[Senate Hearing 110-784]
[From the U.S. Government Publishing Office]
S. Hrg. 110-784
HOUSING OUR HEROES, ADDRESSING THE ISSUE OF HOMELESS VETERANS IN
AMERICA
=======================================================================
JOINT HEARING
before the
SUBCOMMITTEE ON TRANSPORTATION AND HOUSING AND URBAN DEVELOPMENT, AND
RELATED AGENCIES
AND THE
SUBCOMMITTEE ON MILITARY CONSTRUCTION AND VETERANS AFFAIRS, AND RELATED
AGENCIES
OF THE
COMMITTEE ON APPROPRIATIONS UNITED STATES SENATE
ONE HUNDRED TENTH CONGRESS
SECOND SESSION
__________
SPECIAL HEARING
MAY 1, 2008--WASHINGTON, DC
__________
Printed for the use of the Committee on Appropriations
Available via the World Wide Web: http://www.gpoaccess.gov/congress/
index.html
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__________
COMMITTEE ON APPROPRIATIONS
ROBERT C. BYRD, West Virginia, Chairman
DANIEL K. INOUYE, Hawaii THAD COCHRAN, Mississippi
PATRICK J. LEAHY, Vermont TED STEVENS, Alaska
TOM HARKIN, Iowa ARLEN SPECTER, Pennsylvania
BARBARA A. MIKULSKI, Maryland PETE V. DOMENICI, New Mexico
HERB KOHL, Wisconsin CHRISTOPHER S. BOND, Missouri
PATTY MURRAY, Washington MITCH McCONNELL, Kentucky
BYRON L. DORGAN, North Dakota RICHARD C. SHELBY, Alabama
DIANNE FEINSTEIN, California JUDD GREGG, New Hampshire
RICHARD J. DURBIN, Illinois ROBERT F. BENNETT, Utah
TIM JOHNSON, South Dakota LARRY CRAIG, Idaho
MARY L. LANDRIEU, Louisiana KAY BAILEY HUTCHISON, Texas
JACK REED, Rhode Island SAM BROWNBACK, Kansas
FRANK R. LAUTENBERG, New Jersey WAYNE ALLARD, Colorado
BEN NELSON, Nebraska LAMAR ALEXANDER, Tennessee
Charles Kieffer, Staff Director
Bruce Evans, Minority Staff Director
Subcommittee on Transportation and Housing and Urban Development, and
Related Agencies
PATTY MURRAY, Washington, Chairman
ROBERT C. BYRD, West Virginia CHRISTOPHER S. BOND, Missouri
BARBARA A. MIKULSKI, Maryland RICHARD C. SHELBY, Alabama
HERB KOHL, Wisconsin ARLEN SPECTER, Pennsylvania
RICHARD J. DURBIN, Illinois ROBERT F. BENNETT, Utah
BYRON L. DORGAN, North Dakota KAY BAILEY HUTCHISON, Texas
PATRICK J. LEAHY, Vermont SAM BROWNBACK, Kansas
TOM HARKIN, Iowa TED STEVENS, Alaska
DIANNE FEINSTEIN, California PETE V. DOMENICI, New Mexico
TIM JOHNSON, South Dakota LAMAR ALEXANDER, Tennessee
FRANK R. LAUTENBERG, New Jersey WAYNE ALLARD, Colorado
THAD COCHRAN, Mississippi (ex
officio)
Professional Staff
Peter Rogoff
Meaghan L. McCarthy
Rachel Milberg
Jonathan Harwitz
Jon Kamarck (Minority)
Matthew McCardle (Minority)
Ellen Beares (Minority)
Administrative Support
Teri Curtin
------
Subcommittee on Military Construction and Veterans Affairs, and Related
Agencies
TIM JOHNSON, South Dakota, Chairman
DANIEL K. INOUYE, Hawaii KAY BAILEY HUTCHISON, Texas
MARY L. LANDRIEU, Louisiana LARRY CRAIG, Idaho
ROBERT C. BYRD, West Virginia SAM BROWNBACK, Kansas
PATTY MURRAY, Washington WAYNE ALLARD, Colorado
JACK REED, Rhode Island MITCH McCONNELL, Kentucky
BEN NELSON, Nebraska ROBERT F. BENNETT, Utah
THAD COCHRAN, Mississippi (ex
officio)
Professional Staff
Christina Evans
Chad Schulken
David Bonine
Dennis Balkham (Minority)
Ben Hammond (Minority)
Administrative Support
Renan Snowden
Katie Batte (Minority)
C O N T E N T S
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Page
Opening Statement of Senator Patty Murray........................ 1
Opening Statement of Senator Tim Johnson......................... 3
Opening Statement of Senator Christopher S. Bond................. 4
Statement of Senator Wayne Allard................................ 6
Statement of Senator Jack Reed................................... 8
Prepared Statement of Senator Richard J. Durbin.................. 8
Counts of Homeless Veterans...................................... 8
Link Between Homelessness and TBI/PTSD........................... 8
Permanent Supportive Housing..................................... 9
Statement of Mark Johnston, Deputy Assistant Secretary for
Special Needs, Office of Community Planning and Development,
Department of Housing and Urban Development.................... 10
Prepared Statement........................................... 11
Targeted HUD Homeless Grant Assistance........................... 12
Interagency Initiatives.......................................... 12
HUD's Homelessness Resource Exchange............................. 13
HUD-VASH and Targeted Homeless Funding........................... 14
Other HUD Veterans Initiatives................................... 14
Statement of Peter H. Dougherty, Director, Homeless Veterans
Programs, Department of Veterans Affairs....................... 14
Prepared Statement........................................... 16
Interagency Council on Homelessness (ICH), Intergovernmental and
Local Relationships............................................ 17
VA Involvement in Stand Downs.................................... 18
Homeless Providers Grant and Per Diem Program.................... 18
Technical Assistance Grants...................................... 18
Grants for Homeless Veterans With Special Needs.................. 19
Residential Rehabilitation and Treatment Programs (RRTPs)........ 19
Staffing at VBA Regional Offices................................. 19
Multifamily Transitional Housing Loan Guaranty Program........... 19
Coordination of Outreach Services for Veterans at Risk of
Homelessness................................................... 20
HUD-Veterans Affairs Supportive Housing (HUD-VASH)............... 20
Recently Discharged Veterans (Operation Enduring Freedom/
Operation Iraqi Freedom, OEF/OIF, Veterans).................... 20
Statement of Cheryl Beversdorf, President and CEO, National
Coalition for Homeless Veterans................................ 20
Prepared Statement........................................... 22
Homeless Veteran Assistance Programs............................. 23
Homeless Providers Grant and Per Diem Program (GPD).............. 23
Homeless Veterans Reintegration Program (HVRP)................... 24
Addressing Prevention of Veteran Homelessness.................... 25
Statement of Steven R. Berg, Vice President for Programs and
Policy, National Alliance to End Homelessness.................. 26
Prepared Statement........................................... 28
Homelessness Among Veterans...................................... 28
Housing Status of Veterans....................................... 29
The Current Federal Policy Response.............................. 30
Needed Federal Policy Response................................... 30
Statement of Richard Weidman, Executive Director for Policy and
Government Affairs, Vietnam Veterans of America................ 33
Prepared Statement........................................... 35
VA Homeless Grant & Per Diem Program............................. 35
VA Homeless Domiciliary Programs................................. 36
Homeless Veterans Special Needs.................................. 36
Women Veterans and Homeless Women Veterans....................... 37
HUD-VASH......................................................... 39
Homeless Veteran HUD Transitional and Supportive Services Only
Funding........................................................ 39
Shelter Plus Care (S+C).......................................... 40
Permanent Housing Needs for Low-Income Veterans.................. 41
Statement of Paul Lambros, Executive Director, Plymouth Housing
Group.......................................................... 42
Prepared Statement........................................... 45
Housing Options for Homeless Veterans............................ 45
What Works....................................................... 46
Challenges Faced by Homeless Veterans............................ 46
Additional Committee Questions................................... 61
Questions Submitted to Mark Johnston............................. 61
Questions Submitted by Senator Patty Murray...................... 61
The HUD-VASH Program............................................. 61
Rapid Re-housing................................................. 62
Coordination Between HUD and the VA.............................. 62
The Role of the U.S. Interagency Council on Homelessness......... 63
Questions Submitted by Senator Richard J. Durbin................. 63
Chronically Homeless Veterans.................................... 63
HUD-VASH......................................................... 63
Questions Submitted by Senator Dianne Feinstein.................. 64
West LA VA Campus................................................ 64
HUD-VASH......................................................... 64
Question Submitted by Senator Mitch McConnell.................... 64
Program Coordination............................................. 64
Questions Submitted to Peter H. Dougherty........................ 65
Questions Submitted by Senator Patty Murray...................... 65
Rapid Re-housing Model for Homeless Veterans..................... 65
Coordination Between Federal Agencies in the Field............... 65
The Role of the U.S. Interagency Council on Homelessness......... 65
Transitional Housing Versus Permanent Housing.................... 66
The VA's Grant and Per Diem Program.............................. 66
Questions Submitted by Senator Dianne Feinstein.................. 66
Questions Submitted by Senator Mitch McConnell................... 68
Questions Submitted to Cheryl Beversdorf......................... 71
Questions Submitted by Senator Patty Murray...................... 71
The HUD-VASH Program............................................. 71
Preventing Homelessness.......................................... 71
Homeless Veterans With Families.................................. 71
Transitional Housing Programs.................................... 72
The VA's Grant and Per Diem Program.............................. 72
The Role of the U.S. Interagency Council on Homelessness......... 74
Questions Submitted to Steve Berg................................ 74
Questions Submitted by Senator Patty Murray...................... 74
Female Veterans.................................................. 74
Rapid Re-housing Model for Homeless Veterans..................... 74
Transitional Housing Versus Permanent Housing.................... 75
The Role of the U.S. Interagency Council on Homelessness......... 75
Question Submitted by Senator Richard J. Durbin.................. 76
Questions Submitted to Paul Lambros.............................. 76
Questions Submitted by Senator Patty Murray...................... 76
The VA's Grant and Per Diem Program.............................. 76
Coordination Between Federal Agencies in the Field............... 77
Question Submitted by Senator Richard J. Durbin.................. 77
HOUSING OUR HEROES, ADDRESSING THE ISSUE OF HOMELESS VETERANS IN
AMERICA
----------
THURSDAY, MAY 1, 2008
U.S. Senate, Subcommittee on Transportation and
Housing and Urban Development, and Related
Agencies; and Subcommittee on Military
Construction and Veterans Affairs, and Related
Agencies,
Washington, DC.
The subcommittee met at 10:01 a.m., in room SD-138, Dirksen
Senate Office Building, Hon. Patty Murray (chairman) presiding.
Present: Senators Murray, Johnson, Reed, Bond, Hutchison,
and Allard.
opening statement of senator patty murray
Senator Murray. Good morning. This subcommittee will come
to order.
I want to begin today by recognizing that this is a joint
hearing of the Transportation and Housing and Urban Development
and Military Construction and Veterans Affairs Subcommittees.
And I want to say a warm welcome to Chairman Johnson and
Ranking Member Hutchison from MILCON-VA, who is with us today,
as well as my own ranking member, Senator Bond.
We are now in the 6th year of the war in Iraq and each
month thousands of service members are returning home to
civilian life. As with veterans from each of our Nation's
previous conflicts, many of these men and women suffer from
serious psychological and physical health conditions. It is our
duty to repay their sacrifice with the excellent quality of
care they have earned.
Yet, as we speak today, our Nation is struggling to meet
the needs of our veterans from all conflicts. We know all too
well that when our country fails to live up to our obligations
to our veterans, the consequences are high rates of drug and
alcohol abuse, as well as chronic unemployment and relationship
problems. All of these are contributing factors to
homelessness.
The problem of homelessness among veterans is staggering
and it is a national tragedy. Experts estimate that one in four
of all the Nation's homeless are veterans. Each night, as many
as 200,000 of our veterans will go to sleep without a roof over
their head and more than 300,000 veterans will experience
homelessness in a year. Veterans from the Vietnam era are the
most likely to be homeless. In fact, according to the VA, the
number of homeless veterans from the Vietnam era is greater
today than the number of service members who died during that
war. But advocates are also reporting that more and more
veterans from Iraq and Afghanistan are appearing in their
shelters, and we have begun seeing a new trend in which more
women who have seen combat are seeking help in shelters as
well.
Our veterans are heroes who risk their lives for our
country, and we must ensure that they are getting the services
and benefits they have earned to help ensure they never reach
the point of homelessness.
As I have said countless times, I believe that how we treat
our veterans when they come home is an indication of the
character of our Nation. We have to find a way to make the
transition from soldier to civilian a smoother one. This joint
hearing is a reflection that tackling the issue of homelessness
among veterans will require collaboration and cooperation, and
it will take the hard work of our Government agencies, veterans
groups, public and private partnerships, and many others
nationwide.
So I am pleased today to welcome our panel of distinguished
witnesses to talk to us about the services that are available
for today's homeless veterans and about what we can do to
better address the challenges faced by our current and future
veterans. All of our witnesses are experts in their fields.
But I do want to extend a special welcome to Paul Lambros
who has traveled all the way here from my home State of
Washington. Paul's organization, Plymouth Housing Group, has
been serving the homeless in our State for over 25 years.
Plymouth has opened a great facility in Seattle that serves
homeless veterans, and Paul hosted a roundtable discussion on
homelessness among veterans that I held recently in the State.
So I look forward to hearing from him and all of you sharing
your experiences with us today.
But while private organizations across the country are
taking important steps to get our veterans off the street and
into housing, they cannot and should not bear this burden
alone. The Federal Government must be a strong partner.
Last year, Senator Bond, my ranking member, and I, along
with Senator Johnson and Senator Hutchison, worked together on
a bipartisan basis to provide real help to our homeless
veterans. We revitalized a joint program between the VA and the
Department of Housing and Urban Development that will ensure
that more than 10,000 homeless veterans will receive a housing
voucher and case management services. The program will get them
safe and stable housing and enable them to get important
services. It had been almost 15 years since new HUD-VA
supportive housing vouchers, known as HUD-VASH vouchers were
issued. So this was a step that was long overdue.
Since then, the President has also recognized its value,
and I am pleased that the administration has now requested
funding for 10,000 additional vouchers in fiscal year 2009.
These vouchers will give communities important tools to help
end homelessness for the many veterans who are now living on
our streets and in our shelters.
But as several of our witnesses will tell us today, we have
a long way to go to address the needs of our current veterans,
and we face new challenges as troops from Iraq and Afghanistan
return in larger numbers. The current war is taking a
tremendous toll on our service members. Many of our troops are
serving longer tours with shorter breaks, and multiple
redeployments are common.
A study by the RAND Corporation suggests that one in five
service members from the wars in Iraq and Afghanistan suffers
from post-traumatic stress disorder or major depression, and
even more experienced a traumatic brain injury. But the same
report found that only about half of those veterans sought
help, and of that number, only half received even ``minimally
adequate care.'' (Information on Rand study entitled
``Invisible Wounds of War'' can be found at www.rand.org/pubs.)
The face of our military is also changing. Today women are
serving in greater numbers than ever before, and alarmingly,
they are also the fastest growing group of homeless veterans.
