workshop, participants receive guidebooks or manuals
covering topics identified in the law that

established TAP.11 Like instructional textbooks, the guidebooks and
manuals help structure how these components are presented. In addition,
manuals have been developed for use by the individuals who facilitate the
employment workshops, and all workshop facilitators must be trained and
certified by the National Veterans' Training Institute.12 For oversight
purposes and to help ensure the quality of the workshops, DOL asks
participants to complete a critique form shown in appendix V. On the form,
participants have an opportunity to provide comments and suggestions and
also indicate on a scale how much they have gained from the information
presented. DOL facilitators review the forms to assess the level of
satisfaction of participants and consider suggestions for improvements.
Although the VA components of TAP do not have comparable guides or
manuals, VA officials explain that the slides and handouts they use can be
more easily updated to conform to changes in the laws governing veterans'
benefits.

The demobilization of Reserve and National Guard members, however, is
outside the control of the TAP managers. DOD and armed forces guidelines
establish the procedures governing demobilization and the topics to be
covered, but individual installation commanders have discretion over the
actual schedule. To provide TAP information to Reserve and National Guard
members in 2003, the DOD TAP manager and service managers prepared written
materials for distribution at demobilization. The materials included a
laminated, pocket-sized preseparation guide written for Reserve and
National Guard members that highlighted all of the benefits and services
available and provided Web site addresses and toll-free numbers.

TAP's Delivery and Depending on the branch of military service or command
responsible, the Participation Vary by location, and other circumstances,
the amount of time devoted to the TAP Circumstances, components may vary.
Other variations include the extent of personal

attention given participants and the instructional method used.Component,
and Service Preseparation counseling may take the form of individualized,
one-on-one

11For a copy of the October 2001 edition of DOD's participant guide to
preseparation counseling, see
http://www.dodtransportal.org/dav/lsnmedia/LSN/dodtransportal. For the
November 2002 edition of DOL's participant manual for the employment
workshops, go to http://www.dol.gov/vets/programs/main.htm.

12For a copy of the 2002 edition of DOL's manual for employment workshop
facilitators, see
http://www.nvti.cudenver.edu/tapfacilitator/home/index.htm. The Air Force
also has a manual for personnel who conduct the Air Force preseparation
counseling; see the March 2005 edition at
http://www.afpc.randolph.af.mil/famops/trans.htm.

counseling sessions of an hour or more or it may take the form of group
briefings, depending in part on the time available and the numbers to be
counseled. Group sessions are more common at large bases like those
maintained by the Army and Marine Corps, where many individuals are
separating. Also, the Army has made use of technology and offers
preseparation counseling at banks of computers that use interactive
programs and include headphones so that participants can work
independently and at their own pace while remaining part of a group. In
the Navy, transition assistance may take place on board ship rather than
at military installations.

TAP varies in part because the military services are able to exercise
their flexibility to tailor the program to better meet the circumstances
of their service members. While some service members receive additional
services designed to enhance TAP, others at remote locations may
participate in TAP by video or telephone because there are no trained
personnel on-site. Because of the demobilization timetables, many Reserve
and National Guard members cannot take advantage of TAP components offered
to fulltime active duty military personnel and instead receive much
shorter presentations as part of large groups at demobilization
briefings.13 For example, members of the Reserves and National Guard may
be offered a 45-minute veterans' benefits briefing by VA at the
demobilization briefing while 3 to 4 hours of veterans' benefits briefing
are provided other military personnel on the last day of the TAP workshop.

Participation also varies by the military service involved and the
component of TAP offered. For example, the Army had about twice as many
service members attending preseparation counseling as any one of the other
services from fiscal year 2002 through 2004. During the same period, the
number of Army Reserve and Army National Guard members attending
preseparation briefings at demobilization increased more than ten-fold,
from about 9,000 to about 93,000. (App. VI shows the number of service
members who separated and those who attended TAP components by military
service.)

As expected, estimated participation rates have been the highest for
preseparation counseling where attendance is mandated in law. The

13The 30-minute briefing on health insurance options we attended during
demobilization at Fort Bragg was longer than the time provided during
preseparation counseling for other service members, but the other members
would generally have more time while still on active duty to obtain
further information, study their options, and arrive at their decision.

average rates for the three years ending in 2004 have ranged from 76
percent to over 100 percent, depending on the military service. 14 Also as
expected, the estimated participation rates are generally lower for the
3,000 or more employment workshops held each year, where attendance is
voluntary. The average rates for the three years ranged from 56 percent to
86 percent. This represents the number attending the workshops as a
percentage of all who separated and were eligible for TAP.15 The Army
reports that about 20 percent of those eligible each year indicated that
they were not interested in attending the workshops. The Marine Corps,
which has mandated attendance at the employment workshops, and the Navy
show the highest participation rates over the three years. Although the
Navy shows higher rates for participation in employment workshops than in
preseparation counseling, the discrepancy is more likely a reflection of
reporting problems than of actual attendance, and the actual numbers of
service members receiving counseling is probably higher.16 Retirees were
disproportionately represented in the employment workshops. Across the
armed forces, about one-third of all who participate are retirees,
although they constitute about one-fifth of all who separate. The
remainder are those separating or released prior to retirement.

