Veterans Service Organizations (VSOs): Frequently Asked Questions

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Veterans Service Organizations (VSOs):
June June 1226, 2020 , 2020
Frequently Asked Questions
Tamar B. Breslauer
Veterans Service Organizations (VSOs) offer a range of services for veterans, Veterans Service Organizations (VSOs) offer a range of services for veterans,
Research Librarian Research Librarian
servicemembers, dependents, and survivors. Some VSOs may provide programming for servicemembers, dependents, and survivors. Some VSOs may provide programming for

veterans in their communities, such as job fairs; others may organize events to raise veterans in their communities, such as job fairs; others may organize events to raise
Carol D. Davis
money for a subset of veterans, such as housing for homeless veterans. Some VSOs train Senior Research Librarian money for a subset of veterans, such as housing for homeless veterans. Some VSOs train Senior Research Librarian
individuals to meet federal regulatory requirements to become accredited representatives individuals to meet federal regulatory requirements to become accredited representatives
who can represent claimants before the Department of Veterans Affairs’ (VA’s) regional who can represent claimants before the Department of Veterans Affairs’ (VA’s) regional
offices and its Board of Veterans’ Appeals. This report answers frequently asked offices and its Board of Veterans’ Appeals. This report answers frequently asked

questions to clarify how VSOs are funded, administered, and connected to the federal questions to clarify how VSOs are funded, administered, and connected to the federal
government. government.

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Veterans Service Organizations: FAQ

What Are Veterans Service Organizations?
Veterans Service Organizations (VSOs) are organizations that aid and serve veterans, Veterans Service Organizations (VSOs) are organizations that aid and serve veterans,
servicemembers, dependents, and survivors. Descriptions of different types of VSOs appear in the servicemembers, dependents, and survivors. Descriptions of different types of VSOs appear in the
Department of Veterans Affairs’ (VA’s) Department of Veterans Affairs’ (VA’s) 2019 Directory: Veterans and Military Service
Organizations and State Directors of Veterans Affairs ( (Directory of VSOs).1 ).1
According to the directory, VSOs may fal into one or more of the following categories: According to the directory, VSOs may fal into one or more of the following categories:
 congressional y chartered organizations;2  congressional y chartered organizations;2
 organizations recognized by VA;3  organizations recognized by VA;3
 organizations recognized by VA to prepare, present, and prosecute claims;4  organizations recognized by VA to prepare, present, and prosecute claims;4
 national organizations;5  national organizations;5
 state, county, or tribal governmental organizations; 6  state, county, or tribal governmental organizations; 6
 regional or local organizations;7 or  regional or local organizations;7 or
 nonprofit organizations.  nonprofit organizations.
There is no uniformly applied statutory definition of the term There is no uniformly applied statutory definition of the term VSO, but certain laws use the term , but certain laws use the term
more narrowly than the more narrowly than the Directory of VSOs. For example, the Veterans Appeals Improvement and . For example, the Veterans Appeals Improvement and
Modernization Act of 2017 (P.L. 115-55) stated: “The term ‘veterans service organization’ means Modernization Act of 2017 (P.L. 115-55) stated: “The term ‘veterans service organization’ means
any organization recognized by the Secretary for the representation of veterans under section any organization recognized by the Secretary for the representation of veterans under section
5902 of title 38, 5902 of title 38, United States Code.” Any organization that addresses veterans’ needs may cal .” Any organization that addresses veterans’ needs may cal
itself a VSO. itself a VSO.
What Services and Activities Are Supported by Veterans Service
Organizations?
VSOs serve veterans, and their activitiesVSOs serve veterans, and their activities may encompass a range of services, such as may encompass a range of services, such as
 providing programming for veterans in their communities, such as job fairs;  providing programming for veterans in their communities, such as job fairs;
 organizing events to raise money for a subset of veterans, such as housing for  organizing events to raise money for a subset of veterans, such as housing for
homeless veterans; or homeless veterans; or
~~ providing access to accredited veterans service representatives who can help~~
~~veterans when they apply for VA benefits.~~

