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November 4, 2008    DOL Home > OASP > Chapter 3   

CHAPTER 3 – CURRENT INITIATIVES TO FACILITATE CREDENTIALING

Efforts to facilitate the credentialing of servicemembers have been ongoing in DoD, the military services, and DOL. This chapter of the report summarizes some of the key initiatives that are currently planned or underway.

JOINT DOL AND DOD EFFORTS

Over the years, the Departments of Labor and Defense have worked closely together on issues related to servicemembers’ transition. A number of joint- efforts have been conducted, including joint participation on the Task Force on Licensure and Certification of Veterans, operation of the Transition Assistance Program, and collaboration on the development of a Military Resume Writer. Many of these initiatives are discussed in more detail in the following sections, under the agency which had or has the lead on the initiative. More recently is the Memorandum of Understanding (MOU) that was executed between the Departments of Defense and Labor on July 11, 2003.

The MOU, initiated by the Secretaries of Labor and Defense, directed the Departments to study and undertake activities of mutual interest that may expand recruitment, job search services, training, placement, licensing and certification, and other services for military personnel, veterans, and their families. The Departments expressed particular interest in expanding services that related to and supported the following: (1) recruitment; (2) retention; and (3) re-entry. It is anticipated that additional efforts regarding the military to civilian credentialing issue will be undertaken under the auspices of this MOU.

DOD AND THE MILITARY SERVICES

The various components of the military have addressed the challenges and opportunities related to credentialing using a number of specific methods. These methods include:

  1. Mapping military occupations to their civilian job equivalents using information available on civilian licensure and certifications; developing an analysis of any skill gaps; and identifying learning pathways to obtain skills not acquired through the military occupational specialty.
  2. Providing opportunities for servicemembers to register with a federally- approved apprenticeship program while serving in the military.
  3. Using civilian/commercial training which results in a portable civilian credential in place of military training in equivalent positions.
  4. Obtaining civilian academic credit for military training through an equivalency process managed by the American Council on Education.

  5. Promoting educational development resulting in academic degrees.

Key methods used by DoD and each of the services are described below.

DEPARTMENT OF DEFENSE: CROSS-SERVICE INITIATIVES

Transition Assistance

The key to transition assistance is knowledge of available resources and a firm understanding of how to use them. By law, all transitioning military personnel are required to receive pre-separation counseling no less than 90 days prior to leaving active duty. An effective transition also requires planning and action on the servicemember’s part. The Transition Assistance program recommends members set up a pre-separation counseling appointment at least 180 days prior to separation. During this meeting/counseling session members receive counseling concerning their benefits and rights, as well as services available to them. They are given DD Form 2648, “Pre-separation Counseling Checklist”, and assisted in its completion. The checklist helps each member identify their individual needs and develop a personal plan for securing the assistance to meet their needs. The Transition Assistance office considers this checklist to be extremely important to the member and they are not permitted to out-process the installation until they have completed the form.

Through the Transition Assistance Program (TAP), discussed further under the Department of Labor section of this report, servicemembers are counseled on resumes, medical care, finance, employment opportunities, dress, interview processes, and other important issues that will assist in their transition to the civilian work force.

DANTES

In addition to its work with DOL on the MOU Working Group (discussed above), DoD’s primary method of addressing credentialing issues is through its organizational unit called the Defense Activity for Non-Traditional Education Support (DANTES):

The DANTES mission is to support the off-duty, voluntary education programs of the various branches of the military and to conduct special projects and development activities in support of education related functions of the services. DANTES has made a comprehensive attempt to enhance the servicemembers’ ability to become credentialed through its Certification Examination Program. DANTES coordinates with civilian credentialing boards to develop agreements that grant military officials the authority to administer certification and licensure examinations. DANTES then provides military personnel world-wide access to national and professional certification examinations through the services-funded testing centers. DANTES currently has approximately 60 agreements with nationally recognized certification associations. Additionally, DANTES provides a calendar of nationally recognized certification programs and web-based Certification Program Handbooks for service test center officials to order certification examinations.

In addition to agreements with each service branch, DANTES has Memorandum of Agreements with the Army National Guard, Air Force Reserve, and the Army Reserve to offer a reimbursement payment system to eligible servicemembers taking certification examinations. For example, upon receiving results from a professional certification or licensure test, the servicemember submits the results along with payment confirmation to the DANTES Headquarters. The Defense Finance System then provides reimbursement directly to the servicemember.

DANTES also has an on-going contract with the National Institute of Automotive Services Excellence (ASE) to pay for exams administered at base education centers worldwide. Each authorized servicemember is limited to three ASE specialty exams per administrative period.

DANTES currently has funded pilot programs for Microsoft testing, whereby servicemembers have the opportunity to take one Microsoft test at no cost to them, and for Federal Communications Commission (FCC) testing, managed by the National Radio and Telecommunications Engineers (NARTE).

Troops To Teachers

DoD established Troops to Teachers (TTT) in 1994. The National Defense Authorization Act for FY 2000 transferred the oversight and funding for TTT to the U.S. Department of Education, but continued operation by the DoD.