Tragically many of these women veterans have also been victims
of military sexual trauma. One study of women receiving health
care services from the VA found that 23 percent had experienced
at least one sexual trauma while in the military. Without
treatment and resources, each of these challenges and
conditions can contribute to homelessness, and the impact is
much worse when the economy is in a downturn.
Clearly, we have an urgent need to ensure that the programs
and resources are in place to treat all of our veterans before
the number of homeless veterans grows. If we are sitting here
again years from now talking about beginning to address the
staggering number of homeless veterans from the wars in Iraq
and Afghanistan, we will have failed them. We must apply the
lessons we have learned so far. We must ensure that the VA
evolves along with the needs of the veterans it serves, and we
must give the VA the resources to meet their needs.
But the VA does not bear all of the responsibility. While
it must take the lead, HUD must also be a significant player.
HUD must work to reintegrate its programs with those of the VA,
and it must take steps to promote affordable housing and ensure
veterans are informed about its programs.
I know that ending homelessness among veterans is a huge
responsibility, but we have got to make it a priority and we
have to make progress now. By funding HUD-VASH vouchers last
year, Congress took one step toward addressing this problem.
Today, I am pleased that we are continuing the discussion so
that we can understand what other steps must be taken. When
these service members took the oath to serve this Nation, they
did not take it lightly, and it is the responsibility of this
Government to provide them the support and the care they have
earned. That is a promise we made to these service members, and
I intend to ensure that we fulfill it.
With that, I would like to turn to Senator Johnson and
thank him again for doing this joint hearing with us.
OPENING STATEMENT OF SENATOR TIM JOHNSON
Senator Johnson. Thank you, Chairman Murray. As chairman of
the MILCON-VA Subcommittee, let me start by thanking you for
chairing this joint hearing.
I also want to welcome and thank all the witnesses
appearing today. It is truly a tragedy that we even have to
hold the hearing to address homelessness among a population
that has sacrificed to keep this country safe.
However, according to the VA, on any given night, about
154,000 vets are homeless. We have a variety of programs spread
across several agencies that are all attempting to tackle this
problem. I look forward to hearing from each of you on how we
can make these homeless programs more effective.
Thank you, Madam Chairman.
Senator Murray. Thank you very much, Mr. Chairman.
And I will turn to my ranking member, Senator Bond, and
thank him for his work on this as well.
OPENING STATEMENT OF SENATOR CHRISTOPHER S. BOND
Senator Bond. Thank you very much, Madam Chair, for calling
the important hearing. I welcome the witnesses today and look
forward to their testimony.
Looking back in history a little bit, since I became
chairman of the VA-HUD Appropriations Subcommittee in 1994, I
focused on Federal housing programs as an important safety net
for very low income families, for veterans, for seniors, and
the disabled, especially under programs like section 8 public
housing, section 202 elderly, section 811 housing for the
disabled, and homeless assistance. Unfortunately, veterans
compose a very significant part of the underserved homeless
population, and that is something that is of great concern to
me, as it is to the chair.
The administration has set a goal of ending homelessness in
10 years. That goal is unrealistic, but at least it gives us a
target and an inspiration toward which we must strive. I remain
committed to eliminating homelessness with a funding commitment
of some $1.6 billion in fiscal year 2008.
Unfortunately, we have not made adequate progress towards
meeting the needs of homeless persons and families. I am very
much disappointed over the failure and much of the problems
which come from the inadequate budgets recommended from OMB for
section 8, public housing, and other programs that are designed
to meet low income needs. These are the stepladders to
permanent housing.
Moreover, the problem has been compounded by the subprime
crisis. Both homeownership and rental housing are the basis of
communities which support jobs, churches, schools, hospitals,
supermarkets, and other retail establishments, as well as the
tax base for the communities in which they are located. Without
stable housing, there is little opportunity to solve the
problem of homelessness.
It is absolutely critical that the States, communities, and
the Federal Government, as well as the advocacy groups, work
together to meet the subprime crisis, as well as ensure
successful growth and the continued investment in our
communities. Now, these are partnerships which are critical to
the success of our Nation and the communities in it, and I hope
that we can maintain the basic needs for housing and build on
them to assure the safety net.
While a number of homeless improvements as well as
increased funding assistance have been made over time, there
continue to be enough inconsistencies between homeless programs
and the actions of jurisdictions which undermine the success of
these homeless assistance programs, including the transition
from shelters to permanent housing. Without a seamless
transition and consistent rules, the overall program will
continue to under-perform in meeting the long-term needs of
both homeless persons and families.
Now, compounding the homeless problem this year was lots
more freezing weather, threatening the lives of many homeless
program participants. Moreover, the homeless population has a
large segment of its population that is troubled with mental
illness. These people have some very special needs and can be
disruptive, demanding, and even violent. Often there are
related associated problems of drug and substance abuse.
And one of the unique challenges facing any provider is to
ensure that the homeless population being served is well
integrated, has a properly trained staff, including medical
staff, and appropriate facilities suited to the population.
This is a challenge that changes throughout the years as the
population and the needs change. This can be very costly,
including the cost of insurance and related needs, as well as
medical and staffing costs.
And another related item, despite more tolerance than in
recent years, continues to be antipathy and frustration from
the local populations. Both crime and violence can rise,
resulting in a backlash and a drop in property values. While
things have improved in recent years, fear and frustration
always remain substantial risks to the success of any homeless
program.
The bottom line is that well-integrated homeless veteran
populations managed by professional and committed staff, as
well as programs tied to the needs of the homeless population
and community, are critical to the success of the programs,
their acceptance into the local community, and the kind of care
and treatment we need to provide to our veterans.
Unfortunately, this all costs money, as well as a
commitment, which in many areas can be a difficult problem that
cannot always be met with Federal and local resources.
Unfortunately, funds and staff are too often inconsistent,
leaving many programs with good track records, while others are
clearly inadequate. This is not a criticism of the many
homeless programs. It is recognition of the human quality of
the many programs, as well as their costs, including the
expense of staff and the real costs associated with the
maintenance of buildings and programs.
Moreover, there has been an almost hidden cost to
homelessness. CNN recently reported some 32 percent of the men
who stay in homeless shelters served in the U.S. military
during the Korean, Vietnam, and gulf wars, where as many as 42
percent served in Vietnam. It is estimated that some 200,000
vets are homeless, of which some 80,000 served in Vietnam. That
phenomenon highlights that the majority served the Nation
honorably but are troubled by the transition to civilian life,
and many especially need help in dealing with guilt and
forgiveness.
While many have a variety of health problems, many also
suffer from post-traumatic stress disorder, one of the many
problems that the military has found itself ill-equipped to
deal with, but for which it has a commitment to these veterans,
including an opportunity to reintegrate these veterans into
society and rejoin their communities. I believe that these
veterans are owed more than a blanket and a hot meal. We must
provide them with a means of integrating back into their
communities and their former lives. It is the least we owe
those who fought to defend and protect our freedom.
I believe that part of the problem is the lack of a viable
transition program that addresses the medical problems of
veterans while providing a transition with local support groups
and follow-up counseling that will assist in a real transition
to civilian life, however long that takes. For some,
homelessness may be as debilitating an illness as any other
problem they face, and it is an obligation, like any other
military-related problem, that must be faced by the military as
an ongoing commitment.
Senator Murray and I have already taken some first steps to
help these vets. While a number of VA or DOD programs already
exist for these types of issues, there seems to be a lack of
real information or access for many vets as to available
programs. I hope that we have found a pragmatic and
programmatic first step to the problems faced by veterans. As
my friend and chair, Senator Murray, has already noted, we
included $75 million in the VASH program, which combines
section 8 assistance in the fiscal year 2008 THUD
appropriations bill for use in a program to be administered
jointly by HUD and VA. This way vets can use section 8 to pay
for housing, while VA can provide the needed programs that we
hope and expect will offer a return to and reintegration into
civilian life.
We all know there is no simple answer to homelessness.
There are many challenges and problems associated with it, many
different cases. The problems are different for each person.
There is no quick fix to be found in any time table. Clearly,
permanent housing is a primary tool. Permanent housing
represents a stable base for a job, education, and neighborhood
integration. But it takes a person to make this work.
I share with Senator Johnson the fact that we both are
fathers of veterans who have returned from service, and I can
tell you that the young men and women who come back are very
much concerned about the plight of those they have served with
and those who have served before. I only wish their commitment
was replicated and seen throughout the country as a whole
because I can tell you these young men and women coming back
know what sacrifices have been made by veterans and why we owe
them the highest quality of care.
Thank you, Madam Chair.
Senator Murray. Thank you very much, Senator Bond.
Senator Allard.
STATEMENT OF SENATOR WAYNE ALLARD
Senator Allard. Thank you, Madam Chair. First, I would like
to thank you, Chairman Murray and Chairman Johnson, for holding
this hearing, along with our ranking member Senator Bond from
Missouri on housing our heroes, addressing the issues of
homeless veterans in America.
While every member of the Senate has veteran constituents,
this is particularly important for Colorado. The 5th
congressional district located in the Colorado Springs area has
the Nation's highest concentration of veterans.
Veterans embody some of America's highest ideals, including
duty, honor, courage, commitment, and self-sacrifice. In
recognition of their service to our Nation, we have provided
them with certain benefits such as education and home ownership
opportunities. These benefits have been important for veterans
and their families. Many families might not own a home today
had it not been for the VA Home Loan Guarantee Program.
The Federal Government also operates programs designed to
meet the housing needs of homeless veterans. While these
programs were not created specifically as a benefit for
military service, they have evolved as a more effective and
efficient way to prevent and end homelessness among veterans.
Homelessness is tragic, but particularly so among those who
have so nobly served this country.
As former chairman of the authorizing Housing Subcommittee,
I have had a longstanding interest in finding ways to prevent
and end homelessness, principally among our veterans. I have
been working for a number of years to reauthorize the McKinney-
Vento Act. Currently the Federal Government devotes some
resources to the homeless. Yet, despite the enormous Federal
resources directed towards homelessness, the problem persists.
We need to bring more accountability to homeless assistance,
increasing funding for successful programs and initiatives, and
replacing those that are ineffective. There seems to be
consensus that the McKinney-Vento Act has been an important
tool to help some of society's most vulnerable members and that
the first step should be reauthorization of the act.
There also seems to be consensus that the second step
should be consolidation of the existing programs. I originally
introduced consolidation legislation in 2000, and Senator Jack
Reed offered a proposal in 2002. HUD has also advocated for a
consolidated program for several years now. While we differed
in some of the details, including the funding distribution
mechanism for a new program, these proposals offered consensus
on the important starting point of consolidation.
After extensive discussions, Senator Reed and I introduced
the Community Partnership to End Homelessness Act. The bill
will consolidate the existing programs to eliminate
administrative burdens, multiple applications, and conflicting
requirements. The streamlined approach will combine the
efficiencies of a block grant with the accountability of a
competitive system. Localities will submit applications
outlining the priority projects for the area based on outcomes
and results. I am especially supportive of approaches such as
this one that focus on results rather than processes.
The Community Partnership to End Homelessness Act also
attempts to acknowledge that homelessness is not confined to
urban areas, although the solution in rural areas will be
different for rural areas. This is important to States like
Colorado which have both urban and rural homelessness
challenges. This flexible approach will allow localities to
meet the needs of homeless people in their specific area, be
they veterans, families, teenagers, chronically homeless, or
others.
I am pleased to welcome our witnesses today, many of whom I
have had the pleasure to work with on a number of occasions.
Mr. Johnston, Mr. Dougherty, Mr. Berg, and Ms. Beversdorf have
all previously testified before me on this issue. Their
previous comments were enlightening and helpful, and I am sure
their remarks here today will be as well.
While I have not had the opportunity to work with Mr.
Weidman and Mr. Lambros, I know that they have excellent
credentials, and I am certain that they will contribute a great
deal to our understanding of the challenges confronting
homeless veterans.
Before I conclude, I would like to make one final note
regarding one of our witnesses. As I mentioned, Senator Reed
and I have been working for a number of years on legislation to
consolidate HUD's homeless programs. I would like to
acknowledge the technical assistance provided by Mark Johnston
on numerous occasions. His expertise has been extremely helpful
to me and my staff. I would like to publicly thank him for his
efforts.
I look forward to this hearing as it will help us better
understand the existing programs for meeting veterans' housing
needs as well as ways in which these programs might be
improved.
Thank you, Madam Chairman.
Senator Murray. Thank you very much.
We have been joined by Senator Reed. Would you care to do
an opening statement?
STATEMENT OF SENATOR JACK REED
Senator Reed. Well, Madam Chairman, thank you for holding
this very important hearing. I also want to thank the panelists
not only for being here today but for helping Senator Allard
and I on the legislation that we have proposed with respect to
the issue of homelessness overall. And I look forward to the
questioning. Thank you, Madam.
Senator Murray. Senator Durbin has submitted a statement
for inclusion in the record.
[The statement follows:]
Prepared Statement of Senator Richard J. Durbin
Chairman Murray and Chairman Johnson, thank you for your leadership
in addressing an issue that's too often overlooked--our homeless
veterans.
COUNTS OF HOMELESS VETERANS
Many veterans return from war and are able to transition
successfully back to civilian life. But too many can't and end up
homeless. We don't have an exact count of the number of homeless
veterans in the United States, but we know it is well into the hundreds
of thousands. In 2006, as many as 336,000 veterans experienced
homelessness over the course of the year. That includes more than 2,200
in Illinois. As many as 64,000 veterans are chronically homeless--
homeless for an entire year. Veterans also make up a greater percentage
of the homeless population than the general population. One out of
every four homeless persons is a veteran, even though veterans
represent only one in nine adults.
LINK BETWEEN HOMELESSNESS AND TBI/PTSD
These numbers are inexcusable. What's even more alarming is that
the numbers will grow worse. Veterans from Iraq and Afghanistan are
coming home with higher rates of traumatic brain injuries (TBI), post-
traumatic stress disorder (PTSD), and depression, among other physical
and mental wounds. One in five suffers from TBI. One in five suffers
from PTSD. These returning veterans want to rebuild their lives.
Unfortunately, leaving the war zone is no guarantee of leaving the war
behind. Coming home with TBI or PTSD makes the transition to civilian
life that much harder. It's harder to reconnect with family and
friends. It's harder to find work. It's harder to keep stable housing.
This is why Congress has taken a number of steps to help. I
introduced TBI legislation last year that was enacted as part of the
Wounded Warriors title in the fiscal year 2008 Defense Authorization
Act.
We are trying to help veterans by: improving coordination between
the Department of Defense and the VA; requiring routine brain injury
screening tests for military personnel; increasing TBI patient
benefits; and improving case management and TBI research.
We've increased funding for veterans health care and benefits above
and beyond the administration's requests, including an $11.8 billion
increase in 2007 and a $6.6 billion increase in 2008. And we've
expanded the VA's polytrauma capabilities to help veterans suffering
from multiple traumas, such as traumatic brain injuries, hearing loss,
fractures, amputations, burns, and visual impairments.
These injuries are not always obvious or easy to identify, and once
they are identified they will require a lifetime of care. But we owe
our men and women in uniform at least that much. We're starting to see
what happens when we skimp on diagnosing and treating these wounds.