1 Department of Veterans Affairs (VA), 1 Department of Veterans Affairs (VA), 2019 Directory: Veterans and Military Service Organizations and State
Directors of Veterans Affairs, at https://www.va.gov/vso/VSO-Directory.pdf (hereinafter cited as , at https://www.va.gov/vso/VSO-Directory.pdf (hereinafter cited as Directory of VSOs). ).
2 CRS has a nondistributable, archived report on congressionally chartered organizations, RL30340, 2 CRS has a nondistributable, archived report on congressionally chartered organizations, RL30340, Congressionally
Chartered Nonprofit Organizations (“Title 36 Corporations”): What They Are and How Congress Treats Them , which , which
explains this chartering process. explains this chartering process.
338 C.F.R. §14.628 (Recognition of Organizations). 338 C.F.R. §14.628 (Recognition of Organizations).
4 According to VA’s Office of General Counsel, 4 According to VA’s Office of General Counsel,
Under the authority granted in section 5902 of title 38, Under the authority granted in section 5902 of title 38, United States Code, VA may recognize , VA may recognize
organizations for the purpose of assisting claimants for VA benefits inorganizations for the purpose of assisting claimants for VA benefits in the preparation, the preparation,
presentation, and prosecution of their claims. VA has implemented this authority in section 14.628 presentation, and prosecution of their claims. VA has implemented this authority in section 14.628
of title 38, of title 38, Code of Federal Regulations, which prescribes the application requirements for national, , which prescribes the application requirements for national,
state, and regional or local organizations. state, and regional or local organizations.
5 38 C.F.R. §14.628(a). 5 38 C.F.R. §14.628(a).
6 38 C.F.R. §14.628(b)(1) (State organizations); 38 C.F.R. §14.628(b)(2) (T ribal organizations). 6 38 C.F.R. §14.628(b)(1) (State organizations); 38 C.F.R. §14.628(b)(2) (T ribal organizations).
7 38 C.F.R. §14.628(c). 7 38 C.F.R. §14.628(c).
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Veterans Service Organizations: FAQ

 providing access to accredited veterans service representatives who can help veterans when they apply for VA benefits. Are Veterans Service Organizations Federal Agencies?
VSOs are not federal agencies. VSOs may be nonprofit organizations or state, county, tribal, or VSOs are not federal agencies. VSOs may be nonprofit organizations or state, county, tribal, or
local government agencies. Employees who work for VSOs are not federal employees. local government agencies. Employees who work for VSOs are not federal employees.
However, the VA Secretary may make space available in departmental facilities for individuals However, the VA Secretary may make space available in departmental facilities for individuals
who work for national VSOs that have been recognized by the Secretary. According to 38 U.S.C. who work for national VSOs that have been recognized by the Secretary. According to 38 U.S.C.
§5902(a)(2), “the Secretary may, in the discretion of the Secretary, furnish, if available, space and §5902(a)(2), “the Secretary may, in the discretion of the Secretary, furnish, if available, space and
office facilities for the use of paid full-time representatives of national organizations so office facilities for the use of paid full-time representatives of national organizations so