Reflecting the focus of No Child Left Behind Act of 2001, the primary objective of TTT is to help recruit quality teachers for schools that serve low-income families throughout America. TTT helps relieve teacher shortages, especially in math, science, special education and other high-needs subject areas, and assists military personnel in making successful transitions to second careers in teaching.

DEPARTMENT OF DEFENSE: THE SERVICES

UNITED STATES ARMY

The U.S. Army has robust continuing education and credentialing programs for Soldiers that enhance the capability of America’s Soldiers on duty around the world and also improve their ability to ultimately transition back to the civilian sector. The Army strives to provide Soldiers and their families with access to the types of programs and services available to their peers in the civilian sector. Voluntary education services are very much a part of the Army’s support structure and personnel life cycle. In keeping its commitment to lifelong learning in support of readiness, transformation, and the well-being of the force, the Army provides an integrated system of continuing education/credentialing programs and services to provide Soldiers opportunities for self-development and to meet personnel and professional education/credentialing goals. This integrated system, called the Army Continuing Education System (ACES), provides Soldiers, their family members, Department of Army civilians, and retirees lifelong learning opportunities to continue their professional and personal self development.

The ACES is a network of 113 Education Centers and 130 Army Learning Centers across the world, including Bosnia Herzegovina, Macedonia/Kosovo, Honduras, Bahrain, Egypt, Qatar, Saudi Arabia, Uzbekistan, and Afghanistan. The comprehensive programs and services made available to Soldiers and their family members demonstrates the Army’s commitment to lifelong learning and building a “learning organization”. Army’s worldwide system is a visible demonstration of Army’s investment in its workforce and growing leaders needed to meet future missions and fulfillment of Army’s role in the National Security Strategy. The ACES programs support the enlistment, retention, and transition of Soldiers.

Participation in ACES programs and services is at an all time high, demonstrating the personal sacrifices Soldiers are willing to make in order to continue their education and remain competitive while in the service and after their transition. Army ACES program statistics from fiscal year 2004 show that a total of 151,795 Soldiers enrolled in 244,726 postsecondary courses. Of those Soldiers, 5,160 enrolled in 3,569 courses from deployed locations. Fifty-seven thousand (57,000) of those Soldiers enrolled in 175,465 online courses through eArmyU. The Army spent over $111 million dollars for traditional classroom and non-eArmyU distance learning courses; and, over $57 million on eArmyU costs. Soldiers completed 3,032 associate, 1,840 bachelors, and 1,485 graduate degrees, along with 234 certificates. One thousand-fifty-nine (1,059) eArmyU degrees were conferred. Army Education Centers and Multi-use Army Learning Centers provide Soldiers a wide variety of on- and off-duty educational opportunities.

Army major programs and services and new education initiatives:

Soldiers have access to programs supporting high school degree completion and developing the functional academic skills necessary for job proficiency and preparedness for advanced military schooling or college preparation, if needed. Also, leader development programs are available to assist Non-commissioned Officers with high leadership potential to better perform their roles as supervisors, trainers, and communicators. At the request of commanders, Soldier training courses are available to support unit readiness by providing individual training oriented toward specific mission, organization, or equipment requirements. Professional counseling services are at the heart of the Army’s continuing education program. Counselors assist Soldiers in identifying vocational / educational / credentialing goals, developing plans for attaining those goals in a cost-effective, timely manner, and providing educational transition assistance at separation or retirement. The academic testing program allows Soldiers to sit for exams for school admission, college credit, and/or certification Army-wide. Army Education Centers world-wide offer a wide variety of postsecondary programs--certificates, associate, bachelors, and master’s degrees--through U.S. vocational technical schools, colleges, and universities.

To ensure Soldiers can complete undergraduate degrees, the Army provides degree opportunities through the Servicemembers Opportunity Colleges Army Degree (SOCAD) system. The SOCAD is a system of associate and baccalaureate degree programs that offers degrees in over 30 different technical fields of study through an Army-wide network of more than 120 accredited institutions. The system guarantees Soldier transfer of credit and acceptance of non-traditional credits. The Army has also developed occupational degree programs called Army Career Degrees. This initiative includes developing and adding MOS matched to civilian occupational-specific degrees to the SOCAD system and linking to each MOS on the GI to Jobs initiative, the Credentialing Opportunities On-Line site. The objective is to custom design degree programs for enlisted Military Occupational Specialties. These programs provide a degree option to Soldiers not wishing to pursue purely academic degrees, which maximize credit for military experience and minimize the amount of college study. This initiative is a partnership with not only SOC and the Army Training and Doctrine and Medical Commands, but also the American Council on Education, Office of Military Evaluations, and colleges and universities within the higher academic community. The partnership is critical to ensuring degree program quality and acceptance. To date, the Army has developed and established 75 degree programs that encompass 65 MOSs. Army Career Degrees are implemented or in progress for 270,835 Soldiers, or 67 % of the enlisted force. The offering of occupation-specific degrees helps to enhance military training, provides Soldiers with expanded degree, certification, and licensing opportunities, and increases Soldier awareness of certification requirements for specific occupations.