No data are available for participation in the VA components of TAP.
Because the veterans' benefits briefings are usually held on the last day
of the employment workshops, VA officials indicated that the participation
rates for their briefings are equivalent to the rates for the employment
workshops. In addition, VA told us that DTAP is provided to all service

14Some rates shown in appendix IV for the Army and Marine Corps exceed 100
percent for participation in preseparation counseling after fiscal year
2002. DOD explains that these rates reflect three scenarios. Because of
the "stop loss" policy, some service members who expected to separate and
received the required counseling had to remain on active duty. Other
service members chose to reenlist, including about 9,700 Army personnel in
fiscal year 2004. Finally, because the counseling is encouraged so far in
advance of separation, some participants who received counseling in one
fiscal year did not separate until the following year.

15A more accurate rate would compare the attendance numbers with the
numbers of those who indicated an interest in attending the workshop, but
these data were not available for all services and years.

16In the Navy, uniformed military personnel conduct preseparation
counseling. Because these personnel often have other responsibilities or
they are located aboard ship for extended periods of time, the manual
records of attendance that are forwarded to transition assistance staff
may be incomplete or delayed. DOD told us that the Navy TAP manager is
working to improve reporting.

members who are receiving care or separating from medical treatment
facilities by VA counselors who are located at or make regular visits to
these medical facilities.17 However, no data are available to determine
the number of individuals eligible for DTAP, and VA's records do not
distinguish the number who participate in this component from the total of
all recipients of VA outreach briefings.

Very few members of the Reserve or National Guard are able to attend the
employment workshops, although at demobilization they complete their
preseparation counseling checklists and may be briefed on veterans'
benefits and health insurance coverage options, depending on the schedule
developed for demobilization. The TAP managers with DOD and the military
services explained that the chief problem is lack of time during
demobilization, which is often completed in 5 days. In addition, many of
these service members are anxious to return home and are not interested in
prolonging their stay to attend workshops. Further, many have jobs at home
that are being held for them, so they may not need to attend the
employment workshop. However, the TAP managers also told us that they
believe that employment information in some form is relevant and useful
for some Reserve and National Guard members. They noted that some were
self-employed before they went on active duty, and their businesses may
have suffered or gone into bankruptcy in their absence. Other service
members may have worked for companies that have gone out of business since
their active duty began. Other members might prefer to find better jobs
than the ones they held before they went on active duty. While TAP
managers were not able to provide data on the number who might be
interested in attending the employment workshop, members of the Reserves
and National Guard we met generally confirmed the views of the TAP
managers.

17DOD reports that about 3,500 service members were placed on the
temporary disability retirement list in 2004. For information on DOD's
disability system under which separating service members with disabilities
may be placed on temporary retirement, see GAO, DOD Disability: Overview
of Compensation Program for Service Members Unfit for Duty,

GAO-01-622 (Washington, D.C. April 27, 2001).

  Many Actions are Under Way to Improve TAP, but Challenges Remain in Meeting
  the Needs of Reserves and National Guard

The agencies administering the program have taken several actions to
improve TAP program materials for all eligible personnel separating from
the military, including Reserve and National Guard members. In addition,
the agencies have taken steps to increase participation, primarily among
full-time active duty military personnel. However, despite efforts so far,
challenges remain, particularly in meeting the needs of demobilizing
Reserve and National Guard members for transition assistance.

    Several Actions Directed at Improving Program Content

DOD is updating information and reconsidering the topics to be covered
during preseparation counseling, based on its assessment of the differing
needs of participants. As a result, DOD plans to eliminate the "one size
fits all" approach currently in place. For full-time active duty service
members, it has drafted an updated counseling checklist. To meet the needs
of demobilizing Reserve and National Guard members, it has drafted a
separate counseling checklist tailored to their circumstances. (See app.
VII for the changes that are planned to the form shown in app. II.) In
updating the information for both groups, DOD added several Internet sites
so that service members can follow up to obtain more information on
available services and benefits, including sites explaining options for
health insurance coverage. To better meet the needs of Reserve and
National Guard members, their new checklist eliminates information on
benefits that apply only to active duty members, such as relocation
assistance and separation pay. Instead, the new form provides benefit
information applicable to demobilizing Reserve and National Guard service
members, such as reemployment rights, employer support, and loan relief.

DOD is taking the same approach to the revision of the guidebook and other
materials used in preseparation counseling. DOD officials plan to update
the preseparation guide that contains information on services and benefits
available to service members separating from full-time active duty. In
addition, they are developing a separate guide for demobilizing Reserve
and National Guard personnel. Meanwhile, the military services have
developed new materials specifically geared toward the needs of Reserve
and National Guard service members. For instance, the Army reported that
it uses a separate script and slides for preseparation counseling of
demobilizing Reserve and National Guard service members and gives them a
handout on services and benefits tailored to their needs as well as a
calling card with the telephone number of a resource center that these
service members can contact for one-on-one assistance.

DOL and VA are also taking actions to improve the information they provide
on benefits and services available to separating service members. DOL
plans to use focus groups and survey data to assess the strengths and
weaknesses of its employment workshop curriculum in serving the needs of
all service members.18 VA has improved its marketing activities by issuing
pamphlets, brochures, a videotape, and a wallet-size card with information
on how to obtain further information about VA health care and benefits.
One of its brochures is entitled "A Summary of VA Benefits for National
Guard and Reserve Personnel."