They contribute to unemployment, substance abuse, the breakdown of a
family, or a life on the streets.
PERMANENT SUPPORTIVE HOUSING
Illinois is doing much to repay its debt to its homeless veterans.
The Prince Home at Manteno is a pilot program that provides permanent
housing, advocacy, therapeutic and supportive services for 15 homeless
and disabled veterans, including those who suffer from PTSD. It's the
first of its kind in the Nation. And last week I had the opportunity to
see for myself St. Leo's Residence for Veterans, the product of a
successful partnership between AMVETS and Catholic Charities.
St. Leo's combines 141 furnished studio apartments for homeless and
disabled veterans with a network of supportive services, such as job
training, health care, and case management. By combining a roof over
their heads with wraparound supportive services, St. Leo's helps
formerly homeless veterans rebuild their lives.
Let me tell you about Caesar Hill. He was one of St. Leo's first
residents. He came to St. Leo's after 6 years in the Navy as a
commissioned officer and then 3 years homeless. Because St. Leo's gave
him the time, shelter, and skills to help him get back on his feet, he
will be moving out soon to allow another homeless veteran the
opportunity to rebuild his life. Prince Home and St. Leo's are only two
examples of an innovative, cost-effective solution to chronic
homelessness: permanent supportive housing.
Permanent supportive housing provides housing with support services
like mental health, employment, education, and case management
services. It's a solution that recognizes you have to treat the reasons
that led to the person becoming homeless in the first place, whether
that means a war injury or stress disorder. This makes permanent
supportive housing an especially effective tool in helping our homeless
veterans.
CONCLUSION
As we prepare to debate the Iraq war supplemental, it's time we
start having an honest and candid dialogue about the true cost of this
war--not just the cost of fighting it abroad, but the cost of taking
care of our veterans when they come home. It's a cost we need to be
prepared to pay, as our dedication to our veterans should match their
dedication to our country.
I look forward to learning what more we can do.
Senator Murray. With that, we will turn to our witnesses
for their opening statements. I want all of you to know your
statements will be submitted for the record, and we have
allocated to each of you 5 minutes for your testimony this
morning.
We are going to hear from Mark Johnston, Deputy Assistant
Secretary, Office of Special Needs Assistance Programs in HUD;
Peter Dougherty, Director, Office of Homeless Veterans Programs
from the VA; Cheryl Beversdorf, president and CEO of the
National Coalition for Homeless Veterans; Steve Berg, vice
president for Programs and Policy, National Alliance to End
Homelessness; Rick Weidman, executive director for Policy and
Government Affairs from Vietnam Veterans of America; and Paul
Lambros, executive director, Plymouth Housing Group from
Seattle, Washington.
Mr. Johnston, we will begin with you.
STATEMENT OF MARK JOHNSTON, DEPUTY ASSISTANT SECRETARY
FOR SPECIAL NEEDS, OFFICE OF COMMUNITY
PLANNING AND DEVELOPMENT, DEPARTMENT OF
HOUSING AND URBAN DEVELOPMENT
Mr. Johnston. Chairwoman Murray, Chairman Johnson, Ranking
Member Bond, and members of the committees, I am pleased to be
here today to represent the U.S. Department of Housing and
Urban Development. I oversee the Department's efforts to
provide housing and services to homeless persons. This includes
addressing the needs of one of our most vulnerable populations,
that is, homeless veterans and their families. As you have
already indicated, it is a tragedy that some of these men and
women, who have risked their lives for us abroad, now sleep on
our streets at home.
I would like to take a moment to highlight some of our
activities that specifically relate to HUD's efforts to serve
homeless veterans.
HUD administers an array of targeted programs that Senator
Allard referred to. We allow local applicants to design both
veteran-specific projects, as well as more general purpose
projects that serve veterans among other groups. In 2007, we
awarded over 2,800 different project awards, representing both
targeted programs and non-targeted projects that will serve
homeless veterans this year.
To underscore our continued commitment to serve homeless
veterans, we highlight veterans in our annual Continuum of Care
competition and grant application process. Approximately $1.3
billion is available in 2008. Over 3,900 cities and counties
across the country representing about 95 percent of the U.S.
population, participate in this HUD process. In the grant
application, we encourage organizations that represent homeless
veterans to be at the planning table. This attention to
veterans is reflected in the score that we give each Continuum
of Care application.
Because people who are homeless face many challenges, it is
imperative to involve many partners. HUD, the VA, HHS, Labor,
and other members of the U.S. Interagency Council on
Homelessness work together on a regular basis to achieve the
goal that has been referred to already today, ending chronic
homelessness. Many of those who are chronically homeless are,
in fact, veterans.
With the sustained effort since 2002, we are starting to
see results. HUD just recently announced in our second annual
homeless assessment report to Congress, issued about 3 weeks
ago, an 11.5 percent reduction in chronic homelessness between
2005 and 2006. This is the first time since the Federal
programs were created, the McKinney programs of 1987, that we
have ever seen a reduction in homelessness of any kind in this
Nation. We anticipate having the 2007 figure by June and expect
to see an even further reduction.
To help achieve these results, HUD partnered with the VA
and other agencies on a number of specific grant initiatives
that are demonstration projects to target the chronically
homeless, including those who are veterans. In these
initiatives, HUD has provided permanent housing and the
partnering agencies have provided their critical support of
services. These demonstration efforts have resulted in
providing a permanent solution for several thousand persons,
including veterans, who used to call the streets their home.
With your initiative and action in providing $75 million in
HUD-VASH, we are now beginning to roll this program out. The
program combines HUD's housing choice vouchers, which is rental
assistance administered through our local public housing
agencies, with case management and clinical services provided
through the VA in the local community. Through this
partnership, HUD and VA expect to provide permanent housing and
support services to approximately 10,000 homeless veterans and
their families, including veterans who become homeless after
serving in Iraq and Afghanistan.
In the fiscal year 2009 request, as you have referred to--
we have requested $75 million in additional HUD-VASH funding
for approximately 10,000 additional vouchers.
In addition to requesting funding for HUD-VASH in 2009, the
administration has again requested record-level funding for
HUD's targeted homeless assistance programs to better serve
veterans and other homeless persons. The 2009 request for HUD
homeless assistance, including HUD-VASH, is a little bit more
than $1.7 billion, which is well over a 50 percent increase
from the level of 2001.
The opportunities to help homeless veterans extend beyond
working with other Federal agencies, for instance, we work
regularly with the National Coalition for Homeless Veterans.
The opportunities to work with other organizations at all
levels we find are very helpful as we continue to make progress
in solving homelessness among veterans.
PREPARED STATEMENT
Finally, I want to reiterate my and HUD's commitment to
help our veterans, including those who are homeless. We will
continue to work with our Federal, State, and local partners to
do so. Thank you very much.
[The statement follows:]
Prepared Statement of Mark Johnston
INTRODUCTION
Chairwoman Murray, Chairman Johnson, ranking members, I am pleased
to be here today to represent the Department of Housing and Urban
Development. My name is Mark Johnston and I oversee the Department's
efforts to confront the housing and service needs of homeless persons.
This effort includes addressing the needs of one of our most vulnerable
populations--homeless veterans and their families. It is a tragedy that
some of those who risked their lives for each of us now sleep on the
streets of this great Nation. These veterans may be homeless due to
physical or mental disability, or economic distress. HUD provides
housing and services to homeless veterans through HUD's targeted
programs for special needs populations, as well as through other
mainstream HUD resources.
The Department administers a variety of housing programs that can
assist veterans. These include the Housing Choice Voucher Program,
Public Housing, HOME Investment Partnerships, and the Community
Development Block Grant (CDBG) program. These programs, by statute,
provide great flexibility so that communities can use these Federal
resources to meet their particular local needs, including the needs of
their veterans. In addition to these programs, Congress has authorized
a variety of targeted programs for special needs populations, including
homeless persons.
Unfortunately, veterans are too often represented in the homeless
population. HUD is committed to serving homeless veterans and
recognizes that Congress charges HUD to serve all homeless groups.
HUD's homeless assistance programs serve single individuals as well as
families with children. Our programs serve persons who are impaired by
substance abuse, mental illness and physical disabilities as well as
non-disabled persons. HUD provides an array of housing and supportive
services to all homeless groups, including homeless veterans. I would
like to take a moment to outline our activities that specifically
relate to serving homeless veterans.
TARGETED HUD HOMELESS GRANT ASSISTANCE
In December 2007, HUD competitively awarded a total of nearly $1.3
billion in targeted homeless assistance. A record 5,911 projects, up
from 5,288 in fiscal year 2006, received awards. It is important to
note that veterans are eligible for all of our homeless assistance
programs and HUD emphasizes the importance of serving veterans in our
Continuum of Care (CoC) Homeless Assistance programs grant application.
A total of 154 applications were submitted in 2007 that stated that at
least 70 percent of their proposed clients would be veterans. Of that
number, we awarded funds to 149 projects, which represents 97 percent
of the veteran-specific projects submitted. We awarded just over $31.67
million to these targeted projects. In addition, we awarded over $698.4
million to 2,674 projects where at least 10 percent of those to be
served will be homeless veterans. When you combine all projects that
will be serving veterans--targeted and non-targeted--we awarded a total
of 2,823 projects for over $730.07 million in 2007. HUD has been
tracking the funding of veteran specific projects for the past decade.
Much progress in serving this population has been made. In 1998, 36
projects that primarily serve veterans received funding through the
annual CoC competition, compared to 149 projects in 2007. As the
overall CoC competition grew in the number of projects both submitted
and funded, HUD was able to increasingly fund projects to assist our
Nation's homeless veterans.
To underscore our continued commitment to serve homeless veterans,
we have highlighted veterans in our annual planning and grant
application process. Approximately $1.3 billion is available in the
2008 Continuum of Care homeless grants competition. In the grant
application we encourage organizations that represent homeless veterans
to be at the planning table. Because of this Departmental emphasis,
over 90 percent of all communities nationwide have active homeless
veteran representation. We also require that communities identify the
number of homeless persons who are veterans so that each community can
more effectively address their needs. To that end, in collaboration
with the Department of Veterans Affairs (VA), we also strongly
encourage that communities use VA's CHALENG or Community Homelessness
Assessment, Local Education and Networking Groups data in assessing the
needs of their homeless veterans when preparing their HUD grant
application.
INTERAGENCY INITIATIVES
The administration's goal to end chronic homelessness is helping to
meet the needs of homeless veterans. Because the chronically homeless
face many challenges, it is imperative to involve many partners. HUD,
VA, the Department of Health and Human Services, the Department of
Labor and the other agencies that make up the U.S. Interagency Council
on Homelessness (ICH) have worked to achieve this goal at the Federal
level. With a sustained effort since 2002, we are starting to see
results. HUD just recently announced, in our Second Annual Homeless
Assessment Report to Congress, published in March 2008, an 11.5 percent
reduction in chronic homelessness nationwide between 2005 and 2006.
This is the first time since the Federal homelessness programs were
created through the McKinney-Vento Act in 1987 that this country has
seen a reduction in homelessness of any kind. We anticipate having the
chronic homeless figure for 2007 by June and expect to see an even
further reduction.
I represent HUD on VA Secretary Peake's Advisory Committee on
Homeless Veterans. This important advisory group has specifically
addressed chronic homelessness among veterans. Additionally, there are
a number of initiatives that HUD has been involved in that focus on
ending chronic homelessness in this country. I'd like to highlight
several of them.
The first is a joint initiative among three Federal departments of
the U.S. Interagency Council on Homelessness--HUD, VA, HHS. Called the
Collaborative Initiative to Help End Chronic Homelessness, this was the
first demonstration program to specifically focus on chronically
homeless persons. HUD contributed $20 million of the initial $35
million awarded. HUD's funds provided the housing needed by this
population. VA and HHS provided the needed supportive services to help
persons stabilize their lives. Hundreds of people, including veterans,
who formerly called the streets their home, are now living in stable
housing and taking advantage of substance abuse treatment and other
needed services. HUD has also provided almost $4.9 million in renewal
funding through HUD's annual Continuum of Care competition for
continued housing assistance for this special initiative. A preliminary
evaluation report from VA through the Northeast Program Evaluation
Center (NEPEC) shows that over 1,200 chronically homeless persons have
received housing and services at these 11 sites. Furthermore, 30
percent of the evaluation participants for this initiative were
chronically homeless veterans.
HUD and the Department of Labor joined forces and awarded $13.5
million to five grantees nationwide to provide permanent supportive
housing and employment assistance to chronically homeless persons,
including veterans. The local partners provided additional needed
services such as health care, education, and life skills. We believe
that the combination of housing and jobs has helped chronically
homeless persons change their lives and become more self-sufficient.
HUD has provided $1.47 million in subsequent renewal funding through
HUD's annual Continuum of Care competition for continued housing
assistance to these grantees. Over 400 chronically homeless individuals
have been provided with housing and services, of whom approximately 15
percent are chronically homeless veterans.
HUD also developed, in consultation with the Interagency Council on
Homelessness, a third initiative to assist chronically homeless persons
with a long-term addiction to alcohol. Called the Housing for People
who are Homeless and Addicted to Alcohol (HHAA) initiative, HUD
provided $10 million in initial funding to 12 programs in 11 cities.
Subsequently, HUD has awarded approximately $4.66 million in additional
funding through HUD's annual Continuum of Care competition to sustain
this effort. HUD provided funding for permanent housing and the
community partners provided needed supportive services for these
chronically inebriated individuals. This initiative is serving
approximately 550 persons with permanent supportive housing, of whom
approximately 21 percent are veterans.
HUD regularly works with other Federal program partners to address
the needs of homeless persons, including homeless veterans. For
example, this past August, HUD participated in the Department of
Labor's DOL-VETS Grantees Training Conference held in Denver, Colorado.
HUD was able to provide information on our homeless funding process to
over 300 DOL grantees who received awards to help veterans overcome
employment barriers.
VA STAND DOWN
In January 2008, HUD participated in VA's Stand Down at the
Washington, DC VA Medical Center. Unique to this event was a pilot HUD/
EITC program--Earned Income Tax Credit counseling for homeless
veterans. HUD and the IRS partnered to reach out to homeless veterans
at the Stand Down. As a result of this pilot, of the 256 total
taxpayers at the event, 41 tax returns were prepared. The largest
refund was $1,117, and the average refund was $351. Based on this
initial success, VA and the IRS are looking to expand the initiative to
other Stand Downs around the country.
HUD'S HOMELESSNESS RESOURCE EXCHANGE
The new Homelessness Resource Exchange (located at www.HUDHRE.info)
is HUD's one-stop shop for information and resources for people and
organizations who want to help persons who are homeless or at risk of
becoming homeless. It provides an overview of HUD homeless and
mainstream housing programs, our national homeless assistance
competition, technical assistance information, and more.
The HUDHRE has a number of materials that address homeless
veterans' issues. For example, HUD dedicated approximately $350,000 to
enhance the capacity of organizations that do or want to specifically
focus on serving homeless veterans, update existing technical
assistance materials, and coordinate with VA's homeless planning
networks. As a result, we developed two technical assistance
guidebooks. The first guidebook, Coordinating Resources and Developing
Strategies to Address the Needs of Homeless Veterans, describes
programs serving veterans that are effectively coordinating HUD
homeless funding with other resources. The second guidebook, A Place at
the Table: Homeless Veterans and Local Homeless Assistance Planning
Networks, describes the successful participation of 10 veterans'
organizations in their local Continuums of Care. Additionally, we have
held national conference calls and workshops to provide training and
assistance to organizations that are serving, or planning to serve,
homeless veterans. All of this information is available on the HUDHRE
website.