Figure 4. SOCAD and GI to Jobs

Figure 5. Comparability Analysis Process Summary

The majority of Army MOSs have been fully reviewed and matched to civilian-related occupational certifications. As of January, 2005, with 175 of 191 MOSs analyzed, an Army analysis determined that 92% of Army MOSs have civilian job equivalents that are subject to licensure or certification and 95% of the over 400,000 enlisted Soldiers serve in these MOSs. Fourteen percent (14%) of the MOSs have directly related certifications that are fully attainable during the first term of service, with another 42% possibly attainable during the first term of service. Seventy-seven percent (77%) of the occupations have certification options while 23% have a federal or state license requirement, which may also have a certification option. A major component of the GI to Jobs initiative is the completion of comprehensive comparability analyses, which identify potential gaps between Army training and civilian credentialing requirements. The Army has also instituted a policy that allows the award of promotion points for individuals who have voluntarily obtained a certification related to their MOS. This policy serves as an incentive for Soldiers to become credentialed during their military enlistment service.

Figure 6: Army Comparability Analysis for Assessing Credentialing Opportunities

The results of the comparability analyses are provided on the Credentialing Opportunities On-Line (COOL) web site, www.cool.army.mil. Since its launch in April 2002, the COOL web site has had over 1.2 million hits for information. COOL provides information on how Soldiers can fulfill the requirements for civilian certifications and licenses related to their MOSs. The site helps Soldiers fully understand what it takes to obtain credentials, including identifying in detail additional training that may be needed, what to study, where to take tests, and even what resources are available to help pay for tests and related fees.

The development of COOL was a major effort requiring an initial expenditure of approximately $1 million and updating costs of approximately $230 thousand per year. The Army estimates that the initial cost of building on the COOL effort to support comparable credentialing initiatives across all of the other military services would be approximately $2.0 million, and that annual updating and maintenance costs would be approximately $1.5 million per year.

The Partnership for Youth Success program, better known as PaYS, www.armypays.com, is one of the GI to Jobs cooperating activities that links with the Army certification web site to assist new recruits with information on how to obtain civilian certification if required by hiring company before transition from the Army. PaYs is a program that allows a potential recruit to enlist with a guaranteed civilian job waiting for him when he leaves the Army. See APPENDIX C:PaYS Partnership Tables for detailed production information. Pursuing civilian credentials can provide the Soldier with personal development opportunities and promotion points while in service and enhanced job and pay opportunities when they reenter civilian life. The Army has exerted efforts to increase outside agencies’ awareness of the Army’s mission, education and training programs, and services to try to eliminate barriers to credentialing and licensing wherever possible.

In 2001, Army Education launched a unique and innovative e-learning program called eArmyU. The program helps to build today’s and tomorrow’s future force by offering unprecedented academic access, choice, and flexibility in an online learning environment. eArmyU allows Soldiers to access certificate or degree programs, apply for admission, submit assignments, communicate with classmates, and assess their progress from one integrated site. Web-based courses can be completed at any time from any location, allowing Soldiers to study at times that are most convenient to them, wherever they are stationed. This flexibility helps Soldiers to continue their studies even as their responsibilities, schedules, and locations change.

Through eArmyU, regular active duty and Active Guard Reserve enlisted Soldiers have easy access to 148 online certificate and degree programs offered by 29 regionally-accredited colleges and universities. Credits transfer across institutions, enabling Soldiers to quickly and conveniently progress with their educational goals as they transition from post to post. eArmyU revolutionizes Army education through state-of-the-art virtual learning and develops educated, technology-savy Soldiers who can succeed in the network-centric missions and battlespace of the 21st century. It strengthens the Army’s commitment to an agile, versatile and adaptive force by integrating educational opportunity with troop readiness.

eArmyU provides Soldiers with two enrollment options: laptop or eCourse (course-by-course). All program enrollees receive course materials, Internet Service Provider, e-mail account, eArmyU “Boot Camp” tutorial, round-the-clock helpdesk support, online academic tutoring and program mentoring as part of tuition. The program streamlines existing Army education systems and advances Army distance learning to support a global, customer-focused education platform. eArmyU is a smart, streamlined and effective learning opportunity that, due to its unique portal technology, advances the Army into a rapidly developing e-learning market. Twenty-eight percent (28%) of the Soldiers extended or reenlisted to participate, 27% are new students to college education, and 47% of Soldiers have returned to college after a hiatus of 12 months or more. eArmyU students are currently taking courses from 50 countries, 4 U.S. territories, and all 50 states.

Through the automated Army/American Council on Education Registry Transcript Service (AARTS), eligible Soldiers and veterans can document their military training, job experience, and other educational achievements while on active duty. This is of particular importance for Soldiers seeking certification or licensure. Now through Army Knowledge Online, Soldiers and veterans have real-time access to their transcripts. Official transcripts can be ordered through the AARTS web site at This service is available in partnership with the American Council on Education and is both endorsed and applauded by colleges and universities across the U.S. The AARTS transcripts expedite the process of recognizing military non-traditional learning experience for college credit. Since this program’s inception in 1987, close to two million transcripts have been provided. Currently about 150 colleges and universities are receiving electronic delivery of official transcripts. This is a win-win for Soldiers, veterans, institutions, and the Army – and the transcripts listing of ACE-recommended credit for military training and experience helps colleges translate recommendations into credit awards and in-turn save the Army tuition assistance dollars.