To ensure that all participants have the information they need in DTAP, VA
formed a task force in 2004 to restructure and standardize the DTAP
curriculum to meet the needs of all separating service members who have or
may have a disability and invited DOD and the military services to
participate. As a result, VA has developed a new curriculum with video,
slides, and a script for DTAP. This standardized DTAP curriculum is
intended to provide extensive information on VA's vocational
rehabilitation and employment services. VA also issued a quick reference
guide to present information about vocational counseling, rehabilitation,
and employment services available to active duty service members as well
as veterans with service-connected disabilities. The guide is intended for
distribution at DTAP sessions offered at military installations and
treatment facilities and for other purposes and locations as appropriate.
Along with this new effort, VA continues its outreach campaign to contact
all service members in need of these services.

    Actions Are Planned or Under Way to Increase Participation in TAP

DOD and its partner agencies are considering or have undertaken several
actions designed to increase participation in TAP, including

o  	making attendance mandatory or mandating that service members receive
permission to attend TAP, so that individuals have the opportunity to
participate with the support of their commanders or other leaders;

o  	emphasizing the importance and relevance of veterans' benefits by
offering this information before the employment workshop as a standalone
briefing by VA;

18In addition, DOL told us that the next update of its participant manual
will include information on how a veteran with a service-connected
disability who wants to own his or her own business could take advantage
of the opportunity to obtain federal procurement contracts in accordance
with Presidential Executive Order 13360, issued October 21, 2004.

o  	sending DOL contractors and VA staff overseas to present their TAP
components to service members located at bases around the world; and

o  	developing a centralized database to automate and manage information
on participation.

Recently, the TAP service representatives at DOD proposed to the Secretary
of Defense that participation in TAP be mandatory. Under the proposed
policy change, all service members would be required first to attend
preseparation counseling. Following preseparation counseling, all service
members would be required to attend the veterans' benefits briefing,
because the range of benefits is extensive and likely to affect the lives
of most separating service members. In addition, attendance at DTAP would
be required of all service members who have or think they have a
service-connected disability, are awaiting a medical discharge, or have
incurred an injury or illness while on active duty, or aggravated a
preexisting condition. Further, service members with an interest in
attending the employment workshop who check "Yes" on the preseparation
counseling form would receive permission, without exception, to attend the
DOL-or service-sponsored employment workshop in its entirety.

The policy change in TAP participation is being proposed to (1) bring more
consistency to the overall program, (2) allow more service members to
access TAP, and (3) encourage commanders to release service members to
attend the VA briefings and all other relevant components of TAP. In 2002,
we reported that the support that commanders and supervisors have for
transition services may determine the degree to which service members have
access to the services. If supervisors are not supportive of the
transition assistance, or if they feel that mission needs are too
pressing, they may be reluctant to allow service members under them to
access services offered. Some service members we met told us that they
faced difficulties being released from military duties to attend TAP
because of the priority accorded their military mission or the lack of
supervisory support for TAP. They said that even when commanders support
attendance at the workshop, others-such as the platoon, section, or unit
leaders-may be reluctant to approve requests to attend the workshops. This
proposed policy change is designed to address these issues.

In addition, VA and DOL are taking actions to improve access to transition
assistance for active duty service members stationed overseas. It is
important for service members stationed overseas to receive transition
assistance there, especially for those who separate at overseas locations.

Starting in 1993, VA sent six military service coordinators or veterans'
benefits counselors to U.S. military installations located in Europe and
later increased the staff to seven, assigned them for tours of 3 to 6
months, and extended their territory beyond Europe. However, VA has no
staff overseas for 3 months each year. In 2003, DOL began phasing in its
employment workshops, first using its own staff and later contractor
personnel living overseas, rather than relying on the military services to
conduct overseas employment workshops, as had been the case previously.
Standard operating procedures are being developed to clarify the roles and
responsibilities of DOL, DOD, and VA in the delivery of employment
workshops at overseas locations. Currently VA provides its benefits
briefings at 68 military installations and plans to have a military
service coordinator in Bahrain starting in May 2005,19 while DOL provides
its employment workshops at 49 military installations and plans to expand
to additional installations. (See app. VIII for a list of locations
overseas where DOL and VA offer TAP.)

In January 2005, the TAP managers with DOD and the military services met
to discuss ways to better understand service member participation in TAP.
In particular, they discussed the development of a centralized database to
automate and manage information on the participation of active duty and
Reserve and National Guard service members. This new information system is
in the initial planning stages. It would provide DOD and the services with
the capability of disaggregating data on service members attending
preseparation counseling to identify those who are retiring or separating
voluntarily or involuntarily. The system would also provide information on
the reasons why service members do not receive preseparation counseling at
least 90 days prior to separation or retirement, as required by law. In
addition, the new information system would permit DOD and the services to
analyze information specifically relevant to active duty service members
or to Reserve and National Guard service members.

    Challenges Remain in Meeting the Needs of Reserve and National Guard
    Service Members

Although several actions are under way or planned to improve TAP,
challenges remain, particularly in designing transition services that
better accommodate the schedules of demobilizing Reserve and National
Guard service members. DOD acknowledges that this presents several unique
challenges, that the service members have not been surveyed to determine

19Although VA is sending staff overseas to provide benefits briefings, it
does not have the staff to provide DTAP overseas.

how to meet their needs, and that further study might suggest ways to
address the challenges, primarily in the logistics of when and where to
offer TAP. Table 1 describes some of the key differences in circumstances
between Reserve and National Guard members and others separating that need
to be considered.