HUD-VASH AND TARGETED HOMELESS FUNDING
With the initiative and action of these committees and the support
of the administration, HUD is starting to roll out the HUD-Veterans
Affairs Supportive Housing Program, called HUD-VASH. The 2008
Consolidated Appropriations Act (Public Law 110-161), enacted December
26, 2007, provided $75 million for HUD-VASH vouchers for 2008 funding.
The HUD-VASH program combines HUD Housing Choice Voucher rental
assistance (administered through HUD's Office of Public and Indian
Housing through local Public Housing Agencies) for homeless veterans,
with case management and clinical services provided by VA at its
medical centers in the community. Through this partnership, HUD and VA
expect to provide permanent housing and services to approximately
10,000 homeless veterans and their family members, including veterans
who have become homeless after serving in Iraq and Afghanistan.
The President has requested $75 million for fiscal year 2009 for
HUD-VASH. This will provide approximately 10,000 additional vouchers to
those being awarded this year. HUD-VASH will make a significant impact
on those who bravely served this great Nation and who have returned to
live on our streets and in our emergency shelters. In addition to
requesting funding for HUD-VASH in 2009, the administration has again
requested record-level funding for HUD's homeless assistance grants
programs to better serve veterans and others who become homeless. The
fiscal year 2009 requested level, including HUD-VASH, is $1.711
billion, which is a 56 percent increase over the $1.1 billion targeted
homeless funding appropriated in 2001.
OTHER HUD VETERANS INITIATIVES
The opportunities to focus on issues involving homeless veterans
extend beyond the Federal agencies. For instance, HUD regularly works
with the National Coalition for Homeless Veterans and actively
participates in their conferences. These opportunities to work with
organizations at all levels are very helpful as we continue to make
progress in serving homeless veterans.
To coordinate veterans' efforts within HUD, to reach out to
veterans organizations, and to help individual veterans, HUD
established the HUD Veterans Resource Center. The Center has a 1-800
number to take calls from veterans and to help address their individual
needs. The Center takes well over one thousand calls each year. The
Resource Center works with each veteran to connect them to resources in
their own community. Finally, the Center also provides information
within the Department and with other agencies and veterans
organizations to better address the needs of veterans.
CONCLUSION
Again, I want to reiterate my and HUD's desire and commitment to
help our veterans, including those who are homeless. We will continue
to work with our Federal, State and local partners to do so. I will be
glad to address any questions you may have.
Senator Murray. Thank you very much, Mr. Johnston.
Mr. Dougherty.
STATEMENT OF PETER H. DOUGHERTY, DIRECTOR, HOMELESS
VETERANS PROGRAMS, DEPARTMENT OF VETERANS
AFFAIRS
Mr. Dougherty. Chairwoman Murray, Chairman Johnson, members
of the subcommittees, let me start out by telling you how much
we appreciate what you have done to provide the funding to
create more than 10,000 units of housing for veterans under the
HUD-VASH program. It is the most significant action taken in
resolving this problem in many years.
As you know, the VA is the largest single health care
system, providing health care to more than 100,000 veterans who
are homeless each year. With your help, we are making
unprecedented strides in expanding current and creating new
services in partnership with others.
We aggressively reach out to veterans. We engage them in
shelters, in soup kitchens, on the streets, under the bridges,
in both rural and urban America. We connect them with a
complement of VA health care and benefits, as well as connect
them to other programs and services that we do not run and
control. Our objective is to help these veterans receive
coordinated care with VA benefits, which in turn furthers their
chances to obtaining and maintaining independent housing and
gainful employment. This year we expect to spend over $2
billion for homeless veterans, both in our specific programs
geared to those veterans and the general health care services
for those veterans.
Besides health care, benefits are very important. The
Veterans Benefits Administration has expedited over 21,000
homeless veterans' claims in the past 4 years. This has allowed
many veterans who are homeless to get an economic system of
support which helps them move on.
We engage in outreach activity in a variety of ways and
partnerships. We do that through stand downs. That is an effort
that has been out there for more than 20 years. Last year, the
Department participated in 143 of those events. We saw over
27,000 veterans and 3,500 spouses and children of veterans in a
community activity that engaged more than 18,000 volunteers at
143 events.
We believe the best strategy with this new generation of
veterans is to get to them and reach them early. You created an
eligibility for them to get health care for a period of 5
years. We believe that that is very important because it allows
our clinical staff, when that veteran comes in and receives a
health care visit for something that was not necessarily
considered to be a homeless problem to ask questions, we think
are leading many of these men and women to services that they
need that will prevent them from being homeless. We believe the
best option is to reach these veterans early so that we do not
have more acute problems later.
Last year we had over 9,000 people come to meetings across
the country to talk about the met and unmet needs of homeless
veterans. Those are called our CHALENG meetings. Besides giving
us that kind of information, it also helps us to determine how
many homeless veterans are out there. At the current time, we
believe that on any given night there are approximately 154,000
veterans. That is a significant reduction, but it is still, as
you know, way too many. We are confident that with your support
we will continue to achieve the goal of ending chronic
homelessness among veterans.
Last year you set funding for HUD that is creating more
than 10,000 dedicated units of permanent housing under the
section 8 program. That law requires that VA provide dedicated
case managers. We have worked very closely with our colleagues
at HUD, and I want to compliment Mark Johnston and others at
that Department. We are in the process of hiring and have
already started a process to hire 290 dedicated case managers
who will work specifically with those veterans who will be
housed in programs in communities, all across the country,
everywhere in the country.
We complement that effort with our Grant and Per Diem
Program. We have more than 9,000 beds that are operating today.
We have a review going on today that will create more than
2,200 additional units of housing.
We have done some other homeless activities with the
Department of Labor where we have done a joint outreach to
veterans who are coming out of incarceration. We think those
are the kinds of things that are good for homeless prevention
and good for our society.
PREPARED STATEMENT
We appreciate what you have done to help us improve our
services.
This would conclude my formal statement, and I look forward
to answering any questions you and the committee may have.
[The statement follows:]
Prepared Statement of Peter H. Dougherty
Chairman Murray and Chairman Johnson, Ranking Members Bond and
Hutchison, and members of the subcommittees, I am pleased to be here
today to discuss programs and services of the Department of Veterans
Affairs (VA) that help homeless veterans achieve self-sufficiency.
Thank you for inviting us to testify today.
Homelessness for any person is unacceptable; however, for those who
have honorably served our nation in the military, homelessness should
be inconceivable. VA's commitment to end chronic homelessness among
veterans gains strength every day. To meet that goal, VA is making
unprecedented strides to create opportunities to bring together
veterans in need of assistance with the wide range of services and
treatment VA provides directly as well as those services we offer in
partnership with others.
As the largest integrated health care system in the United States
and, as such, the largest provider of homeless treatment and assistance
services to homeless veterans in the Nation, VA provides health care
and services to more than 100,000 homeless veterans each year. We do
this by aggressively reaching out and engaging veterans in shelters and
in soup kitchens, on the streets and under bridges. By not waiting for
veterans to contact us and by proactively offering services, VA helps
some 70,000 of these veterans each year who would not otherwise know of
their eligibility for assistance. We connect homeless veterans to a
full complement of VA health care and benefits, including compensation
and pension, vocational rehabilitation, loan guaranty, and education
services.
We continuously work to reach and identify homeless veterans and
encourage their utilization of VA's health care system. Once they are
enrolled, we furnish timely access to quality primary health care, as
well as psychiatric evaluations and treatment and engagement in
treatment programs for substance-related problems. In addition, it is
extremely important that these veterans are seen by mental health
specialists and a case manager. Our objective is to help these veterans
receive coordinated needed care and other VA benefits, which in turn,
furthers their chances of obtaining and maintaining independent housing
and gainful employment. The provision of such VA assistance should
enable most veterans to live as independently as possible given their
individual circumstances.
We work very closely with our Federal partners at the Departments
of Housing and Urban Development (HUD), Health and Human Services (HHS)
and Labor (DOL), specifically DOL's Veterans' Employment and Training
Service, to ensure those homeless veterans who want and need housing,
alternative access to health care, and supportive services and
employment have an opportunity to become productive, tax-paying members
of society. Housing and employment are very important because we
understand from many formerly homeless veterans that having
opportunities for gainful employment were vital to their being able to
overcome psychological barriers that contributed to their homelessness.
With the support of Congress, VA continues to make a significant
investment in the provision of services for homeless veterans. We
expect to spend over $300 million this year in programs to assist
homeless veterans and an additional $1.8 billion in medical care
treatment costs.
Services and treatment for mental health and substance-related
problems are essential both to the already homeless veteran and to
those at risk for homelessness. VA's overall mental health funding
increased by nearly $300 million this year, and we use those funds to
enhance access to mental health services and substance use treatment
programs. Increasing access and availability to mental health and
substance use treatment services are critical to ensure that those
veterans who live far away from VA health care facilities are able to
live successfully in their communities.
Equally important is the work of the Veterans Benefits
Administration (VBA). VBA's loan guarantee program allows non-profit
entities to purchase VA foreclosed properties. More than 200 homes have
been sold to non-profit and faith-based organizations that are helping
to provide thousands of nights of shelter to homeless veterans and
other homeless individuals. I also want to note that VBA's Compensation
and Pension Service strives to provide timely processing and payment of
benefits claims to homeless veterans. As a result of VBA's efforts,
21,000 veterans' claims were expedited to allow these veterans to
receive the benefits to which they are entitled.
As part of VA's efforts to eradicate homelessness among veterans,
we work in a variety of venues with multiple partners at the Federal,
State, territorial, tribal, and local government levels. We have
hundreds of community non-profit and faith-based service providers
working in tandem with our health care and benefits staff to improve
the lives of tens of thousands of homeless veterans each night. We have
about 2,000 beds for homeless veterans specifically available under our
domiciliary care and other VA-operated residential rehabilitation
programs.
A year-long follow-up study of 1,350 veterans discharged from VA's
residential care programs indicates that we are achieving long-term
success for the well-being of these veterans. Four out of five veterans
who completed these programs remain appropriately housed 1 year after
discharge. Through such effective, innovative, and extensive
collaboration, VA is able to maximize opportunities for success.
We firmly believe that the best strategy to prevent homelessness is
early intervention. As the subcommittee knows, combat-theater veterans
returning from the present conflicts in Iraq and Afghanistan have,
depending on their date of discharge, enhanced enrollment priority for
up to 5 years in VA's health care system and extended eligibility for
VA health care at no cost for conditions possibly related to their
combat-service. We believe that this eligibility allows our clinical
staff to identify additional health problems that may, if otherwise
left untreated, contribute to future homelessness among those veterans.
During the past 2 years, 556 returning veterans have needed VA
residential services either in VA-operated programs or in the community
transitional housing programs under our Homeless Grant and Per Diem
Program. The best option is to reach out and treat those in need who
are willing to seek services today to prevent more acute problems
later.
INTERAGENCY COUNCIL ON HOMELESSNESS (ICH), INTERGOVERNMENTAL AND LOCAL
RELATIONSHIPS
VA has always been an active partner with nearly all Federal
departments and agencies that provide services to homeless veterans. In
March, Secretary Peake was elected to chair the Interagency Council on
Homelessness (ICH), demonstrating his and VA's commitment to working
collaboratively. We participate in a variety of interagency efforts to
assist homeless veterans. During Secretary Peake's tenure as ICH Chair,
VA will continue an initiative we started several years ago of hosting
regular meetings of the ICH Senior Policy Group. These efforts have
brought VA to an unprecedented involvement in State and local plans to
end chronic homelessness.
In the past, VA has worked closely with HUD and HHS to assist the
chronically homeless with housing, health care, and benefits
coordination. Under this initiative, funding was provided to 11
communities that developed quality plans to house and provide
wraparound services. As a result of our collaboration, nearly 1,200
individuals were enrolled in the program during the first year of the
project, and nearly 600 were housed. Thirty percent of those receiving
services under this initiative are veterans. This effort is based on
the premise that housing and treating those who are chronically
homeless will decrease total costs for health care, emergency housing,
related social services, and the court system. VA is pleased to be a
partner in this effort. We are also pleased to lead the effort to
evaluate this project, in partnership with HUD and HHS, and look
forward to sharing with you our findings regarding the subsequent year
of the project when they become available.
VA has a long tradition of engaging and working with local
providers in their communities. VA collaborates annually with
communities across the United States in Project CHALENG (Community
Homelessness Assessment, Local Education and Networking Groups) for
veterans. At regularly scheduled CHALENG meetings, VA works with faith-
based and community homeless service providers, representatives of
Federal, State, territorial, tribal, and local governments, and
homeless veterans themselves. Our meetings and annual reports are
designed to identify met and unmet needs for homeless veterans, aid in
the community effort to aid homeless veterans, and develop local action
plans to address those identified needs.
Last year our CHALENG meetings had over 9,000 participants,
including nearly 5,000 current or formerly homeless veterans at
meetings sponsored by VA medical centers and supported by regional
offices to strengthen their partnerships with community service
providers. This leads to better coordination of VA services as well as
the development of innovative, cost-effective strategies to address the
needs of homeless veterans at the local level. It shows us what is
being done effectively and what pressing unmet needs remain.
This process also helps us establish, as part of local needs, an
estimate of the number of veterans who are homeless on any given night.
You should be pleased to know that, based on the most recently
available data, the number of homeless veterans appears to be going
down. Two years ago we estimated there were approximately 195,000
homeless veterans on any given night. Last year we believe that number
dropped to 154,000, a 21 percent reduction. While there are still far
too many veterans among the homeless, we are making progress, and their
numbers are coming down. This progress demonstrates to us that this
scourge is not unmanageable and that our collective efforts are
realizing success. We are confident that our continued efforts will
achieve our goal of ending chronic homelessness among veterans.
VA INVOLVEMENT IN STAND DOWNS
VA's involvement in stand downs began more than 20 years ago when
the first stand down for homeless veterans was held in San Diego. Stand
downs are typically 1 to 3-day events and bring a wide range of
specialized resources together to provide homeless veterans with
comprehensive medical and psychosocial services. We have participated
in over 2,000 events since then. Participating in stand downs for
homeless veterans is another avenue by which VA continues its
collaborative outreach at the local level through coordination of our
programs with other departments, agencies, and private sector programs.
In calendar year 2007, VA, along with hundreds of veterans service
organization representatives, community homeless service providers,
State and local government offices, faith-based organizations, and
health and social service providers, provided assistance to more than
27,000 veterans. The latest information shows that more than 3,500
spouses and children attended these events. Nearly 18,000 volunteers
and VA employees participated in last year's stand downs.
HOMELESS PROVIDERS GRANT AND PER DIEM PROGRAM
VA's largest program involving local communities remains our
Homeless Providers Grant and Per Diem Program. As you are aware, this
highly successful program allows VA to provide grants to State and
local governments, as well as faith-based and other non-profit
organizations, to develop supportive transitional housing programs and
supportive service centers for homeless veterans. The current Notices
of Funding Availability (NOFA) has $37 million available: $12 million
for per diem only programs and $25 million for new grant programs.