Army’s continuing education policy directs that ACES programs and services be made available for Reserve Component Soldiers. The U.S. Army Reserve and the Army National Guard operate varying degrees of ACES programs and services to meet their unique needs and priorities. Reserve Component Soldiers access education programs in their local communities. Some Regional Support Commands and states have established education centers in local armories equipped with distance learning capabilities that provide counseling and testing services. Also, those living near an Army installation may participate in programs and services offered by the local Army Education Center. Reserve Component Soldiers may also access academic testing programs and distance learning opportunities through DANTES.

Since fiscal year 2000, the Reserve Component has had a tuition assistance program similar to the Active Component. The Reserve Component administers the tuition assistance program through their Reserve Support Command Education Services Specialists and Army National Guard Education Services Officers. In addition to federal tuition assistance, Army National Guard Soldiers may receive state tuition assistance funds or attend public colleges and universities in their state on a tuition-free basis.

When Reserve Component Soldiers are mobilized, they are eligible to participate in the ACES programs and services available to Active Component Soldiers, including tuition assistance. Currently however, mobilized Reserve Component officers are ineligible for either Active (or, because of activation, Reserve Component) tuition assistance because they cannot fulfill the 2-year Active Duty Service Obligation incurred by using tuition assistance on active duty. This Active Duty Service Obligation requirement is statutory—contained in U.S. Code Title 10, Section 2007. This inequity has the potential to have a negative effect on the retention of today’s Reserve Component officers, and the recruitment of new officers. A recently completed Army Research Institute (ARI) study indicated that participation in in-service education programs supported by ACES results in positive outcomes for both individual Soldiers as well as the Army. These outcomes include: reduced first-term attrition, increased reenlistment, and enhanced job performance.

The Army is committed to providing quality programs and services to build a stronger force and to support transition of its servicemembers to continue their contribution to the nation in the civilian sector.

NAVY AND MARINE CORPS

As mentioned later in this report, both the Navy and Marine Corps actively participate in the USMAP apprenticeship program, which provides certification of the occupationally specific training of Sailors and Marines, providing recognition that is equal to that received by their private industry counterparts. In many Navy and Marine Corps fields (69 ratings for the Navy and 195 MOSs for the Marine Corps), hours spent in the training classroom and on the job translate directly to journeyman points in the civilian sector. The DOL certification upon completion of a USMAP program is also listed on the academic page of the Sailor/Marine American Council on Education Registry Transcript (SMART). SMART documents American Council on Education (ACE) recommended college credits for military training and occupational experience, College Level Examination Program tests, DANTES Subject Standardized Tests, and Defense Language Proficiency Tests taken and passed; and as an addendum, additional coursework or training that may not necessarily lead to college credit. An official SMART is an academically accepted record that is validated by ACE, and its primary purpose is to assist active duty Sailors and Marines in obtaining college credit for their military training and experience.

Additionally, both the Navy and Marine Corps provide Tuition Assistance for Sailors and Marines who attend college during their free time, and provide opportunities for personnel, even when deployed, to take undergraduate or graduate college courses, acquire basic academic skills, obtain a high school diploma, and enroll in certificate or vocational/technology programs. For example, courses are made available through distance learning or by bringing instructors aboard ships while underway. The Navy’s program is called Navy College Program (NCP) and includes Tuition Assistance, NCP for Afloat College Education (NCPACE), NCP Distance Learning Partnerships, and Academic Skills programs, as well as coordination with DANTES on DoD-wide education initiatives. The Marine Corps calls their program Marine Corps Life Long Learning and includes similar elements: Tuition Assistance, the Marine Deployed Education Program, the Marine Corps Satellite Education Network, the Military Academic Skills Program, etc. Through these programs, Sailors and Marines have the advantage of being able to accelerate degree completion by applying college credit earned for military training and experience and through college-equivalent testing to meet degree requirements (all of which is documented on SMART for both Marines and Sailors). Distance learning and deployed learning opportunities also make courses available to Sailors and Marines any time, anywhere.

Because the mobile lifestyle of service members can be a hindrance to completing a degree, the Servicemembers Opportunity Colleges (SOC) was formed. SOC is a consortium of more than 1800 colleges and universities that provide educational opportunities for service members and their families. SOC further coordinates associate and bachelor’s degrees in a variety of curriculum areas for the Army (SOCAD), Navy (SOCNAV), Marine Corps (SOCMAR), and Coast Guard (SOCCOAST). Within each curriculum or degree network, member colleges agree to accept each other’s credits in transfer and have only minimal residency requirements, thus allowing Sailors and Marines to avoid having to retake courses after relocation. The “home” college issues an official evaluation of all prior learning, which serves as the student’s long-range degree plan.