recognized.” Thus, while employees of some VSOs may be physical y working at VA federal recognized.” Thus, while employees of some VSOs may be physical y working at VA federal
facilities, they are not federal workers. The VSO employees are positioned in these facilities to facilities, they are not federal workers. The VSO employees are positioned in these facilities to
conveniently assist veterans, their spouses, and their beneficiaries. conveniently assist veterans, their spouses, and their beneficiaries.
What Are Congressionally Chartered Veterans Service
Organizations?
Congressional y chartered VSOs are organizations that have been granted charters by Congress Congressional y chartered VSOs are organizations that have been granted charters by Congress
through the enactment of public laws. Each congressional y chartered VSO is listed in 36 U.S.C. through the enactment of public laws. Each congressional y chartered VSO is listed in 36 U.S.C.
Subtitle II: Patriotic and National Organizations. Subtitle II: Patriotic and National Organizations.
A VSO is “congressional y chartered” if Congress has passed a law that chartered the A VSO is “congressional y chartered” if Congress has passed a law that chartered the
organization. Provisions related to congressional charters are codified in 36 U.S.C. Subtitle II.8 organization. Provisions related to congressional charters are codified in 36 U.S.C. Subtitle II.8
According to the According to the Directory of VSOs,9,9 the last VSO chartered by Congress was the Military the last VSO chartered by Congress was the Military
Officers Association of America in 2009.10 Congress may amend existing charters, which often Officers Association of America in 2009.10 Congress may amend existing charters, which often
include conditions for membership, mission, or other characteristics of the particular VSO. include conditions for membership, mission, or other characteristics of the particular VSO.
Among the congressional y chartered VSOs are the American Legion,11 which was chartered in Among the congressional y chartered VSOs are the American Legion,11 which was chartered in
1919, and Disabled American Veterans (DAV),12 which was chartered in 1932. 1919, and Disabled American Veterans (DAV),12 which was chartered in 1932.
What Are Recognized Veterans Service Organizations?
A recognized VSO is one that has been recognized by VA,13 which means that the organization A recognized VSO is one that has been recognized by VA,13 which means that the organization
has satisfied multiple requirements outlined in 38 C.F.R. §14.628. Recognized VSOs may be has satisfied multiple requirements outlined in 38 C.F.R. §14.628. Recognized VSOs may be
national organizations, state organizations, regional or local organizations, or tribal national organizations, state organizations, regional or local organizations, or tribal
organizations.14 organizations.14
Recognized VSOs are not individual y named in the Recognized VSOs are not individual y named in the U.S. Code. Authority to determine that a . Authority to determine that a
VSO is “recognized” is granted to the VA Secretary in 38 U.S.C. §5902 (Recognition of VSO is “recognized” is granted to the VA Secretary in 38 U.S.C. §5902 (Recognition of
~~representatives of organizations). The specific regulations that apply to recognized VSOs appear~~
~~in 38 C.F.R. §14.628 (Recognition of organizations).~~