Organizations may also use VA grants to purchase vans to conduct
outreach and provide transportation for homeless veterans to receive
health care and employment services.
Since the Grant and Per Diem Program was authorized in 1992, VA has
fostered the development of nearly 500 programs with more than 9,000
operational beds today and with plans already approved or in process to
develop more than 14,000 transitional housing beds. We already have 23
independent service centers and provided funding for 200 vans to
provide transportation for outreach and connections with services.
We accepted applications pursuant to two NOFAs that we believe will
create 2,200 new transitional housing beds. We have begun our review of
the applications and anticipate announcing the awards by the end of
this fiscal year.
TECHNICAL ASSISTANCE GRANTS
With the enactment of Public Law 107-95, VA was authorized to
provide grants to entities with expertise in preparing grant
applications. We have awarded funding to two entities that are
providing technical assistance to non-profit community and faith-based
groups that are interested in seeking VA and other grants relating to
serving homeless veterans. Grants were awarded to the National
Coalition for Homeless Veterans, Public Resources, Inc., and the North
Carolina Governor's Institute on Alcohol and Substance Abuse, Inc. to
aid us in this effort. VA will continue to expand and improve services
to connect veteran-specific service providers to other government and
non-government resources.
GRANTS FOR HOMELESS VETERANS WITH SPECIAL NEEDS
VA also provides grants to its health care facilities and existing
grant and per diem recipients to assist them to serve homeless veterans
with special needs, including women, women who care for dependent
children, the chronically mentally ill, frail elderly, and the
terminally ill. We initiated this program in fiscal year 2004 and have
provided special needs funding totaling $15.7 million to 29
organizations. We issued two NOFAs on February 22, 2007. That call
resulted in $8.8 million to continue to fund both existing special
needs grants and new awards.
RESIDENTIAL REHABILITATION AND TREATMENT PROGRAMS (RRTPS)
VA's Domiciliary Care for Homeless Veterans (DCHV) Program, which
was recently renamed the Residential Rehabilitation and Treatment
Program, provides a full range of treatment and rehabilitation services
to many homeless veterans. Over the past 17 years, VA has established
34 DCHV programs providing 1,873 beds. There have been over 71,000
episodes of treatment in the DCHV program since 1987. VA continues to
improve access to the services offered through these programs. In
fiscal year 2007, DCHV programs treated 5,905 homeless veterans, while
VA funded the development of 9 new DCHV programs offering a total of
400 new beds. In fiscal year 2006, VA funded the development of 2
additional DCHV programs totaling 100 beds. In addition to the DCHV
program, homeless veterans receive treatment and rehabilitation
services in the Psychosocial Residential Rehabilitation Treatment
Program (PRRTP). Currently there are 72 PRRTP programs with a total of
2,020 beds.
STAFFING AT VBA REGIONAL OFFICES
Homeless Veterans Outreach Coordinators at all VBA regional offices
work in their communities to identify eligible homeless veterans,
advise them of VA benefits and services, and assist them with claims.
The coordinators also network with other VA entities, veterans service
organizations, local governments, social service agencies, and other
service providers to inform homeless veterans about other benefits and
services available to them. In fiscal year 2007, VBA staff assisted
homeless veterans in 28,962 instances. They contacted 4,434 shelters,
made 5,053 referrals to community agencies, and made 4,006 referrals to
VHA and DOL's Homeless Veterans Reintegration Programs.
Since the beginning of fiscal year 2003, regional offices have
maintained an active record of all compensation and pension claims
received from homeless veterans. Procedures for the special handling
and processing of these claims are in place. From fiscal year 2003
through fiscal year 2007, VBA received 21,366 claims for compensation
and pension from homeless veterans. Of those claims, 59 percent were
for compensation and 41 percent were for pension. Of the compensation
claims processed, 42 percent were granted, with an average disability
rating of 45 percent, and 15 percent of claimants were rated 100
percent disabled. Of the total claims denied, 43 percent were due to
the veteran's disability not being service connected. The average
processing time for all compensation claims of homeless veterans was
155 days. Of the pension claims processed, 77 percent were granted.
Nine percent of the claims denied were due to the veteran's disability
not being permanent and total. The average processing time for all
pension claims of homeless veterans was 123 days.
MULTIFAMILY TRANSITIONAL HOUSING LOAN GUARANTY PROGRAM
Public Law 105-368 authorized VA to establish a pilot program to
guarantee up to 15 loans, up to an aggregate loan amount of $100
million, for multifamily transitional housing. Many complex issues,
often varying from jurisdiction to jurisdiction, surround
implementation, and VA has worked closely with veterans service
organizations, veteran-specific housing providers, faith-based
organizations, clinical support service programs, VA medical care
staff, State, city and county agencies, homeless service providers, and
finance and housing experts. We are also using consultants to assist us
with our evaluation of potential sites and providers of housing
services.
VA issued an award under this program for a project to provide 144
new beds for homeless veterans through the Catholic Charities of
Chicago. The Catholic Charities' project opened in January 2007 and was
full within a week. One loan has been approved to date. No other loans
are expected to be closed within the foreseeable future.
coordination of outreach services for veterans at risk of homelessness
VA, together with DOL and with additional assistance from the
Department of Justice (DOJ), has helped develop demonstration projects
providing referral and counseling services for veterans who are at risk
of homelessness and are currently incarcerated. Currently, VA and DOL
have seven sites that provide referral and counseling services to
eligible veterans at risk of homelessness upon their release from
correctional institutions. Local staffs from VHA and VBA provide
veterans at each demonstration site with information about available VA
benefits and services.
DOL also provided funding under its Homeless Veterans Reintegration
Programs for the Incarcerated Veterans' Transition Program. VA and DOL
are reviewing this program carefully and will provide a report on its
effectiveness.
HUD-VETERANS AFFAIRS SUPPORTIVE HOUSING (HUD-VASH)
VA recognizes HUD's long-standing support of the HUD-VASH program.
This very successful partnership links the provision of VA case
management services with permanent housing in order to assist homeless
veterans. In addition, we very much appreciate Congress appropriating
additional funds in fiscal year 2008 to make available nearly 10,000
permanent housing units for homeless veterans. We will continue to work
closely with our colleagues at HUD to implement this program and expect
that thousands of veterans will be able to use these vouchers to move
into housing this summer. We are starting to hire nearly 300 case
managers who will provide case management services to those veterans
who are eligible for VA health care to ensure that they have access to
all needed health care and services.
The administration has proposed in HUD's budget providing
approximately 10,000 additional units of permanent housing next year.
If that occurs, we will make sure these additional veterans receive the
appropriate case management services.
RECENTLY DISCHARGED VETERANS (OPERATION ENDURING FREEDOM/OPERATION
IRAQI FREEDOM, OEF/OIF, VETERANS)
During the past 3 fiscal years, 556 veterans who served in Iraq and
Afghanistan have been treated in one of VA's homeless-specific
residential treatment programs. Currently, there are approximately 90
OEF/OIF veterans in homeless-specific residential treatment programs.
It is clear to us that there is a strong need for VA to be extremely
diligent in ensuring that these veterans get immediate attention. VA,
with a host of external partners, seeks out these veterans. I want to
be abundantly clear that our mission is to serve all eligible veterans
who need our services.
I should note that these veterans, like all veterans who enter VA's
homeless-specific services, get access to primary care, but also as
needed, to appropriate mental health and substance abuse services. Our
efforts to reach out, find, and appropriately serve these veterans will
do nothing but increase in the months and years ahead.
SUMMARY
VA continues to make progress to prevent homelessness and treat our
homeless veterans. Each year, we provide an annual report to Congress
that outlines our activities for homeless veterans. VA collaborates
closely with other Federal agencies, State and local governments, and
community and faith-based organizations to ensure that homeless
veterans have access to a full range of health care, benefits, and
support services. We still have much to do to end chronic homelessness
among veterans in America, and we are eager to work with you to meet
that challenge. Developing appropriate links to health care, housing,
benefits assistance, employment, and transportation are all components
that help bring these veterans out of despair and homelessness. We
appreciate all of the assistance the Congress gives us to aid in this
noble effort.
Chairman Murray and Chairman Johnson, that concludes my statement.
I am pleased to respond to any questions you or the subcommittee
members may have.
Senator Murray. Thank you very much, Mr. Dougherty.
Ms. Beversdorf.
STATEMENT OF CHERYL BEVERSDORF, PRESIDENT AND CEO,
NATIONAL COALITION FOR HOMELESS VETERANS
Ms. Beversdorf. Chairman Murray, Chairman Johnson, Ranking
Member Bond, and members of the subcommittee, the National
Coalition for Homeless Veterans appreciates the opportunity to
present testimony before you this morning regarding
homelessness among veterans in America.
The homeless veteran assistance movement NCHV represents
began in 1990, but it has taken time to build the momentum that
has turned the battle in our favor. In partnership with VA, the
Department of Labor, and HUD, and supported by funding measures
the Senate Housing and the Senate Veterans Affairs
Subcommittees have championed, our community veteran service
providers have helped reduce the number of homeless veterans on
any given night in America by 38 percent in the last 6 years.
At this time, only two non-government veteran-specific
homeless assistance programs serve the men and women who
represent nearly a quarter of the Nation's homeless population.
These include the Grant and Per Diem Program and the Department
of Labor Homeless Veterans Reintegration Program.
The Grant and Per Diem Program is the foundation of the VA
and community partnership and currently funds nearly 10,000
service beds in non-VA facilities in every State. Under this
program, veterans receive supportive services such as health
care, substance abuse, and mental health counseling, employment
assistance, in addition to transitional housing.
In September 2007, despite the commendable growth and
success of this program and its role in reducing the incidence
of veteran homelessness, the GAO reported the VA needs an
additional 9,600 beds to adequately address the current need
for assistance by the homeless veteran population.
Last year, Public Law 110-161 provided $130 million, the
fully authorized level, to be expended for the Grant and Per
Diem Program in fiscal year 2008. We greatly appreciate the
leadership of the Veterans Affairs Appropriations Subcommittee
to ensure that that amount was included in the budget last
year.
However, while it is true the projected $137 million in the
President's fiscal year 2009 budget request will allow for
expansion of the Grant and Per Diem Program, it is not nearly
enough to address the needs called for in the GAO report and
needed by community-based providers to provide more services to
homeless veterans. NCHV recommends the annual appropriation of
the Grant and Per Diem Program be increased to $200 million.
The HVRP program is a grant program that provides
employment preparation and placement assistance to homeless
veterans. HVRP is authorized at $50 million through fiscal year
2009. Yet, the annual appropriation has been less than half
that amount. For fiscal year 2009, the proposed funding level
of $25.6 million would fund only 11 percent of the overall
homeless veteran population. Based on the program's success and
effectiveness, NCHV believes in fiscal year 2009 HVRP should be
funded at its full $50 million authorization level.
So how can homelessness among veterans be prevented?
The lack of affordable, permanent housing is cited as the
number one unmet need of America's veterans according to the VA
CHALENG report. We too want to express our sincere gratitude to
the Housing Appropriations Subcommittee for its approval of $75
million in fiscal year 2008 for the HUD-VASH program, which
allowed HUD and VA to make up to 10,000 HUD-VA supportive
incremental housing vouchers available to veterans with chronic
health and disability challenges. We urge the subcommittee to
support HUD's request for $75 million in fiscal year 2009.
NCHV believes the issue of permanent, affordable housing
for veterans must be addressed on two levels: those veterans
who need supportive services beyond the 2-year eligibility for
Grant and Per Diem and those who are cost-burdened by fair
market rents in their communities. We support three initiatives
that would address this issue.
First, NCHV hopes the Senate will soon consider and pass S.
1233, the Veterans Traumatic Brain Injury Rehabilitation Act of
2007, which includes a provision that would offer grants to
government and community agents to provide supportive services
to low income veterans in permanent housing.
The second measure calls for improving the disposition of
VA real property to homeless veteran service providers.
Congress has provided the VA the option to use enhanced use
leases as a surplus property disposition method. NCHV
recommends Congress consider introducing legislation to require
VA to enter into lease agreements to rent space to homeless
providers at no charge.
The third measure would make funds available to Government
agencies, community organizations, and developers to increase
the availability of affordable housing units for low income
veterans and their families. Enactment of S. 1084, the Homes
for Heroes Act of 2007, would address this issue.
Finally, with respect to implementing a homelessness
preventive strategy targeted to veterans returning from OIF/
OEF, NCHV believes the first line of engagement is the strong
partnership between the VA and community health centers in
areas underserved by the Veterans Health Administration.
Protocols should be developed to allow VA and community clinics
to process a veteran's request for assistance directly and
immediately without requiring the patient to first go to a VA
medical facility.
PREPARED STATEMENT
In summary, I sincerely thank both subcommittees for their
service to America's veterans in crisis. I will be happy to
answer any questions.
[The statement follows:]
Prepared Statement of Cheryl Beversdorf
Chairman Murray, Chairman Johnson, Ranking Member Bond, Ranking
Member Hutchison, and members of the subcommittees, the National
Coalition for Homeless Veterans (NCHV) appreciates the opportunity to
submit testimony to the Senate Appropriations Subcommittee on
Transportation, Housing and Urban Development and the Subcommittee on
Military Construction and Veterans Affairs, which includes comments on
issues impacting our Nation's homeless veterans.
The homeless veteran assistance movement NCHV represents began in
earnest in 1990, but like a locomotive it took time to build the
momentum that has turned the battle in our favor. In partnership with
the Departments of Veterans Affairs (VA), Labor (DOL), and Housing and
Urban Development (HUD)--and supported by funding measures the Senate
Subcommittees on Veterans Affairs and on Housing and Urban Development
have championed--our community veteran service providers have helped
reduce the number of homeless veterans on any given night in America by
38 percent in the last 6 years.
This assessment is not based on the biases of advocates and service
providers, but by the Federal agencies charged with identifying and
addressing the needs of the Nation's most vulnerable citizens.
To its credit, the VA has presented to Congress an annual estimate
of the number of homeless veterans every year since 1994. It is called
the CHALENG project, which stands for Community Homelessness
Assessment, and Local Education Networking Groups. In 2003 the VA
CHALENG report estimate of the number of homeless veterans on any given
day stood at more than 314,000; in 2006 that number had dropped to
about 194,000. We have been advised the estimate in the soon-to-be
published 2007 CHALENG Report shows a continued decline, to about
154,000.
Part of that reduction can be attributed to better data collection
and efforts to avoid multiple counts of homeless clients who receive
assistance from more than one service provider in a given service area.
But in testimony before the House Committee on Veterans Affairs in the
summer of 2005, VA officials affirmed the number of homeless veterans
was on the decline, and credited the agency's partnership with
community-based and faith-based organizations for making that downturn
possible.
Though estimates are not as reliable as comprehensive ``point-in-
time'' counts, the positive trends noted in the CHALENG reports since
2003 are impressive. The number of contacts reporting data included in
the assessments is increasing, while the number of identified and
estimated homeless veterans is decreasing.