Table 1: Circumstances of Reserve and National Guard Members Compared with Those
                              of Others Separating

Demobilizing Reserve and National Guard members Full-time active duty
members

During the demobilization process, little or no time is available to
address transition assistance issues thoroughly.

Most can begin accessing TAP services 12 months prior to separation or 24
months prior to retirement.

Most are demobilized at a location in which they do not work and Most attend TAP
                 at the same location where they work and live

live.

                              with their families

Some are likely to have serious financial issues. Most do not have serious
financial issues.

Most are anxious to reunite with their families and reintegrate into
Reunion and reintegration are not issues for most. the community.

Source: TAP managers with DOD and the military services.

The TAP managers for DOD and the military services identified several
challenges in designing transition services that better meet the needs of
demobilizing Reserve and National Guard service members. Staff who provide
transition assistance may not know when Reserve and National Guard units
are returning for demobilization, because national security concerns
prevent the release of information on the movement of large numbers of
service members. Moreover, the time scheduled for demobilization varies by
service and demobilization site. Commanders are challenged with trying to
balance demobilizing some units while at the same time mobilizing others.
They also balance getting Reserve and National Guard members back to their
families as quickly as possible with the extra time needed for transition
assistance. Finally, DOD, VA, and DOL do not know the amount of resources
needed to provide transition assistance in a different format, such as
providing TAP after the Reserve and National Guard service members have
returned home and begun to readjust to civilian life. At this point, they
may be more receptive to TAP and better able to define their needs.

DOD's proposed policy revisions acknowledge logistical issues that limit
access for Reserve and National Guard members to TAP. For example, the
planned changes to the preseparation counseling checklist require that
demobilizing service members be released by commanders to attend the
employment workshop only if there is time to complete this component
before they are released from active duty. Under current demobilization
schedules, Reserve and National Guard members do not have sufficient

time to attend the workshops. Further, the TAP managers with DOD and the
military services told us that they did not know how many demobilizing
service members would be interested, if time could be made available, or
how the content should be altered to meet their special needs.

To deal with the logistical challenges, the TAP managers for DOD and the
military services are considering the option of providing some TAP
components to Reserve and National Guard members after they have been
demobilized, and DOL is involved in state pilot programs to test this
option. DOD officials envision VA presenting its benefits briefing and
DTAP, where applicable, during a scheduled drill weekend after the service
members have been home for 45 to 60 days. DOD officials believe such an
option would require additional resources and a mandate that Reserve and
National Guard commanders allow sufficient time for staff to provide the
transition assistance. However, the TAP managers do not know how many
Reserve and National Guard members might be interested and able to attend
such activities. Meanwhile, DOL is currently involved in three state pilot
programs of employment workshops designed for returning Reserve and
National Guard members. One in Minnesota will offer a shortened version of
the employment workshop, using a curriculum based on input from unemployed
or underemployed Reserve and National Guard service members. The pilot
program will involve a change in National Guard rules so that members can
be required to attend the activity 30 days after their release, when they
may be facing financial and other problems. In Oregon, DOL is working
closely with the National Guard and the state workforce agency to provide
employment workshops to National Guard members. The first workshops were
offered in March 2005. In Michigan, the state workforce agency is
negotiating with the Reserves and National Guard to arrange a 4-day
workshop, where these personnel will work alongside veterans who are
receiving intensive case management services at the One-Stop Career
Center.

Besides limiting access to the employment workshops, short demobilization
time frames may also result in Reserve and National Guard members who are
not informed in a timely manner of the requirement to apply for health
insurance coverage and certain VA education benefits while on active duty.
The National Guard members we spoke with who had attended the VA benefits
briefing told us that they could not recall being informed of the need to
apply for these benefits while on active duty; these members included one
who believed that he had been on active duty long enough to qualify for
the more generous education benefits. They indicated that too much
information was covered in the 45-

Conclusions

minute benefits briefing they received from VA at demobilization and
believed that at a minimum the VA should have highlighted the significance
of applying immediately, explained what information was required, and told
them where to submit the application. They added that they were unfamiliar
with the services and layout of the installation where they were
demobilizing, because they were only passing through on their way home.

The men and women who serve in our armed forces, particularly now that the
U.S. military has increased its presence in contingency operations around
the world, put their lives on the line every day. For this reason, it is
important that the government do all it can to help servicemen and women
successfully transition to civilian life after service ends. Unlike their
fulltime active duty counterparts, however, the Reserves and National
Guard members returning from active duty overseas who might opt for
transition assistance do not always have the opportunity to participate in
formal TAP components. Although they receive some of the same information
in briefings at demobilization, they may be required to attend as many as
18 briefings and activities over 5 days, most dealing with issues other
than TAP, such as legal and medical matters. As a result, the information
on available benefits is often abbreviated and may not emphasize certain
benefits, including some education and medical benefits, that they may
forfeit if the service members do not apply while they are still on active
duty. In addition, because these personnel are released from active duty
within days of returning to the United States, any transition assistance
must fit within this compressed time frame, and be offered overseas near
the areas of combat or after the service members have returned home. The
agencies responsible for TAP are aware of the challenge but have not
determined the number interested, the appropriate topics, or the optimal
timing and location. Moreover, for service members who have incurred
disabilities, DTAP information is critical. Yet VA does not keep track of
how many service members attend DTAP. Better program statistics in this
area could help VA meet the needs of these service members and provide
follow-up assistance.

