This is a study of the development and passage of employment legislation between 1973 and 1977. A primary focus is on how the Comprehensive Employment and Training Act (CETA) became law. The author is former Assistant Secretary of Labor and Administrator of the Employment and Training Administration, 1973-1977. The first of four chapters traces Congress and the administration's four years of conflict over manpower reform. The conflict culminates in President Nixon's signing of the 1973 CETA bill. Three outcomes of the 1973 CETA legislation are identified: (1) major decentralization was accomplished; a strong federal role was preserved; (2) Title I authorized a decategorized program; Title III added categories for Indians and migrants and retained an emphasis on youth; and Title IV continued the Job Corps; and (3) a separate, identifiable program for public service employment was included in a comprehensive bill. Chapter 2 discusses the effects of the 1974 oil embargo on unemployment. The corresponding period of inflation and recession and the resulting emergency legislation are examined. Chapter 3 reports on the 1974 passage of the unemployment insurance program. The final chapter reviews the events which led to the assignment of Title II money to the Title VI public service employment (PSE) program. (CSS)