Other Federal assessments of veteran homelessness that support our
testimony are found in HUD's 2007 ``Annual Homelessness Assessment
Report'' (AHAR)--which reported that 18 percent of clients in HUD-
funded homeless assistance programs are veterans--and the 2000 U.S.
Census, which reported about 1.5 million veteran families are living
below the Federal poverty level. Earlier this year, the National
Alliance to End Homelessness (NAEH) published a report, based on
information from these resources, that estimated approximately 46,000
veterans meet the criteria to be considered as ``chronically
homeless.''
According to the VA, in urban, suburban and rural communities
throughout America, one of every three homeless adult males sleeping
under bridges, in alleys and in abandoned buildings or living in
shelters or other community based organizations has served our Nation
in the Armed Forces. Homeless veterans are mostly males (4 percent are
females). Fifty-four percent are people of color. The vast majority are
single, although service providers are reporting an increased number of
veterans, both women and men, with children seeking their assistance.
Forty-five percent have a mental illness. Fifty percent have an
addiction.
HOMELESS VETERAN ASSISTANCE PROGRAMS
There are only two non-government veteran-specific homeless
assistance programs serving the men and women who represent nearly a
quarter of the Nation's homeless population. The over-representation of
veterans among the homeless that is well documented and continues to
this day is the result of several influences, most notably limited
resources in communities with a heavy demand for assistance by single
parents and families with dependent children, the elderly and the
disabled.
The DOL Homeless Veterans Reintegration Program (HVRP) and the VA
Homeless Providers Grant and Per Diem (GPD) program were created in the
late 1980s to provide access to services for veterans who were unable
to get into local, federally funded, ``mainstream'' homeless assistance
programs.
These programs are largely responsible for the downturn in veteran
homelessness reported during the last 6 years, and must be advanced as
essential components in any national strategy to prevent future veteran
homelessness. We will touch on each separately, and briefly comment on
how each may be enhanced.
HOMELESS PROVIDERS GRANT AND PER DIEM PROGRAM (GPD)
Despite significant challenges and budgetary strains, the VA has
quadrupled the capacity of community-based service providers to serve
veterans in crisis since 2002, a noteworthy and commendable expansion
that includes, at its very core, access to transitional housing, health
care, mental health services and suicide prevention.
GPD is the foundation of the VA and community partnership, and
currently funds nearly 10,000 service beds in non-VA facilities in
every State. Under this program veterans receive a multitude of
services that include housing, access to health care and dental
services, substance abuse and mental health supports, personal and
family counseling, education and employment assistance, and access to
legal aid.
The purpose of the program is to provide the supportive services
necessary to help homeless veterans achieve self sufficiency to the
highest degree possible. Clients are eligible for this assistance for
up to 2 years. Most veterans are able to move out of the program before
the 2-year threshold; some will need supportive housing long after they
complete the eligibility period. Client progress and participant
outcomes must be reported to the VA GPD office quarterly, and all
programs are required to conduct financial and performance audits
annually.
In September 2007, despite the commendable growth and success of
this program and its role in reducing the incidence of veteran
homelessness, the Government Accountability Office (GAO) reported the
VA needs an additional 9,600 beds to adequately address the current
need for assistance by the homeless veteran population. That finding
was based on information provided by the VA, the GAO's in-depth review
of the GPD program, and interviews with service providers. The VA
concurred with the GAO findings.
Recommendation
Increase the annual appropriation of the GPD program to $200
million.--For fiscal year 2008 Public Law 110-161 provided for $130
million, the fully authorized level, to be expended for the GPD
program. We greatly appreciated the leadership of the Senate VA
Appropriations Subcommittee to ensure that amount was included in the
fiscal year 2008 budget. However, while it is true the projected $137
million in the President's fiscal year 2009 budget request will allow
for expansion of the GPD program, it is not nearly enough to address
the needs called for in the GAO report. While some VA officials may be
concerned about the administrative capacity to handle such a large
infusion of funds into the program, we believe the documented need to
do so should drive the debate on this issue.
In 2006, the VA created the position of GPD Liaisons at each
medical center to provide additional administrative support for the GPD
office and grantees. The VA published a comprehensive program guide to
better instruct grantees on funding and grant compliance issues, and
expects to provide more intense training of GPD Liaisons. This
represents a considerable and continual investment in the
administrative oversight of the program that should translate into
increased capacity to serve veterans in crisis.
Additional funding would increase the number of operational beds in
the program, but under current law it could also enhance the level of
other services that have been limited due to budget constraints. GPD
funding for homeless veteran service centers--which has not been
available in recent grant competitions--could be increased. These drop-
in centers provide food, hygienic necessities, informal social supports
and access to assistance that would otherwise be unavailable to men and
women not yet ready to enter a residential program. They also could
serve as the initial gateway for veterans in crisis who are threatened
with homelessness or dealing with issues that may result in
homelessness if not resolved. For Operation Iraqi Freedom and Enduring
Freedom (OIF/OEF) veterans in particular, this is a critical
opportunity to prevent future veteran homelessness.
Additional funding could also be used under current law to increase
the number of special needs grants awarded under the GPD program. The
program awards these grants to reflect the changing demographics of the
homeless veteran population. One grant targets women veterans,
including those with dependent children--the fasted growing segment of
the homeless veteran population. Women now account for more than 14
percent of the forces deployed to Iraq and Afghanistan, yet there are
only eight GPD programs receiving special needs grants for women in the
country.
Other focuses include the frail elderly, increasingly important to
serve aging Vietnam-era veterans--still the largest subgroup of
homeless veterans; veterans who are terminally ill; and veterans with
chronic mental illness. These grants provide transitional housing and
supports for veteran clients as organizations work to find longer-term
supportive housing options in their communities.
HOMELESS VETERANS REINTEGRATION PROGRAM (HVRP)
HVRP is a grant program that awards funding to government agencies,
private service agencies and community-based nonprofits that provide
employment preparation and placement assistance to homeless veterans.
It is the only Federal employment assistance program targeted to this
special needs population. The grants are competitive, which means
applicants must qualify for funding based on their proven record of
success at helping clients with significant barriers to employment to
enter the work force and to remain employed. In September 2007 this
program was judged by the GAO as one of the most successful and
efficient programs in the Department of Labor portfolio.
HVRP is unique and so highly successful because it doesn't fund
employment services per se, rather it rewards organizations that
guarantee job placement. DOL estimates HVRP will serve approximately
17,066 homeless veterans ($1,500 average cost per participant) and
approximately 10,240 homeless veterans will be placed into employment
($2,500 average cost per placement) at the fiscal year 2009 budgeted
level of $25.62 million. These costs represent a tiny investment for
moving a veteran out of homelessness, and off of dependency on public
programs. For Program Year 2006 (the most recent data available), the
program's entered employment rate was 65.3 percent and the 90-day
retained employment rate was 79.1 percent of the 65.3 percent who
entered employment. Those numbers meet or exceed the results produced
by most other DOL programs.
Recommendation
HVRP is authorized at $50 million through fiscal year 2009, yet the
annual appropriation has been less than half that amount. For fiscal
year 2009, the proposed funding level of $25.6 million would fund only
11 percent of the overall homeless veteran population. Based on the
program's success and effectiveness in terms of employment outcomes for
one of the most difficult populations to serve and its cost
effectiveness as compared to other employment placement programs, NCHV
believes in fiscal year 2009 HVRP should be funded at its full $50
million authorization level. We believe the proven outcomes and
efficiency of HVRP warrants this consideration, and DOL-VETS has the
administrative capacity, will and desire to expand the program.
Employment is the key to transition from homelessness to self
sufficiency--this program is critical to the campaign to end and
prevent veteran homelessness.
ADDRESSING PREVENTION OF VETERAN HOMELESSNESS
The reduction in the number of homeless veterans on the streets of
America each night proves the partnership of Federal agencies and
community organizations--with the leadership and oversight of
Congress--has succeeded in building an intervention network that is
effective and efficient. That network must continue its work for the
foreseeable future, but its impact is commendable and offers hope that
we can, indeed, triumph in the campaign to end veteran homelessness.
However, the lessons we have learned and the knowledge we have
gained during the last 2 decades must also guide our Nation's leaders
and policy makers in their efforts to prevent future homelessness among
veterans who are still at risk due to health and economic pressures,
and the newest generation of combat veterans returning from Operations
Iraqi Freedom and Enduring Freedom.
Again, NCHV bases its recommendations in this regard to the
published findings of the Federal agencies already mentioned.
The lack of affordable permanent housing is cited as the No. 1
unmet need of America's veterans, according to the VA CHALENG report.
We want to express our sincere gratitude to the Senate Housing
Appropriations Subcommittee for its leadership last year in the
campaign to end and prevent homelessness among this Nation's military
veterans. The subcommittee's approval of $75 million in fiscal year
2008 for the joint HUD-VA Supported Housing Program (HUD-VASH) allowed
HUD and VA to make up to 10,000 HUD-VA supportive incremental housing
vouchers available to veterans with chronic health and disability
challenges. NCHV is pleased HUD has requested another increase in equal
measure in fiscal year 2009 and we urge the subcommittee to support
this amount in its legislation. Acquiring 20,000 new HUD-VASH vouchers
in less than 2 years is a historic achievement.
The affordable housing crisis, however, extends far beyond the
realm of the VA system and its community partners. Once veterans
successfully complete their GPD programs, many formerly homeless
veterans still cannot afford fair market rents, nor will most of them
qualify for mortgages even with the VA home loan guarantee. They are,
essentially, still at risk of homelessness. With another 1.5 million
veteran families living below the Federal poverty level (2000 U.S.
Census), this is an issue that requires immediate attention and
proactive engagement.
NCHV believes the issue of affordable permanent housing for
veterans must be addressed on two levels--those veterans who need
supportive services beyond the 2-year eligibility for GPD; and those
who are cost-burdened by fair market rents in their communities.
Veterans who graduate from GPD programs often need supportive
services while they continue to build toward economic stability and
social reintegration into mainstream society. Those who will need
permanent supportive housing--the chronically mentally ill, those with
functional disabilities, families impacted by poverty--may be served by
the HUD-VASH program. But the majority of GPD graduates need access to
affordable housing with some level of follow-up services for up to 2 to
3 years to ensure their success.
Many community-based organizations are already providing that kind
of ``bridge housing,'' but resources for this purpose are scarce. NCHV
supports three initiatives that would address this issue.
The first is a measure to provide grants to government and
community agencies to provide supportive services to low-income
veterans in permanent housing. Funds would be used to provide
continuing case management, counseling, job training, transportation
and child care needs. This is the intent of section 406 of title IV of
Senate bill S. 1233, the Veterans Traumatic Brain Injury Rehabilitation
Act of 2007. NCHV hopes the Senate will soon consider and pass this
legislation.
The second measure calls for improving the disposition of VA real
property to homeless veteran service providers. Congress has provided
the VA the option to use ``enhanced use leases'' as a surplus property
disposition method. The enhanced-use lease statute allows the VA to
lease undeveloped or underutilized property for compensation in the
form of cash or in-kind consideration. The law requires enhanced use
leases ``contribute to the VA's mission, enhance the use of VA
property, and provide VA with fair compensation.'' Currently, VA may
enter into space agreements with nonprofit organizations to utilize VA
capital assets for services to homeless veterans. However, the rates
the Department negotiates with nonprofit organizations may fluctuate
greatly, and are sometimes above fair market rental rates or at rates
that are cost-prohibitive to nonprofit organizations. NCHV recommends
the two subcommittees consider introducing legislation to require VA to
enter into lease agreements to rent space to homeless providers at no
charge.
The third measure would make funds available to government
agencies, community organizations and developers to increase the
availability of affordable housing units for low-income veterans and
their families. The ``Homes for Heroes Act''--introduced in both the
Senate (S. 1084) and the House (H.R. 3329)--addresses this issue and
NCHV has worked with staff in both houses in recognition and support of
congressional action on this historic veteran homelessness prevention
initiative.
With respect to implementing a homelessness preventive strategy
targeted to veterans returning from OIF/OEF, NCHV believes the first
line of engagement is a strong partnership between the VA and community
health centers in areas underserved by the Veterans Health
Administration. While current practice allows a veteran to access
services at non-VA facilities, the process is often frustrating and
problematic, particularly for a veteran in crisis. Protocols should be
developed to allow VA and community clinics to process a veteran's
request for assistance directly and immediately without requiring the
patient to first go to a VA medical facility.
Beyond that, we believe VA Readjustment Counseling Centers, known
as VA Vet Centers, must serve as the clearinghouse for information that
steers combat veterans in crisis to appropriate assistance in their
communities, not just to VA services. Housing assistance referrals,
financial counseling, access to legal aid, family counseling,
identifying educational and employment opportunities--all of these are
critical in any campaign to prevent homelessness. We know that is the
goal of VA Vet Centers, but some serve better than others. This is
where the battle to prevent homelessness among OIF/OEF veterans will be
won, and we encourage the VA and Congress to ensure adequate funding
and training to guarantee their success.
IN SUMMATION
The homeless veteran assistance movement is now 20 years old, but
most of the historic achievements of the broad coalition now engaged in
the campaign to end veteran homelessness have occurred in just the last
6 years. The partnership between the VA, DOL, HUD, and the community-
based organizations we represent has exceeded the most ambitious
expectations of our founders, many of whom are still serving military
veterans in crisis.
NCHV believes it is now time to take the next step in the campaign
to end veteran homelessness. Developing a strategy that addresses the
health and economic challenges of OIF/OEF veterans--before they are
threatened with homelessness--and providing the necessary funding
should be a national priority. Never before in U.S. history has this
Nation, during a time of war, concerned itself with preventing veteran
homelessness. For all our collective accomplishments, this may yet be
our finest moment.
Senator Murray. Thank you very much, Ms. Beversdorf.
And Mr. Berg.
STATEMENT OF STEVEN R. BERG, VICE PRESIDENT FOR
PROGRAMS AND POLICY, NATIONAL ALLIANCE TO
END HOMELESSNESS
Mr. Berg. Thank you. Around the country people are
beginning to get a glimmer of hope after 25 years since the
emergence of widespread homelessness that we actually have new
ways to deal with this problem and that we can actually solve
the problem of homelessness. And I want to start by saying that
for the last 10 years, continuing right up to the present day,
the most important policy initiatives that have helped people
have that hope have first taken root in the Senate
Appropriations Committee. So I am very pleased to have been
invited here and thank you very much for holding this hearing.
Despite heartfelt and sincere commitment around the country
to treat our veterans right, the fact remains that veterans in
the United States are more likely to be homeless than people
who are not veterans. About 150,000 to 200,000 on any given
night, over 300,000 veterans over the course of a year are
experiencing homelessness. Our veterans are living in shelters.
They are living in cars. They are camping out in the woods,
some of them for years and years on end. I think this is an
indication that we as a society made a mistake with the
previous generation of veterans by deciding to tolerate this.
The good news is that I think there is very strong support
for doing whatever is necessary to not make that mistake with
people who are leaving the military now, although I have to say
that the jury is still out on whether we will, in fact, succeed
in that. Part of the reason there is support is because there
is a growing feeling that we know what to do to solve this
problem.