Recommendations for 	To ensure that members of the Reserve and National
Guard have the opportunity to benefit from transition assistance, we
recommend that

Executive Action	DOD, in conjunction with DOL and VA, determine what
demobilizing Reserve and National Guard members need to make a smooth
transition and explore the logistical options for providing that
assistance, such as opportunities for employment workshops before or after
their

demobilization and providing timely information about the need to apply
for certain benefits while still on active duty. To develop more accurate
program statistics, we also recommend that VA keep track of service
members who attend DTAP to ensure that adequate follow-up is possible with
this population, which may be in particular need of the services.

                                Agency Comments
                               and Our Evaluation

We provided a draft of this report to DOD, DOL and VA for review and
comment. All concurred with our findings and recommendations. The written
comments from these agencies appear in appendixes IX through

XI.

DOD said that the report accurately portrays the program and its
operational processes and also recognizes logistical and other challenges
in meeting the needs of Reserve and National Guard service members. DOD
agreed with our recommendation and stated its commitment to work with its
partner agencies to determine the needs of these service members for
assistance, explore options to enhance their participation, and ensure
that they receive timely information on the need to apply for certain
benefits before they are released from active duty.

DOL acknowledged the need for continuous monitoring and refinement of the
employment workshops. DOL stated it will offer its assistance to DOD in
determining the TAP workshop requirements for members of the Reserves. In
addition, DOL highlighted several initiatives described in the report that
are designed to improve transition services, such as the pilot programs in
three states that provide employment information to service members after
their release from active duty. DOL noted that the lessons learned and
best practices that are derived from these pilot programs will be
disseminated widely.

VA said it recognizes the need to emphasize time limits for establishing
eligibility for certain benefits while on active duty, especially
education and medical benefits. VA added that it is developing a brochure
to describe a new education benefit for members of the Reserves and
National Guard. VA also explained that it is developing a process to track
DTAP participation, as we recommended. In addition, an agreement with the
National Guard Bureau has been drafted so that VA will know when and where
demobilizing members return to their communities.

We are sending copies of this report to appropriate congressional
committees, the Secretaries of DOD, DOL, and VA, and other interested
parties. Copies will be made available to others upon request. In
addition,

the report will be available at no charge on GAO's Web site at
http://www.gao.gov. If you have any question about this report, please
call me at (202) 512-7101. Key contributors are listed in appendix XII.

Cynthia A. Bascetta Director, Education, Workforce, and Income Security
Issues

                       Appendix I: Scope and Methodology

To assess how the transition assistance program (TAP) is administered, we
reviewed the legislative and regulatory history of TAP, including records
of congressional hearings, and interviewed responsible officials,
including TAP managers and other officials from the Departments of Defense
(DOD), Labor (DOL), and Veterans Affairs (VA); the armed forces; Reserve
Affairs; and the National Guard Bureau. We did not interview officials
from the Department of Homeland Security concerning the Coast Guard. We
reviewed memorandums of agreement among the federal agencies involved,
minutes of Steering Committee meetings, as well as policy directives
prepared by DOD and VA. We reviewed TAP program materials, including
guidebooks and manuals prepared for participants and facilitators, slides,
videos, and handouts. To examine the role of veterans' service
organizations-the extent of their participation in TAP and their views on
what their role should be-we conducted structured interviews with
officials in the following organizations: AMVETS, Disabled American
Veterans, American Legion, Paralyzed Veterans of America, and Veterans of
Foreign Wars.

To experience firsthand the challenges of providing TAP to members of the
Reserve and National Guard returning from overseas, we visited Fort Bragg,
North Carolina, on February 23-24, 2005. At Fort Bragg we observed a
morning demobilization briefing given to members of the Army National
Guard that covered several topics, including VA veterans' benefits, health
insurance, and completion of the preseparation counseling checklist. We
also attended the formal TAP preseparation counseling, two concurrent
employment workshops, and the briefing on VA veterans' benefits for other
service members. In addition, we discussed transition assistance with the
installation command, program providers, and demobilizing service members
who participated in the demobilization briefing as well as other service
members who participated in the formal TAP components.

To show the level of participation in TAP for each of the armed forces for
each fiscal year from 2002 through 2004, we obtained from the TAP managers
the number of service members participating in two of the four components
of transition services-preseparation counseling and the DOL employment
workshop. VA data do not separately identify the number of service members
attending its benefits briefings or Disabled Transition Assistance Program
sessions. However, VA told us that in the United States the number of
service members attending the employment workshop should approximate the
number attending the VA benefits briefings, because the VA briefings
usually follow the employment workshops.

Appendix I: Scope and Methodology

To estimate the rate of participation in preseparation counseling, we used
data from the armed forces on the number of service members discharged who
had served on active duty for at least 180 days and data on the number of
service members who had completed the preseparation counseling checklist.
To estimate the rate of participation in the DOL employment workshop, we
used data provided by DOL on service members completing the workshop and
DOD data on service members discharged who had served on active duty for
at least 180 days. We note that the DOL workshop is not mandatory and not
all service members express an interest in taking the workshop. Because
the number of service members interested in taking the workshop was not
available for all the armed forces, our estimate represents the number of
service members completing the workshop in relation to the number of
service members discharged, not the number who indicate they wanted to
attend the workshop. We would expect the estimated rate of participation
in the DOL employment workshops to be higher if we were able to compare
the number participating with the number expressing an interest in
participating.