8 CRS has a nondistributable, archived report on congressionally chartered organizations, RL30340, 8 CRS has a nondistributable, archived report on congressionally chartered organizations, RL30340, Congressionally
Chartered Nonprofit Organizations (“Title 36 Corporations”): What They Are and How Congress Treats Them, which , which
explains this process. explains this process.
9 See 9 See Directory of VSOs, at https://www.va.gov/vso/VSO-Directory.pdf. , at https://www.va.gov/vso/VSO-Directory.pdf.
10 See 36 U.S.C. §§140401-140412. 10 See 36 U.S.C. §§140401-140412.
11 See 36 U.S.C. §§21701-21708. 11 See 36 U.S.C. §§21701-21708.
12 See 36 U.S.C. §§50301-50309. 12 See 36 U.S.C. §§50301-50309.
13 38 C.F.R. §14.628(d) describes the requirements that must be met for recognition. 13 38 C.F.R. §14.628(d) describes the requirements that must be met for recognition.
14 See VA,14 See VA, “Recognition of T ribal Organizations for Representation of VA Claimants,” 82 “Recognition of T ribal Organizations for Representation of VA Claimants,” 82 Federal Register 6265, 6265,
January 19, 2017. January 19, 2017.
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Veterans Service Organizations: FAQ representatives of organizations). The specific regulations that apply to recognized VSOs appear in 38 C.F.R. §14.628 (Recognition of organizations).
The requirements to become a recognized VSO include, but are not limited to The requirements to become a recognized VSO include, but are not limited to
 having a primary purpose to serve veterans;  having a primary purpose to serve veterans;
 demonstrating commitment to veterans through a sizeable organizational  demonstrating commitment to veterans through a sizeable organizational
membership or performance of veterans services; membership or performance of veterans services;
 committing a significant portion of the organization’s assets to veterans services;  committing a significant portion of the organization’s assets to veterans services;
and and
 submitting evidence that the organization wil represent claimants or that it wil  submitting evidence that the organization wil represent claimants or that it wil
inform claimants on how to find accredited representation. inform claimants on how to find accredited representation.
VSOs provide evidence to the VA Secretary that they meet these criteria through documentation VSOs provide evidence to the VA Secretary that they meet these criteria through documentation
(e.g., membership data, bylaws, description of services provided, and copies of their financial (e.g., membership data, bylaws, description of services provided, and copies of their financial
statements). In cases where the organization provides VA claims services, evidence must be statements). In cases where the organization provides VA claims services, evidence must be
provided that the group has the capability to represent claimants before VA regional offices and provided that the group has the capability to represent claimants before VA regional offices and
VA’s Board of Veterans’ Appeals. VA’s Board of Veterans’ Appeals.
Do Veterans Service Organizations Provide Access to Accredited Representatives? Recognized VSOs may provide access to accredited representatives, who assist claimants with their affairs before VA. Not al recognized VSOs provide accredited representatives to represent claimants. The Not al recognized VSOs provide accredited representatives to represent claimants. The
recognized VSOs that do not represent claimants must il ustrate how they wil inform veterans of recognized VSOs that do not represent claimants must il ustrate how they wil inform veterans of
the limitedthe limited services they can provide, as wel as how they wil advise veterans services they can provide, as wel as how they wil advise veterans on how to find on how to find
~~accredited representation.~~
~~Do Veterans Service Organizations Provide Access to Accredited~~
~~Representatives?~~
~~Recognized VSOs may provide access to accredited representatives, who assist claimants with~~
~~their affairs before VA. (For more information on recognized VSOs, see “What Are Recognized~~
~~Veterans Service Organizations?”)~~
accredited representation. Recognized VSOs submit applications of individuals seeking to become accredited Recognized VSOs submit applications of individuals seeking to become accredited
representatives to VA’s Office of General Counsel for accreditation. These applications include representatives to VA’s Office of General Counsel for accreditation. These applications include
evidence that the individuals have been trained and meet specific qualifications.15 Recognized evidence that the individuals have been trained and meet specific qualifications.15 Recognized
VSOs that provide access to accredited representatives often also provide the required continuing VSOs that provide access to accredited representatives often also provide the required continuing
learning credits that representatives must periodical y complete. learning credits that representatives must periodical y complete.
Accredited representatives who work for VSOs may not charge their clients fees.Accredited representatives who work for VSOs may not charge their clients fees.
For more information on accredited representatives, see CRS Report R46428, Veterans Accredited Representatives: Frequently Asked Questions. How Are Veterans Service Organizations Funded?
VSOs may receive funding from state, county, or private funding sources. They may also receive VSOs may receive funding from state, county, or private funding sources. They may also receive
federal grants to support specific activities. federal grants to support specific activities.
15 See 38 U.S.C. §§5901-5905; 38 C.F.R. §§14.626-14.637. Congressional Research Service 3 Veterans Service Organizations: FAQ Do Veterans Service Organizations Provide Reports to the Federal
Government?
Certain VSOs have varying federal reporting requirements. Some may be required to file with the Certain VSOs have varying federal reporting requirements. Some may be required to file with the
Internal Revenue Service (IRS);16 others may be required to submit reports as a result of Internal Revenue Service (IRS);16 others may be required to submit reports as a result of

