OFFICE OF THE VETERAN ADVOCATE
ANNUAL REPORT
Fiscal Year 2024
November 2024
The Commonwealth of Massachusetts
Bob Notch, Veteran Advocate
 Office of the Veteran Advocate
FY2024 Annual Report
Table of Contents
Letter from the Veteran Advocate……………………………………………………………………………………………..2
Executive Summary…………………………………………………………………………………………………………….……..3
The Office of the Veteran Advocate………………………………………………………………………………………..…5
A Starting Point – Visualizing Massachusetts’ Veteran Population……………………………………..….….8
Responsibilities and Actions of the Office…………………………………………………………………………….….12
Analysis of Issues and Recommendations………………………………………………………………………………..21
Conclusion……………………………………………………………………………………………………………………………….24
Appendices
Appendix A – Glossary and Acronyms……………………………………………..…………………………………..…25
Appendix B – MGL Chapter 115B, Section 2..………………………………………………………………….……..26
Appendix C – OVA HERO Act Written Testimony ……………………………….……………………………..…..27
Appendix D – Definitions of Veteran in Massachusetts General Laws……..…………………………..…30
This report meets the requirements of Massachusetts General Laws, Chapter 115B, Section 2.
Report annually to the governor, the senate president, the speaker of the house of
representatives, the senate and the house committees on ways and means, and the joint
committee on veterans and federal affairs on the activities of the office, including, but not
limited to,
a. an analysis of the delivery of services to veterans and recommendations for changes in
agency procedures which would enable the commonwealth to better provide services to and for
veterans and their families and
b. priorities for implementation of those changes to services.
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FY2024 Annual Report
Executive Summary
The inaugural annual report of the Office of the Veteran Advocate (OVA) for Fiscal Year 2024 is
hereby presented to the governor, senate president, speaker of the house of representatives,
state legislators, and the citizens of Massachusetts. This comprehensive document outlines the
Office's mission, responsibilities, and key initiatives aimed at enhancing the lives of veterans in
the Commonwealth of Massachusetts.
Office of the Veteran Advocate - Mission and Vision
The OVA was established under Session Law, Chapter 144 of the Acts of 2022, underscoring its
commitment to ensuring that every veteran receives the highest standard of care, access to
comprehensive benefits, and the respect and dignity they deserve. We developed our vision
and mission through thoughtful and deliberate consideration of the broad responsibilities
specified in this enabling statute.
A year-end snapshot of the OVA includes:
- The status of five full-time priority positions of the core staff needed to meet initially
identified responsibilities.
- A listing of key milestones during its first eight months.
- A discussion of FY2024 spending and budget request for FY2025.
- Actions related to advising state legislators on proposals in the HERO Act legislation.
This report also provides a contextual baseline for discussing the veteran population in
Massachusetts. Data from the U.S. Department of Veterans Affairs National Center for Veterans
Analysis and Statistics estimates a population of nearly 274,000 veterans in Massachusetts. This
estimate is the midpoint of a continuing decline of approximately 4% annually in the
Commonwealth’s veteran population. Looking into the future, the percentage of women
veterans in the state increases while their total number remains relatively constant.
Responsibilities and Actions
Throughout the fiscal year, the OVA has focused on establishing the office to fulfill its statutory
responsibilities. This report outlines actions taken by the OVA in FY2024 and plans to continue
its efforts into FY2025 to establish full functionality in the ten numbered responsibilities listed
in Massachusetts General Laws (MGL) Chapter 115B.
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Issues and Recommendations
While establishing the office and building capacity, the OVA began initial efforts in analyzing
strategic issues. The analysis reveals several key areas that warrant attention, including:
- Continue HERO Act Initiatives. The HERO Act amended the definition of veteran in MGL c. 115,
aligning it with federal standards, but it still leaves gaps in eligibility for some veteran programs
under other chapters of Massachusetts General Laws. Numerous veteran benefits and services
fall under the primary definition of "veteran" stated in MGL c. 4, which remains unchanged. The
OVA recommends working with legislators to update the foundational definition of a veteran in
Chapter 4 to resolve these inconsistencies
- Justice Involved veterans. Veterans incarcerated in Massachusetts may face difficulties
accessing physical exams necessary to complete their VA benefits claims, despite the existence
of veterans' treatment courts. While federal agreements exist to allow incarcerated veterans to
complete claims, the process can be delayed, impacting their transition back to society. The
OVA, with assistance, is developing a working group to assess and improve the justice system
for veterans, from pretrial to reentry, including recommendations for better access to benefits.