We consider the rates shown in appendix VI to be estimates, because many
of the service members who participated in a component during one of the
years shown were not among the service members who separated that same
year. By law, the armed forces must try to provide preseparation
counseling between 1 and 2 years prior to separation. This means that
service members may participate in TAP in 2002 but not be counted as
separating until 2004. Further, some service members who participate do
not separate as planned, either because of their personal decision to
extend or reenlist, or the armed forces' policy of stop loss. Stop loss
keeps individuals on active duty beyond their normal date of separation or
retirement and has been implemented at various times by all of the armed
forces since September 2001. For these reasons, the estimated rates for
the Army and Marine Corps in the mandatory preseparation counseling
component exceeded 100 percent in 1 or more years.

To assess the reliability of the data on the number of service members
discharged with at least 180 days of active duty service and the number
participating in TAP, we reviewed documentation about the data systems and
data entry, interviewed agency officials knowledgeable about the data, and
worked closely with agency officials when we found discrepancies to
understand or correct them. We determined that the data were sufficiently
reliable for the purposes of this report. We conducted our work from
December 2004 through April 2005 in accordance with generally accepted
government auditing standards.

Appendix II: Checklist Used by the Armed
Forces in Preseparation Counseling until
Fiscal Year 2005

Appendix II: Checklist Used by the Armed
Forces in Preseparation Counseling until
Fiscal Year 2005

Appendix III: Transition Assistance Funding by Military Service, Fiscal Years
2002 through 2004

                             In millions of dollars

                    Military service FY 2002 FY 2003 FY 2004

                  Air Force funding source DOD $8.9 $8.8 $8.9

Air Force 0.6 0.7

Total 9.5 9.5

                              Army funding source

DOD 13.3 13.3

Army 7.9 6.0

Total 21.1 19.3

                          Marine Corps funding source

DOD 4.0 4.0

Marine Corps 0.5 0.7

Total 4.5 4.7

                              Navy funding source

DOD 11.0 10.2

Navy 0.0 0.0

Total 11.0 10.2

          Total funding source                                
                  DOD                       37.2     36.3             36.5 
                Services                     9.0     7.4               8.7 
                 Total                     $46.2    $43.7            $45.3 

Source: DOD.

DOD's budget assumes an estimated 200,000 full-time active duty personnel
have been eligible for TAP each fiscal year since 2001. The number of
participants is based on lists drawn up by the military services of
personnel who have indicated their interest in separating as well as those
who may be uncertain about their decision. This list constitutes the
anticipated separations but does not include unanticipated separations or
demobilization of Reserve and National Guard members. DOD officials note
that funding for TAP has been flat since fiscal year 1995; prior to that,
we reported that DOD spent about $83 million in fiscal years 1992 and
1993.

Appendix IV: Scheduling and Delivery of TAP Components at Military Installations

The scheduling of employment preparation workshops generally takes place
in one of the 44 states with medium to large military installations. DOL
relies on federal Veterans' Employment and Training directors1 assigned to
each state and territory, who meet with the commanders of the military
installations in their area and obtain estimates for the numbers
separating at each installation. Based on these planning figures, workshop
schedules are developed that are reviewed quarterly and may be adjusted
more frequently as long as DOL has at least 14 days' warning. Generally
DOL tries to have at least 15 participants in each workshop, but
preferably 25 to 35. If many additional participants are expected, DOL
officials told us that they will try to add a facilitator to give
participants more individual attention during certain sessions, for
example, when participants practice interviewing for jobs. In some cases,
the services have requested separate workshops for retirees only or for
senior personnel with different kinds of skills. Depending on its budget,
the number of potential participants, and the availability of facilitators
with the appropriate skills, DOL may honor such requests. For example, we
observed two employment workshops running concurrently at Fort Bragg, one
specifically for personnel in the higher pay grades.

The facilitators who conduct most of the employment workshops are state
employees supported by DOL grants who specialize in providing services to
veterans. They are either local veterans' employment representatives or
disabled veterans' outreach program representatives2 and must be trained
and certified by the National Veterans' Training Institute. For the
veterans' benefits component, VA generally relies on DOL to arrange for
the workshops and contact a local or regional VA representative to conduct
the VA briefing on veterans' benefits at the end of the workshop. Overseas
and at about 70 military installations in the United States, the
employment workshop facilitators are DOL contractors working for Native
American Management Services, and they are also trained and certified by
the institute. DOL officials we interviewed told us that they prefer to
have VA personnel present information on veterans' benefits because the VA
personnel usually have the expertise, experience, and most current

1These directors are employees of the U.S. Department of Labor who report
to the Assistant Secretary for Veterans' Employment and Training.

2For more information about the other responsibilities of these employees,
see GAO, Veterans' Employment and Training Service: Greater Flexibility
and Accountability Needed to Better Serve Veterans, GAO-02-192T
(Washington, D.C.: October 30, 2001).

Appendix IV: Scheduling and Delivery of TAP Components at Military
Installations

information necessary to advise participants concerning their personal
circumstances.