Navy’s New Human Resource Management System (Five Vector Model)

The Chief of Naval Operations (CNO) tasked his Officer and Enlisted Community leaders and Echelon Commanders to examine their respective Human Capital Strategies in June 2004, in an effort to position the Navy to:

  • Win the war for talent in a competitive marketplace;
  • Grow, develop and sustain a skills and competency based workforce to meet the demands of a more agile and technology based Navy; and
  • Take advantage of “Total Force” concept of operations that enabled a seamless integration of the Navy’s active, reserve, civilian, and contractor components.

Competency-focused, the resulting new human resource strategy defines the work, recruits people, and develops the workforce around the competencies required to execute the Navy mission (present and future). Tenets of professional and personal growth create opportunities for Sailors (and those Marines who attend Navy technical schools or schools where Navy is the DoD Executive Agent) through education, training, mentoring and experience. In a performance-based culture, clear expectations against measurable objectives are established in support of the Navy mission.

Through a force-wide occupational job analysis, conducted by the Naval Personnel Development Command (NPDC), with support from the Navy Manpower Analysis Center (NAVMAC) and SkillsNET, the Navy has currently identified the requisite knowledge, skills, and abilities for its enlisted service members. Officer and civilian job analysis efforts are currently in progress. Standardized taxonomy for work, workplace, and worker requirements provides a foundational basis for certification and credentialing efforts which attest to and publicly recognize individual attainment of the knowledge and skill qualifications needed to work in a specific role, job, within an occupational cluster, or across an industry sector. SkillObjectsTM is made up of composite elements that include the standardized taxonomy supported by DOL and O*NET occupational descriptors, dictionary, and linkages. SkillObjectTM characteristics include the Skill Title, or key occupational skill required to perform the work; primary behaviors (task statements) required to perform the skill at various proficiency levels; the enabling knowledge, skills, and abilities needed to perform the skill; affective traits (emotive characteristics); tools, equipment and software devices required to perform the skill; resources (manuals, aids, and documents to support performance), and performance statement/measures based upon skill performance/proficiency standards.

The Navy has developed and implemented the Five Vector Model (5VM), a human resource management system which allows Sailors and other Navy-related personnel to access occupational (skill) requirements, conduct gap analysis, access associated learning opportunities, and display their learning accomplishments. The 5VM encompasses Professional, Personal Development, Leadership, Performance, and Certification and Qualification occupational requirements.

In an effort to align military and civilian occupational requirements, the Navy frequently utilizes equivalent civilian training, which may lead to a civilian certification. Jobs within the construction, information technology, aviation, and service industries (food service, and health service) are examples of the already identified military/civilian alignment. However, as mentioned earlier, funding and legislation roadblocks narrow the civilian credentialing opportunities currently available for Navy and Marine Corps service members.

During initial examination of available civilian credentials for Sailors, the Navy discovered that a centralized government repository of certifications/credentials does not exist. Given the large volume of civilian certifications that may directly relate to Sailors’ jobs, and the absence of a centralized credentialing repository, responsibility for review of applicable credentials by ratings fell to NPDC and subordinate commands. The information gleaned by NPDC will be used to determine which civilian credentials most closely match work performed by Sailors.

Within NPDC subordinate commands, Navy rating Subject Matter Experts (SMEs) are assigned to develop the Professional and Certification and Qualification vectors of the 5VM for their rating. As a part of developing the Certifications and Qualifications vector, the SME’s will review and assist in the validation of respective Navy Type Commander and Naval Systems Commander certification requirements.

This validation process will be accomplished by a comparison of applicable Job Task Analysis (JTA) data and individual certification attainment requirements. Navy training will be developed by using JTA data in the future. Because of this, there exists a strong potential to align Navy JTA data with civilian credential requirements, which will allow Sailors the possibility of obtaining civilian credentials through Navy training. Once credentials have been determined to be valid by the Learning Center and the Type Commander, a Business Case Analysis (BCA) is performed and recommendations are made for funding considerations. Assuming that statutory authority to use appropriated funds for credentials for Sailors has been enacted, the credential will then be placed on the “approved list” for use by the fleet.

AIR FORCE

The Air Force has concentrated its credentialing efforts in the academic area. The Community College of the Air Force (CCAF) documents servicemembers’ training and education with an official transcript and affords them the opportunity to obtain an associate degree from a regionally accredited institution. CCAF is the only federally chartered institution that awards an associate degree to enlisted personnel. It is also the world's largest community college. It is open only to enlisted men and women in the U.S. Air Force. This regionally accredited institution offers associate in applied science degree programs in five broad career areas:

  • Aircraft and missile maintenance;
  • Electronics and telecommunications;
  • Allied health;
  • Logistics and resources; and
  • Public and support services

CCAF is the repository of credits toward certification in the conference of the Airplane and Powerplant license for enlisted personnel who choose to obtain this certification. There are a number of career field managers who are in the process of developing similar programs for their career fields.

The training provided by the Air Force in a number of career fields leads to civilian credentials awarded to Airmen. Among these are career fields such as Air Traffic Control (FAA certification), Medical Technician (Emergency Medical Technician and American Red Cross), and Computer Maintenance (Microsoft Certification).