- TRICARE Providers. TRICARE, a health care program for military personnel and veterans, is
challenging for many Massachusetts residents to access due to a shortage of participating
providers. Recent reports from veterans struggling to find TRICARE providers indicate a systemic
issue. The OVA plans to review the availability and status of TRICARE providers in Massachusetts
and report on potential issues affecting veterans’ health care access.
- Support to Uniformed Service Members and Their Families. Massachusetts lacks a single
agency responsible for overseeing programs and services for active service members and their
families, as well as facilitating their transition to veteran status. Various agencies have limited
responsibilities, but no centralized support or oversight exists for military families in the state.
The OVA recommends expanding its mandate to include support for service members and their
families, to include funding for these expanded responsibilities.
Conclusion
This report serves not only as a statutory requirement but as a commitment to transparency
and accountability to those the Commonwealth serves. The ongoing collaboration with state
leaders, agency officials, and the veteran community will be pivotal in achieving our mission.
The OVA is dedicated to fostering an environment where veterans are celebrated, supported,
and empowered.
We appreciate the dedication of all stakeholders involved and look forward to continued
progress in this vital work for our Commonwealth's veterans.
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The Office of the Veteran Advocate (OVA)
Our Vision
Every veteran in the Commonwealth receives the highest standard of
care, enjoys the full spectrum of available benefits, and is treated
with unwavering respect and dignity.
OVA Seal Our Mission
The Office of the Veteran Advocate (OVA) safeguards the well-being,
dignified treatment, rights and benefits of veterans in the care of, or
receiving services from the Commonwealth; ensuring these veterans
and their families receive compassionate, timely, safe and effective
services. OVA collaborates to facilitate access to federal and state
benefits and conducts thorough investigations to enhance care and
services provided to veterans.
OVA Logo
Origins of the OVA
Chapter 144 of the Acts of 2022, AN ACT RELATIVE TO THE GOVERNANCE, STRUCTURE AND
CARE OF VETERANS AT THE COMMONWEALTH’S VETERANS’ HOMES, establishes the position of
Veteran Advocate and Office of the Veteran Advocate in Chapter 115B of Massachusetts
General Laws. Section 2 of this enabling statute establishes the OVA as an independent office
charged with multiple responsibilities and reporting requirements to the governor, legislative
leaders and the public. This legislation was passed as a response to the tragic COVID-19-related
deaths of 77 veterans at the Holyoke Veterans Home. 1
Understanding the OVA
The Office of the Veteran Advocate’s broad responsibilities extend from the strategic level of
the veteran ecosystem down to direct coordination with municipal veterans’ benefits and
services officers 2. Alongside liaising with federal agencies, the OVA liaises and assists state
1
See the May 2021 Report of the Special Joint Oversight Committee on the Soldier’s Home in Holyoke COVID-19
Outbreak, https://malegislature.gov/Commissions/Detail/518/Documents
2
Massachusetts General Laws Chapter 115 and 115B identify several names for municipal appointees that act to
disburse veteran benefits, including veterans’ agents, veterans’ benefits and services officers, veterans service
officers, Directors of Veterans’ Services Districts, and the Boston Commissioner for veterans’ benefits and services.
We will use the term veterans’ benefits and services officers as defined in MGL Chapter 115, Section 3B(b).
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agencies to ensure veterans and their families residing in the Commonwealth are treated
humanely and receive benefits and services needed.
Truth to Power. The OVA is also responsible for advising state leadership and the public on how
the Commonwealth may improve its veteran-related programs, benefits and services. It does so
by system-wide examinations of the care and services provided to veterans and their families.
Too often in the veteran space we see opinion or anecdotal examples used to influence public
perception or policymakers. The OVA will use peer reviewed research, data, best practices, law,
and regulations to evaluate issues and provide trusted recommendations to inform
policymakers and the public.
In the event of a fatality or serious injury to a veteran in the care of the Commonwealth, the
OVA conducts and reports investigations to state leaders and the public. It is the goal of the
Veteran Advocate to build proactive policies, procedures and relationships to prevent serious
injury or death from inadequate care from any executive agency.