~~15 See 38 U.S.C. §§5901-5905; 38 C.F.R. §§14.626-14.637.~~
~~16 See CRS Report R40919, An Overview of the Nonprofit and Charitable Sector for filing information.~~
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~~Veterans Service Organizations: FAQ~~

provisions in their congressional charters.17 However, there is no uniform requirement for al provisions in their congressional charters.17 However, there is no uniform requirement for al
VSOs or al congressional y chartered VSOs to submit reports. VSOs or al congressional y chartered VSOs to submit reports.
Does Veterans Affairs Provide Grants Specifically for Veterans
Service Organizations?
Most VA support is designed to aid individual veterans rather than organizations that serve Most VA support is designed to aid individual veterans rather than organizations that serve
veterans. On occasion, Congress has authorized VA to administer grants for which applications veterans. On occasion, Congress has authorized VA to administer grants for which applications
may be solicited from VSOs. For example, the Veterans Transportation Program notes the may be solicited from VSOs. For example, the Veterans Transportation Program notes the
following requirement for applicants for its Highly Rural Transportation Grants: following requirement for applicants for its Highly Rural Transportation Grants:
Only a Veterans Service Organization (VSO) or a State Veterans Service Agency can Only a Veterans Service Organization (VSO) or a State Veterans Service Agency can
apply, according to paragraphs (a)(2)(A)-(B) of section 307 of the 2010 Act. VSO must be apply, according to paragraphs (a)(2)(A)-(B) of section 307 of the 2010 Act. VSO must be
recognized by the Secretary of Veterans Affairs for the representation of Veterans under recognized by the Secretary of Veterans Affairs for the representation of Veterans under
section 5902 of Title 38, section 5902 of Title 38, United States Code.18 .18
Do Other Federal Agencies Offer Grants for Veterans Service
Organizations?
VSOs may be eligible for federal support based on the services they provide or the community VSOs may be eligible for federal support based on the services they provide or the community
needs they fil . For more information on funding, congressional offices may consult the CRS needs they fil . For more information on funding, congressional offices may consult the CRS
“Grants and Federal Assistance” page, available at https://www.crs.gov/Resources/Grants. “Grants and Federal Assistance” page, available at https://www.crs.gov/Resources/Grants.
Where Can I Find a Directory of All Veterans Service
Organizations?
No single resource provides a comprehensive list of al VSOs. However, the following resources No single resource provides a comprehensive list of al VSOs. However, the following resources
provide selected lists of VSOs: provide selected lists of VSOs:
 VA, “E-Benefits: Manage your representative for VA Claims,”19  VA, “E-Benefits: Manage your representative for VA Claims,”19
 VA, “VSOs in Regional VA Offices,”20  VA, “VSOs in Regional VA Offices,”20
  Directory of VSOs,, at https://www.va.gov/vso/VSO-Directory.pdf,21 at https://www.va.gov/vso/VSO-Directory.pdf,21
 VA, “Directory of State Veterans Affairs Offices,”22 and  VA, “Directory of State Veterans Affairs Offices,”22 and
 36 U.S.C. Subtitle II: Patriotic and National Organizations.  36 U.S.C. Subtitle II: Patriotic and National Organizations.

16 See CRS Report R40919, An Overview of the Nonprofit and Charitable Sector for filing information. 17 See, for example, 36 U.S.C. §§120101-120112, requiring an annual report to be submitted 17 See, for example, 36 U.S.C. §§120101-120112, requiring an annual report to be submitted ~~t o~~to Congress. Congress.
18 See VA, “Health Benefits,” at https://www.va.gov/healthbenefits/vtp/grant_applicants.asp. 18 See VA, “Health Benefits,” at https://www.va.gov/healthbenefits/vtp/grant_applicants.asp.
19 See VA, eBenefits, “Manage Your Representative for VA Claims,” at https://www.ebenefits.va.gov/ebenefits/vso-19 See VA, eBenefits, “Manage Your Representative for VA Claims,” at https://www.ebenefits.va.gov/ebenefits/vso-
search. Includes search for recognized VSO, accredited attorneys, and accredited claims agents. search. Includes search for recognized VSO, accredited attorneys, and accredited claims agents.
20 See VA, “VSOs at Regional Benefit Offices,” at https://www.benefits.va.gov/vso/varo.asp. 20 See VA, “VSOs at Regional Benefit Offices,” at https://www.benefits.va.gov/vso/varo.asp.
21 See 21 See Directory of VSOs, at https://www.va.gov/vso/VSO-Directory.pdf. , at https://www.va.gov/vso/VSO-Directory.pdf.
22 See VA, “State Veteran Affairs Offices,” at https://www.va.gov/statedva.htm. 22 See VA, “State Veteran Affairs Offices,” at https://www.va.gov/statedva.htm.
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Veterans Service Organizations: FAQ

Author Information

Tamar B. Breslauer Tamar B. Breslauer
Carol D. Davis Carol D. Davis
Research Librarian Research Librarian
Senior Research Librarian Senior Research Librarian

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