The Indiana Military Apprenticeship Program (INMAP) was set up as a means of providing apprenticeship certification and training to members of the Indiana National Guard (Army and Air Force). Individuals who successfully complete the program will receive a certificate of Completion of Apprenticeship issued by the US Department of Labor for the trade the individual is registered in. This certificate is recognized nationwide and is comparable to a bachelor's degree, with the added benefit of having work experience to back up the classroom training. This training will allow the individual to enter the civilian work force with documented, recognized industry training in trades (AFSC's) used by the Air Force. 3

DEPARTMENT OF LABOR

Education, training, and experience that are obtained during an individual’s military service are intended to provide tangible benefits for the nation’s defense, but can also contribute significantly to a skilled civilian workforce. In today’s global economy, our nation needs an increasingly skilled workforce. As part of the President's High Growth Job Training Initiative, DOL has been working closely with business and industry to identify those skills and occupations that are in high demand. DOL has also been working with the state and local workforce investment systems, community colleges, economic development agencies, and industry to target job training toward actual employment opportunities. This is all part of DOL’s commitment to help American workers obtain good jobs at good wages with solid career paths.

_______________________

3An Air Force Specialty Code (AFSC) is the basic grouping of positions requiring similar skills and qualifications. In turn, the Air Force Specialty (AFS) is grouped into career field ladders, career field subdivisions, and career fields to provide for career development in different aspects of a career field. An AFS may be subdivided by alphabetical "shredouts" to identify specialization in a specific type of equipment or function. (AFI 36-2108, Classification of Enlisted Personnel)

DOL has a broad array of programs and initiatives that are relevant to transitioning military personnel. Those initiatives most closely aligned with credentialing the servicemember are discussed in this section.

NATIONAL APPRENTICESHIP SYSTEM

For more than 65 years, DOL and the State Apprenticeship Agency/Councils have partnered with private sector employers, labor management organizations, and public sector sponsors in the establishment of Registered Apprenticeship National Standards and Guidelines. Registered Apprenticeship provides a systematic approach to voluntary uniform training standards that are recognized on a national basis. Registered Apprenticeship also serves as a national credentialing program that utilizes both time-based and competency/ performance-based training methodologies. DOL approves apprenticeable occupations utilizing industry and public input, provides technical assistance to sponsors in the establishment of Registered Apprenticeship programs, and maintains apprenticeship training records. An example of this partnership is the National Institute for Metalworking Skills (NIMS) registered program, a competency-based program recognized by multiple employer associations. The sponsors’ investment in apprenticeship and its organization’s human capital results in a return on investment that is exemplified by increased employee productivity, improved employee earning capacity, and enhanced economic contributions to the community. Additionally, there are clear indications that nationally recognized Registered Apprenticeship credentials earned in the military services can aid the transition to civilian life by providing a transferable skill credential applicable to civilian employment.

United Services Military Apprenticeship Program

The National Apprenticeship Standards for the United Services Military Apprenticeship Program (USMAP) were developed to provide general policy and guidance to Military Commanding Officers responsible for training and development of apprentices registered with DOL’s Office of Apprenticeship Training, Employer and Labor Services, (OATELS). Currently, the participating military services include the U.S. Navy, Marine Corps and Coast Guard.

The ultimate objective of the USMAP registered apprenticeship program is to provide military members a civilian recognized occupational certification that is based on the servicemember’s training and military experience. Currently there are 18,243 registered apprentices and 124 occupations recognized in the program. Many of these occupations have been cross-walked to their private industry counterpart.

The USMAP is actively increasing the number of credentialing apprenticeship trade opportunities by adding military occupations annually from each participating service. Currently the Coast Guard has 21 ratings, Navy has 69 ratings, and Marine Corps has 195 occupational specialties covered under USMAP trades available for participation in apprenticeship programs.

Military personnel who completed their apprenticeship under the USMAP are well trained for employment opportunities in private industry, thus enhancing their transition to civilian life. Apprenticeship provides motivation to active duty military personnel to advance within their occupational specialties, as well as skilled individuals to meet national skilled workforce requirements. Apprenticeship training has proven to be beneficial to the military services, the individual and private industry.

Helmets To Hard Hats

DOL is currently in the process of revising a number of National Apprenticeship Guideline Standards to include the “Helmets to Hard Hats” program that permits direct entry into civilian apprenticeship programs and credit for work experience to transitioning veterans with training and experience in related military occupations. This program has resulted in a major coordination effort between DOL, employer/sponsors, and labor management organizations nationwide. (See Appendix D: Apprenticeship Programs in the Military and Fast Facts on Apprenticeship in the U.S. for more detailed information.)

Department of Veterans Affairs

Currently, DOL is coordinating opportunities with the Department of Veterans Affairs to implement the provisions of the Veteran Benefits Improvement Act of 2004. DOL and State Apprenticeship Agency/Council representatives continue to assist State Veterans Affairs Offices in the process of approving apprenticeship programs for veterans’ benefits.

