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“Mission Incomplete: Strengthening the TAP Program to Ensure a Smoother Transition to Civilian Life for Tomorrow's Veterans”

House Veterans Affairs Committee, Economic Opportunity Subcommittee Hearing

March 25, 2025 (recording here)

HEARING INFORMATION

Witnesses & Written Testimony (linked) (Panel One):

• Mr. Alex Baird: Director, Defense Support Services Center, U.S. Department of Defense

• Mr. John Green: Acting Executive Director, Outreach, Transition, and Economic Development, U.S. Department of Veterans Affairs

• Ms. Regina Yount: Assistant Director, Outreach, Transition, and Economic Development, U.S. Department of Veterans Affairs

• Ms. Margarita Devlin: Deputy Assistant Secretary for Operations and Management, U.S. Department of Labor

Witnesses & Written Testimony (linked) (Panel Two):

• Ms. Joy Craig: Associate Director, Service Member Affairs, Veterans of Foreign Wars of the U.S.

• Ms. Elizabeth O'Brien: Senior Vice President, Hiring Our Heroes

• Ms. Barbara Carson: Managing Director of Programs and Services, D’Aniello Institute for Veterans and Military Families Syracuse University

• Mr. Brian Lewis: Executive Director of Customer Operations, Consumers Energy

• Ms. Kandi Tillman: Managing Co-Founder, 50strong

Keywords mentioned:

• Transition Assistance Program (TAP), SkillBridge, Employment Navigator and Partnership Program (ENPP), Solid Start, warm handover, command accountability, retention, recruitment

IN THEIR WORDS

OPENING STATEMENTS FROM THE SUBCOMMITTEE

• Chairman Derrick Van Orden described the importance of improving the Transition Assistance Program (TAP) to better support service members moving from military to civilian life. He shared his personal experience as a former Navy SEAL and the emotional and psychological challenges of transition, including identity loss and increased suicide risk. He criticized the current system’s lack of accountability, citing low participation rates and the failure to include TAP participation in performance evaluations. The Chairman expressed his intent to push for stronger metrics, individual accountability, and program reforms to ensure better outcomes for service members.

• Ranking Member Chris Pappas called for oversight to ensure service members are well-prepared for civilian life, noting that the federal government spends over $13 billion annually on transition support. He voiced concern about the Department of Defense’s (DOD) struggles to ensure timely TAP participation and warned that inadequate transition support can affect military recruitment and national security. He also criticized recent administrative actions leading to agency staff reductions, which he believes are harming veteran services. Ranking Member Pappas condemned discriminatory policies targeting LGBTQ service members and insisted that TAP must be inclusive and responsive to the unique needs of all veterans.

SUMMARY OF KEY POINTS (PANEL ONE)

• Mr. Alex Baird stated that the DOD is committed to improving TAP and has taken steps since 2020 to expand virtual delivery and increase participation in two-day specialized tracks. He acknowledged past shortcomings in timeliness but noted that corrective actions taken since mid-2022 have led to doubled timeliness rates and a 7% increase in attendance. He mentioned the collaborative efforts between the DOD, VA, Department of Labor (DOL), and other partners to modernize TAP and enhance support for service members. Mr. Baird said that TAP is now more comprehensive and adaptive than ever, aligning with readiness, retention, and long-term support goals.

• Mr. John Green discussed the VA's role in providing a one-day TAP course that introduces service members to available benefits and services. He noted that over 200,000 service members were assisted in FY 2024 and underscored the importance of one-on-one counseling and spouse involvement. Mr. Green shared examples of successful interventions, including the VA Solid Start program, helping at-risk veterans navigate benefits and avoid homelessness. He stated that the VA continues to modernize TAP, including adding veterans service organizations (VSOs) to the curriculum and improving accessibility through technology like QR codes.

• Ms. Margarita Devlin described the DOL’s core TAP workshops, including both mandatory and elective employment and credentialing tracks, which consistently receive high satisfaction ratings. She advocated for personalized support, noting the success of the Employment Navigator and Partnership Program (ENPP) in providing one-on-one career guidance at 40 installations. Preliminary data showed that enlisted members who used ENPP became employed faster and earned more than those who did not. Ms. Devlin also highlighted the DOL’s specialized workshops for wounded warriors, caregivers, and spouses, affirming the department’s commitment to long-term support beyond initial separation.