Page 34 GAO-05-544 Military and Veterans' Benefits

Appendix VI: Participation in Transition Assistance Program by Component, Fiscal
Year, and Military Service

Military service Fiscal year

                  Air Force                   2002  2003    2004    2002-2004 
         aTotal eligible separations        39,365 53,074  50,694     143,133 
Preseparation counseling participantsa   31,842 33,994  42,677     108,513 
      bPreseparation participation rate      80.9%  64.1%   84.2%       75.8% 
         cTotal eligible separations        23,994 31,847  32,954      88,795 
      Employment workshop participants      18,725 20,449  22,611      61,785 

             Employment participation rateb 78.0% 64.2% 68.6% 69.6%

Army Marine Corps

         cTotal eligible separations        73,450  62,541   80,001   215,992 
    Preseparation counseling participants   71,706  70,358   87,402   229,466 
      bPreseparation participation rate      97.6% 112.5%d  109.3%d   106.2%d 
      Employment workshop participants      36,441  40,238   44,109   120,788 
       Employment participation rateb        49.6%  64.3%    55.1%      55.9% 

c

             Total eligible separations 31,002 29,670 31,047 91,719

       Preseparation counseling participants 27,867 28,620 32,093 88,580

b

           Preseparation participation rate 89.9% 96.5% 103.4%d 96.6%

Employment workshop participants 19,964 27,132 28,424 75,520

Employment participation rateb 64.4% 91.4% 91.6% 82.3%

Navy

Total eligible separations 37,978 42,872 48,105                           
128,955                                                                   
Preseparation counseling participantse             24,885 38,642 38,071   
                                                                   101,598   
bPreseparation participation rate 65.5% 90.1%                             
79.1% 78.8%                                                               
                                                      32,647 36,680 41,003   
Employment workshop participantse                               110,330   

c

Employment participation rateb 86.0% 85.6% 85.2% 85.6%

Source: GAO analysis of DOD and DOL data

aNumbers include Reserve and National Guard members who demobilized after
at least 180 days of federal active duty. The Air Force count of
preseparation counseling participants does not distinguish these members
from other eligible members who participate. The Air Force TAP manager
believes that a more reliable measure of participation is a December 2004
audit of 400 personnel records of members separated from various
installations that shows 91percent had completed their preseparation
counseling checklists.

bThis is calculated as the percentage of total eligible separations. For
the employment workshops where participation is voluntary, a better
indicator would be the percentage of service members indicating an
interest in attending, but these data are not available for all services
and years.

cNumber of service members separating with 180 days or more of active
duty, not including Reserve and National Guard members.

Appendix VI: Participation in Transition Assistance Program by Component,
Fiscal Year, and Military Service

dRates may exceed 100 percent for several reasons. Participation in
preseparation counseling is encouraged 1-2 years prior to separation, so
some participants included in rate did not separate in that year; others
chose to reenlist or were required to remain on active duty past their
separation date because of the stop loss policy. The Army reports that in
2004 preseparation counseling participants included about 9,700
reenlistments that, if deducted from the numbers participating, would
bring the Army's rate down from 109 percent to 97 percent.

eThe Navy reports that the numbers of preseparation participants are
understated because of incomplete or delayed reports from uniformed
military personnel to transition staff, and that the actual numbers should
more closely approximate the numbers of employment workshop participants.

Appendix VII: Changes Planned in 2005 to Checklists Used by the Armed Forces in
Preseparation Counseling

Current checklist for all Draft checklist for active duty excluding
Reserve Draft checklist for Reserve and National separating service
members and National Guard Guard only

                             EMPLOYMENT ASSISTANCE

Teacher and Teacher's Aide       Corrected Internet site    Same as active 
                                                                         duty 
Opportunities/Troops to Teachers www.proudtoserveagain.com 
                                    Adds Internet sites        Same as active 
Federal Employment                                                    duty 
Opportunities                    www.us.jobs.com           
                                    www.go-defense.com        

State Employment Adds Internet Site Same as active duty Agencies/America's
Job Bank www.ajb.org

Not listed  Adds Career One-Stop             Same as active duty           
               www.careeronestop.org  
Not listed Omitted, not applicable        Adds Reemployment Rights         
                                           www.dol.gov/elaws/userra.htm       
Not listed Omitted, not applicable     Adds Employer Support for Guard and 
                                                                      Reserve 
                                                   www.esgr.org               

                    RELOCATION ASSISTANCE EDUCATION/TRAINING

Permissive (TDY/TAD) and       No change           Omitted, not applicable 
Excess Leave                                  
Travel and transportation      No change           Omitted, not applicable 
allowances                                    

Education benefits Adds Internet site Same as active duty
(Montgomery GI Bill, Veterans www.gibill.va.gov
Educational Assistance
Program, Vietnam-era etc.)

Additional education or training Adds Small Business Administration Same
as active duty options www.sba.gov

Licensing and Certification information

Adds Apprenticeship to title and sites:
(1) Department of Labor
www.acinet.org
(2) U.S. Army
www.cool.army.mil
(3) U.S. Military Apprenticeship Program
https://www.cnet.navy.mil/usmap/
(4) DANTES

                              Same as active duty
         http://www.dantes.doded.mil/dantes_web/certification/index.htm

Appendix VII: Changes Planned in 2005 to Checklists Used by the Armed
Forces in Preseparation Counseling

Current checklist for all Draft checklist for active duty excluding
Reserve Draft checklist for Reserve and National separating service
members and National Guard Guard only

Defense Activity for Non-Corrected Internet site Same as active duty
Traditional Educational www.dantes.doded.mil/
Support

HEALTH AND LIFE INSURANCE

60-day or 120-day extended Transitional Health Care Benefit - for
Eligibility Criteria Transitional Health Care Benefit - for Eligibility
Criteria and additional information go to www.tricare.osd.mil Military and
limited Dental benefits (Eligible involuntary Separatees)

  and additional information go to www.tricare.osd.mil Not listed Omitted, not
                                   applicable

(1) A member of a reserve component who is separated from active duty to
which called or ordered in support of a contingency operation if the
active duty is for a period of more than 30 days.