Building the Office of the Veteran Advocate
OVA Staff on July 1, 2024
Bob Notch – Veteran Advocate
Danielle Dupont – Financial and Administrative Officer
Nathan Dufault – Veteran Safety Advisor
Scott Pitta – General Counsel
Kate Watson – Policy and Research Analyst
Vacant – Communications Specialist 3
Vacant (x4) – Regional Liaison (West, Central, Northeast, Southeast)
Vacant – Data and Technology Architect/Analyst
TBD – interns from local colleges and universities
In late November 2023, pursuant to Massachusetts General Laws (MGL) Chapter 115B, Bob
Notch was appointed as the Veteran Advocate. Through weekly coordination calls,
Interdepartmental Service Agreements and proactive collaboration with representatives from
the Governor’s Office, Executive Office for Administration and Finance, Office of the
Comptroller and Human Resources Division, the OVA quickly established necessary accounts
and initial procedures to begin basic operations. With additional assistance from the Executive
Office of Health and Human Services, the Division of Capital Asset Management and
Maintenance, and the Executive Office of Technology Services and Security, the OVA
3
Anthony Langone was hired in September 2024 as the Communications Specialist.
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established its physical presence through facilities, information technology hardware, and
digital services. These agencies were instrumental in establishing basic functionality for the OVA
and their support continues at reduced levels into fiscal year 2025 as OVA looks to stabilize
long-term operations.
In addition to establishing basic operational functions of the office, the Veteran Advocate and
staff members spent a significant amount of time conducting introductory meetings with
elected and appointed leaders across Massachusetts’ state and county government, regional
leaders at federal agencies, local veterans’ benefits and services officers, and community
groups supporting veterans and their families. Due to the extensive number of stakeholders in
the veteran support community, these introductory meetings will continue into FY2025.
Additionally, a significant portion of time was spent in the Massachusetts State House providing
information and recommendations regarding elements of the proposed HERO Act 4. The
Veteran Advocate provided verbal and written testimony5 during the January 2024 public
hearing and the Office provided contextual, research-backed information, advice and
recommendations as the bill moved from the House to the Senate and into Conference
Committee. It is important to highlight that key staff members have decades of cumulative
knowledge and experience working with veterans and their families. An OVA top priority is to
build trust and working relationships with elected leaders and their staff members to provide
sound advice on issues related to veterans and their families.
The general appropriation for the OVA in fiscal year 2024 was $750,000. With the appointment
of the Veteran Advocate nearly five months after the fiscal year began and the hiring of initial
staff in early spring, the OVA was constrained to affect significant expenditures prior to the end
of the fiscal year and was unable to fully utilize all appropriated funds. With a plan in place, the
OVA participated in the full budget process for FY2025, resulting in a $2M appropriation tightly
4
AN ACT HONORING, EMPOWERING, AND RECOGNIZING OUR SERVICEMEBERS AND VETERANS, the HERO Act, was
signed into law on August 8, 2024.
5
See Appendix C for the written testimony
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FY2024 Annual Report
aligned with OVA’s goals to establish an office capable of meeting all of its current statutory
requirements by the end of June 2025.
An additional and important element of establishing the Office of the Veteran Advocate was to
create a logo as a visual representation of the organization’s identity. Members of the military,
both present and past, ascribe value to the symbols surrounding their service. The logo below
aligns with OVA’s vision and mission while capturing elements representing the Great Seal of
Massachusetts.
A Starting Point - Visualizing Massachusetts’ Veteran Population
The OVA firmly believes that gaining an understanding of the veteran picture in Massachusetts
is necessary before making strategic recommendations to improve programs, benefits and
services. From initial discussions and reviews of available data, it appears that no state agency
or department provides an accurate picture of the veterans in Massachusetts. Most research
relies on two federal sources for this information – the US Census Bureau or US Department of
Veterans Affairs (VA). Our analysis of both sources shows a significant difference in estimates,
with the VA presenting a larger value. It is important to understand that the VA estimates are
anchored in the Census Bureau data, internal source data of VA clients, and Department of
Defense transitioned service member data. This cross-reference of sources is designed to
account for veterans who move across state lines and those who may not self-report their
status to census takers. To maintain a consistent reference point and a preference away from
underestimates, OVA will use VA’s National Center for Veterans Analysis and Statistics data as
its standard.
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The following veteran information is drawn from the VA National Center for Veterans Analysis
and Statistics and is a representation of only a few elements of the veteran population in
Massachusetts. The OVA will present additional elements of veteran population data in future
reports as it pertains to specific issues under review by the office.
MA VetPop 2023 is 273,934 6 Total MA Pop 7,001,399 7
Key Observations:
Veterans represent approximately 3.9% of the tot