I think these subcommittees have made a big start in that
direction in last year's appropriations bill by reviving the
HUD-VASH program. So I want to start there. HUD-VASH is exactly
what is needed to make sure that supportive housing is
available for homeless veterans who have the most severe
disabilities, who have been homeless the longest, who have the
most problems and are not going to be able to stay housed long-
term without that level of help. The addition of 10,000
vouchers has been welcomed around the country. The prospect
that there will be 10,000 more coming in the 2009 bill is
generating increasing excitement, not just for the 10,000
vouchers, but also for the sense in communities that Congress
understands what is going on. Congress is listening and
Congress knows what is needed and is doing the right thing.
Another program I want to mention again is the Grant and
Per Diem Program. This is a program that we know works very
well for maybe an intermediate level of people, the veterans
who we know can beat homelessness and become self-sufficient,
but need an intensive 2-year period of work in order to do
that. It has shown to work particularly well for people with
chronic substance abuse addictions and alcoholism. The
providers who take this money have shown a lot of willingness
and even enthusiasm to find veterans who have very serious
problems and take on the challenge that they present and get
very good results for that. And the committee has been
increasing the amount of funding for that in recent years.
So those are two pieces that are already in place where
funding is increasing. We need to bring them to a higher scale,
but these committees have shown some willingness to do that and
for that I congratulate you.
The main missing piece right now is for a much larger group
of homeless veterans and veterans who are at risk of
homelessness who maybe do not need that intensive level of
intervention. What is missing is someone in communities around
the country who can take responsibility for finding out when a
veteran is homeless or when a veteran is about to become
homeless and treat that as an individual crisis that will be
solved immediately by working with landlords in the community,
by getting services in place. Those people need to have
flexible funding behind them. This is an approach that in the
general homeless system, communities have started to adopt. It
is known as rapid rehousing. I know there was a demonstration
in last year's THUD bill that is going to bring a lot more
attention to that. And it could be used in the veterans system
to great effect.
PREPARED STATEMENT
We have answers to solve these problems. That is becoming
more and more apparent. We can end the acceptance of our
veterans living on the streets. The answers are cost effective,
and we look forward to working with these subcommittees in the
future to put that into place.
[The statement follows:]
Prepared Statement of Steven R. Berg
Chairmen Johnson and Murray, Ranking Members Hutchison and Bond,
and members of the subcommittees, on behalf of our Board of Directors,
our President Nan Roman, and our thousands of partners across the
country, I am honored that you have invited the National Alliance to
End Homelessness to testify before you today on addressing the issues
of homeless veterans in America. We are grateful to you for holding
this hearing.
Certainly our Nation devotes substantial Federal resources to the
support of veterans, and most veterans are comfortably housed. This is
as it should be. But there is a group of veterans that have serious
housing problems, and tragically there is a large group of veterans
that is homeless. For too long we have tolerated what most everyone
agrees should be an intolerable situation. With veterans now returning
from the Middle East, we are in grave danger of making the same
mistakes we made with an earlier generation. Fortunately, this is a
solvable problem and with good Federal policy and appropriate
resources, we can address it to scale. We owe our veterans no less.
The National Alliance to End Homelessness is a nonpartisan,
nonprofit organization that was founded in 1983 by a group of leaders
deeply disturbed by the appearance of thousands of Americans living on
the streets of our Nation. We have committed ourselves to finding
permanent solutions to homelessness. Our bipartisan Board of Directors
and our 5,000 nonprofit, faith-based, private and public sector
partners across the country devote ourselves to the affordable housing,
access to services, and livable incomes that will end homelessness. The
Alliance is recognized for its organization and dissemination of
evidence-based research to encourage best practices and high standards
in the field of homelessness prevention and intervention and we wish to
share our insights with you today.
As our name implies, our primary focus is ending homelessness, not
simply making it easier to live with. We take this idea very seriously.
There is nothing inevitable about homelessness among veterans in the
United States. We know more about veteran homelessness and how to
address it than we ever have before, thanks in part to extensive
research. We know a great deal about the pathways into homelessness,
the characteristics of veterans who experience homelessness and the
interventions and program models which are effective in offering
reconnection to community, and stable housing.
This testimony will summarize the research available on
homelessness among veterans and on the housing needs of the lowest
income veterans, as well as on the most promising strategies for
solving this problem.
HOMELESSNESS AMONG VETERANS
Far too many veterans are homeless in America. The Department of
Veterans Affairs asks local communities to estimate the number of
homeless veterans in each locality. Their most recent count indicated
more than 150,000 veterans homeless at a given time in early 2007. All
the details from the 2007 count are not yet available to the public,
but analysis of the 2006 counts allowed the Homelessness Research
Institute of the National Alliance to End Homelessness to issue a
report on housing and homelessness among veterans entitled Vital
Mission: Ending Homelessness among Veterans (Homelessness Research
Institute, November, 2007).
We began this research by using VA data to examine the extent of
homelessness among veterans. We found that:
--On any given night, between one in five and one in four homeless
people is a veteran.
--More veterans experience homelessness over the course of the year.
We estimate that 336,627 spent some time homeless over the
course of 2006.
--Veterans make up a disproportionate share of homeless people. In
2006 they represented roughly 26 percent of homeless people,
but only 11 percent of the civilian population 18 years and
older. This is true despite the fact that veterans are better
educated, more likely to be employed, and have a lower poverty
rate than the general population.
--In 2005 approximately 44,000 to 64,000 veterans were chronically
homeless (i.e., homeless for long periods or repeatedly and
with a disability).
Homeless veterans can be found in every State across the country
and live in rural, suburban, and urban communities. Many have lived on
the streets for years. Other veterans live on the edge of homelessness,
struggling to pay their rent. Serious health problems and disabilities
are both a cause and an effect of homelessness, and as is true of
veterans generally, the homeless veteran population is aging.
HOUSING STATUS OF VETERANS
What all homeless people have in common is the lack of a place to
live--homelessness is at base a problem of housing availability and
affordability. When we first analyzed this data, we assumed that the
disproportionate representation of veterans in the homeless population
must be due to the fact that veterans have housing problems. So we
looked at the housing situation of veterans more generally, examining
the American Community Survey data (for 2005--the most recent data
available at the time of the research). In fact, we found that, when
viewed as a group, veterans can typically afford their monthly housing
costs.
--Only 4 percent of veterans pay more than 50 percent of their income
for housing (compared to 8 percent of the general population).
--Veterans are more likely than the general population to be
homeowners (80 percent of veterans are homeowners versus 69
percent of the general population).
--Of those with mortgages, about 2.4 percent are paying more than 50
percent of their income toward their monthly payment.
--Nearly half of veteran homeowners (42 percent) have paid off their
mortgages and own their homes free and clear.
--Ten percent of veteran renters pay more than 50 percent of their
income for housing.
But while the average veteran is well housed, there is a subset of
veterans who rent housing and have severe housing cost burdens. Those
that are most vulnerable and/or face the worst crises lose their
housing, have no other help available, and become homeless.
--In 2005, 467,877 veterans were severely rent burdened and were
paying more than 50 percent of their income for rent.
--Not surprisingly, many of these veterans were poor. More than half
(55 percent) of veterans with severe housing cost burden fell
below the poverty level and 43 percent were receiving foods
stamps.
--California, Nevada, Rhode Island and Hawaii were the States with
the highest percentage of veterans with severe housing cost
burden. The District of Columbia had the highest rate, with 6.5
percent of veterans devoting more than 50 percent of their
income to rent.
We examined the characteristics of this group of veterans paying
too much for housing and we found the following.
--Veterans with a disability are more likely to have severe housing
cost burden. They are twice as likely to have a work disability
as other veterans (18 percent versus 9 percent). Similarly,
they are twice as likely to have a disability that limits their
mobility (20 percent versus 10 percent).
--Female veterans are more likely to have housing cost burdens.
Although women are only 7 percent of veterans, they represent
13.5 percent of veterans with housing cost burdens. And while
13 percent of them have housing cost burdens, only 10 percent
of male veterans have such burdens.
--Unmarried veterans are more likely to have cost burdens by a factor
of nearly two. Thirteen percent of veterans who do not have a
spouse have severe housing cost burden versus 7 percent of
those who are married.
--Period of service seems to matter. Veterans who left the military
between 1980 and 2003 are less likely than earlier veterans to
have housing cost burden. Somewhat surprisingly, older veterans
from the Korean War and World War II are more likely to have
housing cost burdens. These are comparisons of rate. By sheer
size, Vietnam War veterans make up the largest group of those
with housing cost burdens.
--In 2005, approximately 89,553 to 467,877 veterans were at risk of
homelessness. The lower estimate is renters with housing cost
burden, living below the poverty level, disabled, living alone,
and not in the labor force. The upper estimate is all renters
with housing cost burden.
Communities are working to end homelessness among veterans. Across
the country, thousands of stakeholders--policymakers, advocates,
researchers, practitioners, former and currently homeless people,
community leaders, and concerned citizens--have joined together to
create 10-year plans to end homelessness. While most plans are geared
toward ending homelessness among all people, including homeless
veterans, about 20 percent of the plans have strategies specifically
targeted to this group. These strategies include more aggressive
outreach targeted to veterans, greater coordination between local VA
and homeless service agencies, targeted rental subsidies for veterans
who are chronically homeless, permanent supportive housing that is
linked to mental health services, and other supports. While some
communities are making progress, challenges remain daunting.
THE CURRENT FEDERAL POLICY RESPONSE
So for nearly half a million veterans, current Federal efforts are
not creating a situation where housing is safe and affordable. The
primary responses of the Federal Government to the housing situation of
veterans are or have been the following programs targeted to veterans.
--Homeownership loan guarantees and retrofitting loans (for disabled
veterans) through the GI Bill of Rights. It should be noted
that these are relatively shallow forms of assistance and are
not generally adequate to assist lower income veterans to
become homeowners.
--Homeless programs providing temporary housing including shelter and
2-year transitional housing (funded through the Grant and Per
Diem Program, Domiciliary Care for Homeless Veterans Program,
Compensated Work Therapy/Veterans Industries program). These
programs do not currently meet need. For example, Grant and Per
Diem only funds 8,000 beds.
--HUD-VASH program providing permanent supportive housing with the
housing subsidy provided via the U.S. Department of Housing and
Urban Development (HUD) (this is the only HUD program targeted
directly to veterans) and the services provided by the VA.
Until last year this program funded fewer than 1,800 units, far
below need. The addition of 10,000 subsidies in the fiscal year
2008 appropriations act is a large and crucially important step
forward.
In addition, veterans are eligible for assistance through programs
not targeted to them specifically. Many veterans are served by the
homeless assistance programs, for example. However, these resources are
inadequate to meet the need. A recent analysis of HUD data
(Homelessness Counts, National Alliance to End Homelessness, January
2007) found that of the 744,313 people who were homeless in January
2005, an estimated 44 percent were unsheltered. Similarly, mainstream
housing subsidy programs at HUD, such as the public housing and section
8 Housing Choice Voucher programs, serve veterans. They are, as the
subcommittees are well aware, extremely over-subscribed and meet only a
fraction of the need.
The GI Bill homeownership and loan programs are available to all
who qualify for them. Of the remaining temporary and permanent housing
programs, none is funded adequately to meet the housing needs of all
low income or homeless veterans. Further, if a veteran is not able or
willing to become a homeowner, or is not homeless, there is no Federal
housing assistance targeted specifically to him or her.
NEEDED FEDERAL POLICY RESPONSE
Of all the population groups impacted disproportionately by
homelessness, veterans are the one where the Federal Government has
taken direct responsibility for the well-being of the entire group, as
it should be. The Federal Government, through the VA, is in a position
to set an example for how to safeguard a vulnerable population from
homelessness. At present, however, this is not being accomplished,
despite the programmatic initiatives above, and despite the fact that
sufficient understanding exists regarding the nature of homelessness
and the programmatic and policy responses needed to end it. The rest of
this testimony describes what is needed in order to complete this
response, and to reach a point where homelessness among veterans is not
only said to be intolerable, but is in fact not tolerated.
We know from research on homelessness that housing subsidy solves
the housing problem (and ends homelessness) for the majority of people,
notwithstanding that they may have service needs. For veterans who are
disabled or disabled and elderly, another part of the solution is
services designed to ensure housing stability. Housing affordability
and housing/services linkages can be addressed either piecemeal through
a variety of VA and HUD programs, or in a more comprehensive way by
ensuring veterans a housing benefit of some type.
The National Alliance to End Homelessness proposes the following
steps that the Federal Government could take to end the housing and
homelessness crisis among veterans.
A Mission of Ending Homelessness Among Veterans.--In order to truly
end homelessness among veterans and prevent its reoccurrence, there
must be people working in each community who regard it as their mission
to find every veteran who is homeless or about to become homeless, and
to do whatever is necessary immediately to find housing for that
individual or family. This sense of urgency, of immediate top-priority
crisis response, is lacking. The policy responses discussed below will
only have the desired effect if they are implemented locally with that
sense, with a clear designation of responsibility. The VA is well
positioned to take on this responsibility, should it be clearly
allocated by Congress.
Rapid Re-housing of Homeless Veterans.--Procedures should be
established within the VA to ensure its ability to rapidly re-house
veterans who have become homeless or are experiencing a housing crisis
that could lead to homelessness. For many homeless veterans, a rapid
re-housing approach will be all that is needed. Others may need interim
housing to address treatment or other needs, but re-housing assistance
should be available at discharge from these temporary housing programs.
VA should be funded to go to scale with these approaches.
--Rapid Re-housing.--VA caseworkers need to have control over
flexible resources to intervene when veterans are on the verge
of homelessness or when they are already homeless and do not
need intensive treatment or other services. Payment of back
rent, help with employment and benefits to improve incomes,
mediation with property owners or roommates, or assistance with
searching for new living options are among the services that
need to be available. Outreach to veterans needs to take place
to ensure that they know about available resources. This model
is increasingly used by homeless service providers, with strong
results obtained at costs of around $2,000 (one-time) per
household.
--Temporary Housing/Services and Re-housing.--For veterans whose
disabilities are not so severe that they need permanent
supportive housing, but who do need a stable living situation
combined with supportive services for a period of time up to 2
years, transitional housing is a successful model. It is
especially effective for homeless veterans who are working to
overcome addiction. The Homeless Grant and Per Diem program
provides VA funds to nonprofits to run transitional housing for
homeless veterans. The program has achieved positive results.
It is not, however, funded at a level sufficient to meet the
need, as demonstrated in a recent GAO study. Congress should
increase funding to $200 million for fiscal year 2009.
--Recommendation.--Ensure that VA has the resources to rapidly re-
house veterans who are at risk of homelessness or actually
homeless, either immediately or after transition, by
providing them with adequate resources to meet this need.
Increase funding for the Homeless Grant and Per Diem
program to meet the need.
Assess Housing Status at Discharge and Thereafter, and Respond if
There is a Problem.--Our analysis shows that a high number of veterans
are at risk of homelessness. As part of the process of exiting the
military, addressing housing status will help to smooth the transition
to stable housing, and prevent homelessness.
Everyone leaving active duty should be assessed as to their housing
status, including their risk of homelessness. All should receive basic
information about housing and the resources available through the VA.