(2) A member who is separated from active duty for which the member is
involuntarily retained (Stop Loss) in support of a contingency operation.

(3) A member who is separated from active duty served pursuant to a
voluntary agreement of the member to remain on active duty for a period of
less than one year in support of a contingency operation.

www.tricare.osd.mil/TricareHandbook

Option to purchase 18-month Adds Internet Site Same as active duty
conversion health insurance. www.tricare.osd.mil/chcbp
Concurrent pre-existing
condition coverage with
purchase of conversion health
insurance.

Veterans' Group Life     Adds Internet Site            Same as active duty 
Insurance                www.insurance.va.gov      
Not listed               Adds Veterans Centers         Same as active duty 
                            www.va.gov/rcs            

FINANCES

    Financial Management    No change          Omitted, not applicable        
            (TSP,                       
      Retirement, SBP)                  
       Separation pay                                                         
          (Eligible         No change          Omitted, not applicable
involuntary Separatees)              
         Not listed        Omitted, not      Adds Post Deployment Pay-Defense 
                            applicable                                Finance 
                                            and Accounting Service (DFAS)     
                                                    www.dfas.mil              
     RESERVE AFFILIATION    No change          Omitted, not applicable        

                          DISABLED VETERANS' BENEFITS

    VA Disability Benefits Adds Internet site www.va.gov Same as active duty

Appendix VII: Changes Planned in 2005 to Checklists Used by the Armed
Forces in Preseparation Counseling

Current checklist for all Draft checklist for active duty excluding
Reserve Draft checklist for Reserve and National separating service
members and National Guard Guard only

Not listed Omitted, not applicable Adds new section

SOLDIERS AND SAILORS RELIEF ACT

www.dod.mil/specials/Relief-Act-Revision

Not listed Adds new section Omitted, not applicable

POST GOVERNMENT SERVICE COUNSELING

Source: GAO analysis of DOD documents.

Appendix VIII: Overseas Locations Where DOL and VA Provide TAP

DOL DOL plans to

contractors have VA plans to at location contractors at VA staff at have
staff at as of April locations in locations as of locations in

Locations 2005 future April 2005 future

Belgium X

Iceland X

Spain Xa X

Azores X

Guam X

Japan X X

Okinawa, Japan X X

South Korea X X

Germany X X

Great Britain X X

Italy Xb X

Bahrain Xa X

                                  Portugal Xa

                                   Turkey Xa

Source: DOL and VA.

aDOL plans to add these additional locations, which are dependent on the
result of Status of Forces Agreement negotiations.

bDOL's contractor in Italy has not yet scheduled any employment workshops,
citing delays in ongoing Status of Forces Agreement negotiations.

Appendix IX: Comments from the Department of Defense

Appendix IX: Comments from the Department of Defense

               Page 43 GAO-05-544 Military and Veterans' Benefits

               Page 44 GAO-05-544 Military and Veterans' Benefits

Appendix XI: Comments from the Department of Veterans Affairs

Appendix XI: Comments from the Department of Veterans Affairs

Appendix XI: Comments from the Department of Veterans Affairs

Appendix XI: Comments from the Department of Veterans Affairs

Appendix XII: GAO Contacts and Staff Acknowledgments

GAO Contact 	Irene Chu (202) 512-7102 Patricia L. Elston (202) 512-3016

Acknowledgments 	In addition to the contacts named above, William E.
Hutchinson and Martin Scire made key contributions to this report. In
addition, Roger Thomas provided legal assistance, William R. Chatlos
assessed the reliability of participation data, and Corinna Nicolaou
assisted in report development.

Related GAO Products

Military Pay: Gaps in Pay and Benefits Create Financial Hardships for
Injured Army National Guard and Reserve Soldiers. GAO-05-125. Washington,
D.C.: February 17, 2005.

Military Pay: Gaps in Pay and Benefits Create Financial Hardships for
Injured Army National Guard and Reserve Soldiers. GAO-05-322T. Washington,
D.C.: February 17, 2005.

Vocational Rehabilitation: More VA and DOD Collaboration Needed to
Expedite Services for Seriously Injured Servicemembers. GAO-05-167.
Washington, D.C.: January 14, 2005.

Military Personnel: DOD Needs to Address Long-term Reserve Force
Availability and Related Mobilization and Demobilization Issues.
GAO04-1031. Washington, D.C.: September 15, 2004.

Military Personnel: DOD Actions Needed to Improve the Efficiency of
Mobilizations for Reserve Forces. GAO-03-921. Washington, D.C.: August 21,
2003.

Military and Veterans' Benefits: Observations on the Transition Assistance
Program. GAO-02-914T. Washington, D.C.: July 18, 2002.

Military Downsizing: Persons Returning to Civilian Life Need More Help
from DOD. GAO/HEHS-94-39. Washington, D.C.: January 21, 1994.

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