See APPENDIX D: Apprenticeship Programs in the Military and Fast Facts on Apprenticeship in the U.S. for detailed information on the Apprenticeship program.

ELECTRONIC TOOLS

Military Resume Writer

The Military Resume Writer (MRW), developed jointly by DOL and DoD, is an online resume-writer tool intended for use by transitioning military personnel and recently separated veterans to prepare quality resumes that will appeal to civilian employers. The MRW integrates data from DoD on military occupational specialties with extensive information contained in DOL’s civilian resume writer. Users are led through a step-by-step process to craft a resume that is then accessible to thousands of employers through DOL’s America’s Job Bank.

The MRW was designed to ensure that military education, training, and experience are accurately and concisely captured on the resume. It includes a section that enables users to input information on licenses and certifications they have obtained as well as apprenticeships in which they have participated. It is accessible from the DoD Transition Portal as well as through America’s Job Bank.

Servicemembers’ Career Guidance Tool

In the course of its work with transitioning servicemembers, DOL’s Veterans Employment and Training Service (VETS) identified a potential need for a web-based Career Guidance Tool that would serve the needs of three groups of transitioning servicemembers: Transitioning Specialists, Transitioning Generalists, and Career Switchers. Transitioning Specialists are servicemembers who plan to apply for civilian jobs requiring specific occupational skills that are consistent with their military experience. Transitioning generalists are servicemembers who do not have occupational skills that correspond to civilian occupations. Career Switchers are servicemembers considering additional education or training in preparation for a new civilian career. The Tool, as envisioned, would include comprehensive career information to suit the unique needs of transitioning servicemembers.

Prior to developing such a tool, it is important to determine whether it would be feasible to develop the tool, the potential scope of the development effort, and the issues (from both a technology and a content standpoint) that would be encountered in developing the tool. Therefore, DOL sponsored a project to explore the feasibility of developing a web-based Career Guidance Tool to meet the needs of transitioning servicemembers. The feasibility assessment is in its final stages and the report is expected to be finalized shortly. A prototype of the Tool has been developed demonstrating the features of the proposed Tool, which include, among other things, information on civilian licenses, certifications, and apprenticeships relevant to military occupational specialties.

A Credentialing Center tool will be added to DOL’s America’s Career InfoNet web site, www.acinet.org, shortly. This was developed based on the work under the DOD/DOL MOU and is designed to make credentialing information more readily available to both civilians and servicemembers. This site will bring together five credentialing resources in a single location: Certification Finder, Licensed Occupations, DOL Registered Apprenticeship, United States Military Apprenticeship Program (USMAP), and Army’s Credentialing Opportunities Online (COOL).

Credentialing Information Sources

As noted above, DOL has developed a number of comprehensive information sources capturing a variety of civilian labor market information, including information on credentialing. These information sources can aid in the ability of individuals to identify relevant credentials and obtain contact information for the credentialing agency.

America’s Career InfoNet (www.acinet.org) is a national, no-fee career and labor market information web site with resources and tools for counselors, teachers and trainers to help jobseekers make informed career decisions and to support a demand-driven workforce investment system.

The Certification Finder tool in (America’s Career InfoNet) is a directory of civilian occupational certifications containing over 3,000 entries that can be searched by occupational area, industry, or keyword.

The Licensed Occupations tool in (America’s Career InfoNet) provides access to occupational licensing requirements searchable by state, occupation, or agency. This tool includes information on licenses that may be required by law in order to practice in a particular occupation. (Information is supplied by states, so complete information for all states, or all agencies, and licenses within a state, may not be included or updated on the same schedule.)

The Army coordinated with DOL to incorporate the information contained in the Certification Finder Tool into its COOL database facilitating the Army’s ability to identify certifications relevant to Army occupational specialties. The COOL web site also provides links to these tools for individuals who want to explore credentials that may not be related to their occupational specialties.

Civilian Occupation Descriptions

O*NET, the Occupational Information Network, is a comprehensive database of worker attributes and job characteristics. (O*NET OnLine) is a web application that enables users to query, view, and print information contained in the O*NET database. The O*NET database contains detailed information, including knowledge, skills, & abilities (KSAs), tasks, general and detailed work activities, work context, interests, work values, and styles, for over 800 occupations covering the U.S. workforce. The O*NET system is based on the 2000 Standard Occupational Classification, so that O*NET data also link to related occupational, educational, and employment and wage information databases.

Military personnel can use the Crosswalk feature of O*NET OnLine to enter their Military Occupational Classification (MOC) code or title to identify related civilian occupations and directly access the O*NET reports for them. (The MOC to O*NET-SOC crosswalk is supported by the work of the Defense Manpower Data Center.)

The Occupational Outlook Handbook is a reference work produced by DOL’s Bureau of Labor Statistics. Every two years it provides an updated narrative description of hundreds of major occupations in the U.S. workplace. The Occupational Outlook Handbook is a nationally recognized source of career information, designed to provide valuable assistance to individuals making decisions about their future work lives. Revised every two years, the Handbook describes what workers do on the job, working conditions, the training and education needed, earnings, and expected job prospects in a wide range of occupations. The Army’s COOL web site provides links to descriptions contained in the Occupational Outlook Handbook for Soldiers seeking information about comparable jobs in the civilian workforce. Moreover, education counselors across the service use the Handbook to counsel servicemembers on career options.