• Ranking Member Pappas asked what steps the DOD had taken in response to the Government Accountability Office’s (GAO) finding that warm handovers were not reliably verified. Mr. Baird stated that the DOD took the GAO report seriously and implemented new measures, including launching a commander-focused TAP course and involving Inspector General (IG) teams to monitor compliance and educate military leaders on warm handovers.

• The Ranking Member inquired why the Navy and Marine Corps reduced eligibility for the SkillBridge program. Mr. Baird explained that those branches adjusted policy after finding that senior personnel were primarily benefiting. He claimed that support for the program remained strong and that eligibility was being better targeted.

• Ranking Member Pappas asked how the VA collaborates with the DOD to ensure transitioning service members with mental health issues receive support. Mr. Green described how the VA connects with these individuals through the Solid Start program, reaching out at three intervals during the first year post-separation and prioritizing contact based on data received from the DOD.

• Ranking Member Pappas asked about veteran satisfaction with TAP based on the most recent post-separation assessment. Mr. Green reported a 96.3% satisfaction rate, stating that the program was effectively addressing transition challenges.

• Rep. Abe Hamadeh challenged the DOL’s perceived lack of responsibility for ensuring service member participation in TAP, referencing DOL data showing better employment outcomes for those who used the Navigator program. Ms. Devlin clarified that the DOL takes its responsibility seriously and works closely with the DOD through interagency committees. She pointed to the DOL’s engagement in crafting TAP-related training and improving participation through collaboration.

• Rep. Hamadeh pressed for specific actions the DOL has taken to increase unit commander accountability for TAP attendance. Ms. Devlin explained that the department encourages cultural change through commander training and demonstrates TAP's value for both retention and recruitment. Mr. Baird added that the DOD collects post-TAP feedback, and only about 1% of service members cite barriers to attendance.

• Rep. Morgan McGarvey asked how the DOD ensures consistent TAP access and quality across locations and services, comparing it to standardized corporate training. Mr. Baird explained that the DOD implemented IG oversight and corrective action plans accepted by the GAO. He mentioned ongoing efforts to train new commanders and shift the culture to prioritize TAP.

• Rep. McGarvey asked how TAP can better align with employer needs and private sector trends. Ms. Devlin described the DOL’s employer outreach efforts, including partnerships with high-demand industries and integrating employer feedback into TAP. She highlighted continued adjustments based on service member experiences and job market conditions.

• Rep. Kimberlyn King-Hinds asked whether TAP is mandatory and, if so, why only 52% of service members attend on time. Mr. Baird confirmed that TAP is mandatory and admitted past failures in monitoring attendance, though he noted current oversight by DOD and Inspector General teams to improve compliance.

• Rep. King-Hinds followed up on whether there were legislative fixes Congress could pursue to help agencies coordinate TAP more effectively. Ms. Devlin responded that current interagency structures were strong and effective. She cited successful collaboration in expanding the ENPP, routine data sharing, and joint problem-solving.

• Rep. King-Hinds expressed concern about access for veterans in rural communities like the Northern Mariana Islands. Ms. Devlin acknowledged the challenge and explained how TAP offers tailored workshops and follow-up support. She underlined the role of the ENPP and local American Job Centers for continued assistance.

• Chairman Van Orden addressed remarks made by the Ranking Member regarding transgender service members. He expressed his support for the current DOD policy, citing operational readiness concerns due to the non-deployable status of individuals undergoing gender transition. He referenced his longtime friendship with the first openly transgender Navy SEAL, emphasizing his respect for personal choices but stressing the impact on deployability.

• The Chairman praised DOL leadership and reiterated the nation’s expectations for their performance, expressing optimism for ongoing collaboration. He then asked whether Mr. Baird viewed TAP as a retention tool. Mr. Baird affirmed that he did, noting that effective TAP experiences help service members see the benefits of military service. Chairman Van Orden then criticized the limited number of anecdotes offered during testimony, pointing out that with only 52% of service members attending TAP, nearly 96,000 individuals annually were not being reached. He called this unacceptable.