Career Voyages is a popular new demand-driven career guidance web site designed to appeal to youth and career changers that highlights useful and relevant information on in-demand careers that are part of the President’s High Growth Job Training Initiative. That initiative has identified twelve sectors at the national level that: (1) are projected to add substantial numbers of new jobs to the economy; or (2) have a significant impact on the economy overall; or (3) impact the growth of other industries, or (4) are being transformed by technology and innovation requiring new skills sets for workers; or (5) are new and emerging businesses that are projected to grow. Career Voyages also just unveiled a feature that allows searches of the high-demand occupations by Military Occupational Classification code or crosswalks from its listing of civilian occupations to related military careers.

TRANSITION ASSISTANCE PROGRAM

Veterans of the U.S. Armed Forces are less likely, overall, to be unemployed than non-veterans, according to the most recently available statistics. However, according to the same report, recently discharged veterans had a higher initial jobless rate than non-veterans. See Appendix A: Employment Situation of Veterans.

In an effort to address this issue, DOL established the Transition Assistance Program (TAP) employment workshops. These workshops, taught by trained facilitators, are designed to offer job search assistance and related services to separating servicemembers and spouses during their transition to civilian life and a civilian career. These TAP workshops are a partnership between DOL, DoD, and the Department of Veterans Affairs (VA). Eligible participants include Armed Forces Members within one year of their separation date or within two years of their retirement date. Subjects covered include personal appraisal, career exploration, strategies for an effective job search, interviews, reviewing job offers, and methods for accessing support and assistance. During the career exploration portion of the workshop, credentialing is discussed along with how to access web-based information on relevance of military training to civilian credentials.

STATUTORY FISCAL CONSTRAINTS ON THE MILITARY SERVICES

Use of the MGIB, DANTES, and Apprenticeship programs provide only a partial solution for the Armed Forces to assist servicemembers to obtain civilian occupational credentials. MGIB and DANTES are available to servicemembers only on a voluntary, off-duty basis. These programs are of limited use to servicemembers who are deployed for extended periods of time. Insufficient legal authority exists for the Armed Forces to expend appropriated funds for servicemembers to acquire civilian/commercial occupational credentials. The established rule, set forth in a line of Comptroller General decisions going back nearly a century, specifies that the expenses associated with credentials are a servicemember’s expense and not a necessary expense of the government agency. Therefore, absent specific statutory authority, appropriated funds may not generally be used to pay for commercial certifications. In 2002, Congress enacted specific statutory authority approving the use of appropriated funds to pay for credentials for civilian employees of the government (5 USC §5757). That statutory authority does not extend to military members.

Current statutory authority permits only the use of appropriated funds to pay for commercially contracted training courses that include an examination leading to credentials. This authority is limited, however, to instances where the examination logically relates to the training and where it is included as part of the purchase price of the course “package”, as mentioned earlier in this report. No authority exists to reimburse a servicemember for a certification that is not part of a course “package”. DoD has forwarded a proposal to Congress seeking such legislative authority, in the form of an amendment to Title 10, authorizing the use of appropriated funds to pay for credentials for servicemembers, similar to that recently enacted by Congress for civilian personnel. Such legislative relief represents an optimal resolution of the fiscal constraints on the Armed Forces assisting servicemembers in obtaining credentials.

In addition, mobilized Reserve Component officers are currently ineligible for either Active or, because of activation, Reserve Component tuition assistance because they cannot fulfill the 2-year Active Duty Service Obligation incurred by using tuition assistance on active duty. This Active Duty Service Obligation requirement is statutory—contained in U.S. Code Title 10, Section 2007.

SUMMARY

There is no more deserving or more valuable group of American workers than our nation’s servicemembers and veterans. They are a highly trained, skilled, disciplined, and dedicated group of men and women that have served this country. Both the Department of Labor and the Department of Defense recognize the debt we owe these servicemembers and veterans. Both Departments also recognize that transitioning servicemembers represent a unique labor pool that can contribute significantly to the nation’s ability to maintain its competitive edge in the world economy.

Facilitating servicemembers’ smooth transition to the civilian workforce is critical to our nation’s ability to successfully tap into this skilled labor pool and take full advantage of their many skills and highly developed work ethics. Aiding servicemembers in obtaining civilian credentials has increasingly been recognized as an important element of this transition. Civilian credentials, such as licenses, certifications, and apprenticeships, maximize servicemembers’ ability to demonstrate to civilian employers that their skills are on par with those of their civilian counterparts. As a result, these credentials can reduce periods of unemployment and underemployment that servicemembers sometimes encounter when transitioning to the civilian workforce.

A number of constraints and challenges to this process of credentialing the servicemember have been identified in this report. But even with these constraints and challenges, the credentialing picture for our servicemembers making the transition into the civilian workforce has improved markedly with the current and continuing programs of each of the military services, and the cooperative efforts between the Departments of Labor and Defense



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