• Chairman Van Orden followed up on a prior conversation about the VA Solid Start program and questioned who in the Office of General Counsel (OGC) had interpreted legislation to require voice phone calls instead of text or chat-based outreach. Ms. Regina Yount could not provide a name. Chairman Van Orden expressed frustration, demanding respect for the Committee and transparency.

• The Chairman asked the witnesses whether recent administrative changes under the Department of Government Efficiency (DOGE) initiative had measurably degraded their ability to deliver services to veterans. Both Mr. Green and Ms. Devlin answered “no,” stating that their agencies had not experienced a degradation in services due to DOGE. Chairman Van Orden condemned public fear-mongering about supposed cuts to veteran services, welfare, and food programs, stating that such claims were misleading. He urged everyone, including those outside the Committee, to stop spreading fear among vulnerable populations.

SUMMARY OF KEY POINTS (PANEL TWO)

• Ms. Joy Craig testified on behalf of the Veterans of Foreign Wars (VFW), reporting that nearly 200,000 service members transition from the military each year, most before retirement. She said that while the DOD spends months training recruits, it offers only five days of transition preparation, leading to increased risks of underemployment, financial hardship, and suicide. Ms. Craig criticized the frequency of TAP waivers and called for improved enforcement, tailored course delivery, and earlier integration of transition support throughout military careers. She also recommended the creation of an Under Secretary of Defense for Transition to ensure accountability and cultural change within the DOD.

• Ms. Elizabeth O’Brien shared her experience as a military spouse and leader of Hiring Our Heroes, which has helped over a million military-connected individuals. She noted that while veteran unemployment has declined, many veterans face underemployment and struggle to translate their skills to civilian roles. She pointed to the effectiveness of the SkillBridge program and highlighted high job offer rates and salaries for participants. Ms. O’Brien recommended expanding experiential programs, reducing redundancy in transition services, and improving alignment between military training and civilian employment.

• Ms. Barbara Carson addressed the systemic challenges of the military-to-civilian transition, noting that while veteran unemployment rates may appear low, underemployment remains widespread. She stated that TAP must be continuously evaluated for accessibility and effectiveness and suggested integrating TAP participation into performance evaluations to ensure compliance. Ms. Carson mentioned that 46 transition-related programs across 11 agencies lack coordination and transparency, making it hard to assess outcomes. She called for stronger data sharing, better spouse engagement, and investment in proven non-government programs like Onward to Opportunity (O2O) to create a more accountable support system.

• Mr. Brian Lewis, a veteran and executive at Consumers Energy, described his personal transition challenges and how his company now supports over 800 veterans in meaningful careers. He detailed partnerships with the DOL and apprenticeship programs that allow veterans to use GI Bill benefits while preparing for skilled careers. Mr. Lewis explained the demand for veteran-focused training programs and encouraged Congress to strengthen connections between TAP and employers, especially in states without nearby military bases. He also praised SkillBridge and advocated for improved coordination to enhance veteran-employer connections.

• Ms. Kandi Tillman, co-founder of 50strong, spoke about her work helping employers connect virtually with transitioning service members and military-affiliated job seekers. She said that employment is central to transition success and praised SkillBridge’s effectiveness in building pathways to meaningful careers. Ms. Tillman called for greater inclusion of employer voices in policymaking, more flexible internship models, and mechanisms to track employment outcomes. She also urged better support for military-affiliated students to ensure education benefits lead to real job opportunities, not dead ends.

• Ranking Member Pappas asked about barriers preventing more businesses from participating in the SkillBridge program and how those challenges could be addressed. Ms. Tillman explained that SkillBridge has enabled growth by allowing employers to open internships via third-party facilitators. She recommended delaying the requirement for individual memorandums of understanding (MOUs) for each host employer while immediately mandating outcome reporting for third-party intermediaries to enhance accessibility for small businesses.

• Ranking Member Pappas inquired about the origins and strengths of the O2O program and whether its success offers lessons for other transition programs. Ms. Carson stated that the program began through philanthropic support and focuses on industry-recognized credentials at no cost. She echoed the importance of employer connection and third-party evaluation in demonstrating its effectiveness.

• The Ranking Member asked how the TAP experience could be improved given the limited time currently allocated and the overwhelming nature of the information. Ms. Craig recommended extending TAP or integrating it at multiple points during a military career. She said that this would give service members time to absorb and act on the content and reduce reliance on commanders to allocate personal time for preparation.

• Rep. Hamadeh asked about Ms. Tillman’s experience working with the DOL’s ENPP. Ms. Tillman praised the DOL for being welcoming and collaborative. She noted that 50strong became an ENPP partner in January 2024 and had begun receiving referrals, with hopes for deeper future collaboration. Rep. Hamadeh then asked what improvements she recommended for the ENPP program. Ms. Tillman emphasized the importance of tracking outcomes and commended the DOL for already doing so.

• Rep. Hamadeh asked what feedback 50strong received from its 200 employer partners. Ms. Tillman reported positive feedback, including instances of direct hires from 50strong events. She stressed the value of employer participation and industry-led career preparation.

• Rep. Hamadeh switched gears and asked about gaps in hiring veterans versus civilians. Mr. Lewis said that veterans often miss the camaraderie of military life and seek purpose-driven work. Consumers Energy addresses this by investing in a Veterans Advisory Panel and providing strong benefits, including paid leave and mental health support.

• Rep. Delia Ramirez asked what additional support was needed from federal agencies, particularly the VA, to strengthen TAP. Ms. Craig praised the VA's Benefits Delivery at Discharge (BDD) program, which allows representatives to connect service members with the VA before separation. She claimed that maintaining this early connection is essential to prevent veterans from missing critical resources.

• Rep. Ramirez asked when the transition process should begin and how economic trends should factor into timing. Ms. Carson recommended starting the transition at least a year prior to separation and earlier if possible. She said more accessible data on economic conditions would help tailor support and noted the value of longitudinal studies like the Veterans Metrics Initiative (TVMI) in guiding improvements.

• Rep. King-Hinds asked about the importance of including military spouses in TAP. Ms. O'Brien underlined that military spouses play a vital role during transition and are often excluded from TAP unless space is available. She advocated for the full inclusion of spouses, as their employment contributes directly to the financial stability and successful reintegration of the entire family.

• Rep. King-Hinds asked how to address underemployment among transitioning service members. Ms. O'Brien stressed the importance of starting TAP at least a year out and creating more opportunities for skill acquisition and self-assessment. She noted that inadequate preparation often forces service members into lower-paying jobs out of financial necessity.

• Rep. Tom Barrett praised Ms. Tillman’s comments about the distinction between outputs and outcomes and discussed the importance of measuring the effectiveness of TAP by its impact on veterans’ lives. He encouraged a shift from focusing on the number of participants to tracking their success post-transition.

• Rep. Barrett asked how Consumers Energy helps veterans find purpose after military service and how the company builds that connection. Mr. Lewis said the company intentionally fosters community through its Veterans Advisory Panel and invests in programs that address veterans’ needs. He reiterated that veterans thrive when given structure, mission, and a sense of camaraderie.

• Rep. Barrett asked whether Consumers Energy’s mission aligns well with veterans’ values. Mr. Lewis agreed, stating that their work restoring power and responding to emergencies gives veterans a clear sense of purpose, much like their military service. Rep. Barrett then asked about Consumers Energy’s apprenticeship partnership with the DOL. Mr. Lewis credited his colleague for securing recognition for seven apprenticeships and noted that using the GI Bill for these programs helps veterans transition into high-paying skilled trades. He claimed that more companies should take similar steps.

• Chairman Van Orden asked each witness if their organization receives VA funding. Ms. Craig was unsure. Ms. O’Brien reported one small Department of Energy grant but no VA funding. Ms. Carson said that they receive Small Business Administration and Commerce funding, but none from the VA. Mr. Lewis stated that they receive zero dollars from the VA. Ms. Tillman also reported no VA funding.

• Chairman Van Orden underscored that there has been no evidence of degradation in veteran services and warned against spreading fear among veterans. He reaffirmed his commitment to holding military commanders accountable for TAP participation, noting that tying compliance to career advancement would improve attendance rates dramatically.

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