The VA, in turn, should have housing relocation assistance available,
including housing locator services and flexible financial resources
(see rapid re-housing above). For those veterans who have
characteristics associated with risk of homelessness (disability,
previous homelessness experience, lack of discharge address, lack of
income, etc.), more extensive discharge planning should be provided,
including the ability to link veterans to housing subsidy programs,
procure placements in supportive housing, and/or link to local VA
offices with the capacity to ensure follow-up support for stable
housing.
This needs to be repeated when low-income veterans seek medical or
other services from the VA. In addition, the VA should continue and
expand efforts to publicize these resources in communities, so that
wherever a veteran experiencing a housing crisis may appear, he or she
will be directed to homelessness prevention programs at the VA.
--Recommendation.--All veterans exiting service and at key point
thereafter should be assessed as to their housing status, and
the VA should have well-publicized resources to assist veterans
to access housing.
Permanent Supportive Housing.--For disabled low income veterans who
require on-going services in order to stay stably housed, permanent
supportive housing is a proven solution. This strategy combines
affordability with decent housing and services designed to ensure
stability. There are many models of permanent supportive housing, both
scattered-site and single-site. Some focus only on veterans; others mix
veteran and non-veteran populations. Veterans should be able to choose
among different models.
Permanent supportive housing can provide a housing solution for
disabled veterans regardless of income. However, its success in ending
homelessness for people (including veterans) who have been chronically
homeless has been particularly well documented. Our report estimates
that there were 44,000 to 66,000 chronically homeless veterans in 2005.
Research indicates that they could be cost effectively served with
permanent supportive housing, and that the investment in such housing
would be offset by reduced medical and treatment costs. Supportive
housing for homeless and low income veterans requires funding for
operating costs, services, and capital costs.
--Operating Costs.--The existing HUD-VA Supportive Housing program
(HUD-VASH) provides rent vouchers from HUD for homeless
veterans, combined with treatment, case management and
supportive services from the VA. This program has demonstrated
housing stability for veterans with the most severe
disabilities. The fiscal year 2008 T-HUD appropriation bill
provided $75 million for this purpose, enough to house
approximately 10,000 veterans. The President's budget for
fiscal year 2009 called for an additional $75 million next
year. HUD-VASH is an ideal vehicle for funding operating costs,
either in dedicated buildings or in scattered-site approaches
renting from private landlords. A continued commitment to
increasing funding will have a substantial impact on
homelessness among veterans with severe disabilities.
--Services.--The HUD-VASH program requires that the VA have resources
available to provide the case management, treatment and support
services that are a key part of this intervention. Funded
through VA Health Care, an amount approximately equal to the
appropriation from HUD will be necessary.
Additionally, a number of bills over the past two years have
sought to authorize the VA to provide grants to nonprofit
community-based organizations to provide supportive services to
veterans with the lowest income who are now in permanent
housing (including those who have been homeless). Finally, the
Services for Ending Long-Term Homelessness Act, S. 593, would
provide funding for this purpose for all homeless people
including veterans. VA mainstream and other service resources
will be required to go to scale with this strategy.
--Capital Costs.--To the extent that supportive housing for veterans
requires the production of new housing stock or the
rehabilitation of existing buildings that are not fit for
habitation, there is a need for an authorized program to
provide capital funds. Programs such as the National Affordable
Housing Trust Fund might provide resources in this regard.
--Recommendation.--Provide the 44,000 to 66,000 permanent
supportive housing units that are needed to meet the
housing needs of chronically disabled, chronically homeless
veterans. Additional permanent supportive housing units
should be provided to meet the needs of disabled veterans
more broadly, including those who are serving in Iraq and
Afghanistan at present. Operating subsidies, services
funding and capital are required to provide these units.
Over the next 5 years, 10,000 units per year could provide
housing for every veteran who has been on the streets for
years.
More Housing Options.--It is crucial that Federal resources focus
on veterans who are homeless now, and on those who are on the brink of
falling into homelessness. At the same time, this problem requires a
commitment that decent housing will be something that all veterans can
count on. Access to permanent housing is consistently the number one
service need identified by those concerned with homeless veteran issues
(VA staff, community providers, local government agencies, public
officials, and former and currently homeless veterans themselves).
Further, reports indicate that veterans returning from Iraq and
Afghanistan are seeking help with housing sooner than past cohorts of
veterans.
While the strategies above are workable, they are essentially
piecemeal in nature; deliver assistance in some part by setting aside
resources in current HUD or VA programs, running the risk of assisting
homeless veterans at the expense of other needy groups; and are subject
to annual appropriations, sometimes from various sources.
Congress could cut to the heart of the problem and provide
comprehensive housing assistance to all veterans who need it, or to
some subset of veterans such as those with disabilities. Such
assistance could be provided through the VA or through HUD. It could be
used for either rental housing or homeownership.
--Recommendation.--Provide all low income veterans with a means-
tested housing benefit. Alternatively, provide all disabled
veterans with a housing benefit.
CONCLUSION
I am not happy to report that our Nation now has some 20 years of
experience on the issue of homeless veterans. We know that while some
veterans become homeless immediately after discharge, for many more
their difficulties may take years to emerge. We know that post-
traumatic stress disorder, traumatic brain injuries and other factors
of war may make them vulnerable to increasing poverty and housing
problems. And we know that housing and supportive housing are a
solution to these problems.
Tens of thousands of veterans will be returning from Iraq and
Afghanistan. As we would expect, they have not yet begun to become
homeless in large numbers, probably due to the delayed impact of combat
service on homelessness. So while even one homeless veteran is too
many, the VA reports that several hundred veterans from the current
conflicts have used VA homeless services, and that just over 1,800 such
veterans are at risk of homelessness. Hopefully, these numbers will
remain small, but we fear that they will not. If we do not take
advantage of all that we have learned about solutions to homelessness,
in the future we can expect to see thousands more veterans on our
streets and in our shelters.
We have a tremendous opportunity before us, and one that these
subcommittees have begun to seize. There is unprecedented public will
that we not make the same mistakes with the veterans of the current
conflicts as we did with veterans from the Vietnam era and after, and
that we do whatever is necessary to prevent these veterans being
consigned to the streets. That same public will gives us an opportunity
as well to rectify those previous mistakes, and house veterans who have
lived in the street for years. Now is the time to be bold. We can
prevent veterans from becoming homeless. We can house those veterans
who are already homeless. And we can ensure that all veterans,
including those with low incomes, have stable, decent and affordable
housing. This is our vital mission.
Thank you for inviting us to testify before you today on this
critical issue.
Senator Murray. Thank you very much, Mr. Berg.
Mr. Weidman.
STATEMENT OF RICHARD WEIDMAN, EXECUTIVE DIRECTOR FOR
POLICY AND GOVERNMENT AFFAIRS, VIETNAM
VETERANS OF AMERICA
Mr. Weidman. Thank you very much, Madam Chair, Senator
Bond, Chairman Johnson, Senator Reed, for the opportunity to
testify here today.
Many of us feel that we know what needs to be done and have
felt that way for a long time. It will be 22 years this year
since the first hearing on homeless veterans on Capitol Hill
that was chaired by Tom Daschle in his last official act as a
Member of the House on the House Veterans Affairs Committee,
Subcommittee on Memorial Affairs and Housing. And it has
basically not changed. Basically you have one-third of the
homeless veterans who have organic mental illness or PTSD as a
predominant problem, roughly one-third who have substance abuse
that may involve some other kind of mental illness as the
dominant problem, and about one-third who are basically just
disenfranchised and may be part of the working poor. They lost
a slim purchase on the lower middle class and they were out on
the street. It is really hard to find a job when you are on the
street without assistance. And that is where a number of these
other programs come in.
VVA, as a member of the National Coalition for Homeless
Veterans, would like to associate ourselves with the eloquent
remarks of Ms. Beversdorf, and we also favor strongly raising
the homeless Grant and Per Diem Program to $200 million next
year and perhaps beyond that, as need dictates, in the future.
Obviously, the authorization will have to increase in order to
increase the appropriation.
Similarly, the Homeless Veterans Reintegration Program is
the most cost effective, cost efficient program administered by
the U.S. Department of Labor. It works. It works to get
veterans back on the tax roll, and it continues to be a
puzzlement why the HVRP program is not funded at the full $50
million because it is an extremely effective use of our funds
to help veterans, particularly that last third I mentioned
before, get off the street and stay off the street.
Similarly, the VWIP, or the Veterans Workforce Improvement
Program that is a non-statutorily authorized program, we
believe needs to be authorized and funded, and similarly, the
Disabled Veterans Lifeline Program that was an administrative
initiative that is a tiny program needs to be authorized and
funded and have adequate oversight.
In regard to the Homeless Grant and Per Diem, we need
prospective payments for the community-based organizations.
Right now it is set up on a retrospective reimbursement, and
very few community-based organizations have the money up front
to work to receive the full $33 in reimbursement that they can
receive. And so how do you get there if you do not have the up-
front money? And that is a significant problem for the
community-based organizations that are usually far and away the
most prepared to serve this population in a cost efficient
manner.
We also need staffing money for HUD's Shelter Plus Grants,
and that may be somewhat alleviated by S. 2273 introduced by
Senator Akaka that would provide operational dollars for
permanent housing. We are not certain whether or not that does
include the Shelter Plus program as one of the target programs
that would be covered by that, but it needs to happen.
Expansion of the vet center staff, Senator Bond, we are
grateful to you for your efforts to open up the vet centers to
active duty, but they need more staff. In many areas,
particularly those who are not near a VA medical center, the
only homeless program operated by VA in those areas, in rural
areas of Missouri or Washington or whichever State, certainly
in South Dakota, the vet center is it, and they need more staff
to serve the population base that they are already serving.
While we would favor them serving the active duty people, they
need more staff in order to serve who they have got now.
Veterans need to be defined as a special needs program, and
in regard to the consolidation program that, Senator Reed, that
you and Senator Allard talked about, if you do not write
veterans in specifically, I can assure you they will be read
specifically out at the local and State level. That has proven
true of all employment programs right across the country and
has remained true for the last 20 years. So we encourage you to
write it in specifically that proportional dollars need to go
to veteran assistance programs.
I am out of time, and I want to thank you, Senator Murray,
for your women veterans bill because that will help
significantly. As you stated in your opening statement, the
fastest rising subset is the homeless women veterans.
But we would ask that this committee join with the
authorizers to require the tracking and reporting of veteran
status. Much has been made of the 154,000 estimate, but that is
just a guess. This is just a best guess, and nobody really
knows because homeless veterans move around, and we do not even
know for sure how many veterans are utilizing Federal or
federally funded programs, so better tracking and reporting is
absolutely necessary.
PREPARED STATEMENT
Last, I want to thank you, Senator Murray and Senator Bond,
for increasing the HUD-VASH certificates to the $75 million,
and last--hopefully we can talk about this in the questions--we
need permanent housing because you cannot transition--it is
supposed to be just that, transitional housing. And you have to
have something to transition to. Without permanent housing for
these low income veterans, they cannot transition anywhere. So
I hope we deal with that in the questions.
Thank you all very much.
[The statement follows:]
Prepared Statement of Richard Weidman
Good morning Madam Chairwoman Murray, Ranking Member Bond, and
distinguished members of this subcommittee. Thank you for giving
Vietnam Veterans of America (VVA) the opportunity to offer our comments
on Housing Our Heroes, Addressing the Issues of Homeless Veterans in
America.
Homelessness continues to be a significant problem for veterans
especially men and women veterans who served during the Vietnam era.
The VA estimates about one-third of the adult homeless population have
served their country in the Armed Services. Current population
estimates suggest that about 154,000 veterans are homeless on any given
night and perhaps twice as many experience homelessness at some point
during the course of a year. Of that number about 4-5 percent are women
veterans with VA reporting that of the new homeless veterans this is as
high as 11 percent for woman veterans.
Homelessness has varied definitions and many contributing factors.
Among these are PTSD, a lack of job skills and education, substance
abuse and mental-health problems. The homeless require far more than
just a home. A comprehensive, individualized assessment and a
rehabilitation/treatment program are necessary, utilizing the
``continuum of care'' concept. Assistance in obtaining economic
stability for a successful self-sufficient transition back into the
community is vital. Although many need help with permanent housing,
some require housing with supportive services, and others need long-
term residential care.
VA HOMELESS GRANT & PER DIEM PROGRAM
The VA's Homeless Grant & Per Diem Program has been in existence
since 1994. Since then, thousands of homeless veterans have availed
themselves of the programs provided by community-based service
providers. In some areas of this country, the VA and community-based
service providers work successfully in a collaborative effort to
actively address homelessness among veterans. The community-based
service providers are able to supply much needed services in a cost-
effective and efficient manner. The VA recognizes this and encourages
residential and service center programs in areas where homeless
veterans would most benefit. The VA HGPD program offers funding in a
highly competitive grant round. VA credits HGPD and VA outreach for the
drop on the number of homeless veterans from 250,000 a few years ago to
the recent suggestion this statistic could be as low as 154,000. VVA
also believes that the expansion of the Homeless Veterans Reintegration
Program (HVRP), used in tandem with the above cited programs, has
helped homeless veterans and formerly homeless veterans get and keep
employment, thus stabilizing their financial and emotional situation,
enabling them to keep off the street.
However, VVA and providers are concerned that the impact of
homelessness on our new generation of veterans could cause this to
increase significantly, as could the rising unemployment rate. Because
financial resources available to HGPD are limited, the number of grants
awarded and the dollars granted are greatly restricted by inadequate
resources, and hence many geographic areas in need suffer a loss that
HGPD could address if it were funded at a higher level.
It has been VVA's position that VA Homeless Grant and Per Diem
funding must be considered a payment rather than a reimbursement for
expenses, an important distinction that will enable the community-based
organizations that deliver the majority of these services to operate
more effectively. Not all non-profit agency homeless veteran programs
receive full per diem which is now at $33.01/day/veteran. They must
justify the need for per diem reimbursement based on the program
expenses. Since justification of for an increased per diem request is
based on the last annual audit of the program expenses, the non-profit
must over spend money, which it does not have in order to increase the
program expense in order to get the increased per diem to actually fund
their programs adequately and with appropriate staffing levels.
Per diem dollars received by homeless veteran services centers is
so low that these centers cannot obtain or retain appropriately skilled
staffing to provide services to properly support the special needs of
the veterans seeking assistance. Per diem for service centers is
provided on an hourly rate, currently only $4.12 per hour. The reality
is that most city and municipality social services do not have the
knowledge or capacity to provide appropriate supportive services that
directly involve the treatment, care, and entitlements of veterans.
Lost HUD funding via its ``Supportive Services Only'' grants have
increased the urgency of these service centers to find alternate
funding. VVA believes that it is possible to create ``Service Center
Staffing'' grants, much like the VA ``Special Needs'' grants, already
in existence. The VA's Grant and Per Diem program is effective in
creating and aiding local shelters by providing transitional housing,
vocational rehabilitation, and referrals for clinical services.
VVA is recommending that Congress go above the authorizing level
for the Homeless Grant and Per Diem program and fund the program at
$200 million and not the $138 million currently authorized.
Additionally, VVA supports and seeks legislation to establish
Supportive Services Assistance Grants for VA Homeless Grant and Per
Diem Service Center Grant awardees.
VA HOMELESS DOMICILIARY PROGRAMS
Domiciliary programs located within various medical centers
throughout the VA system have proven costly. As stand-alone programs,
many do not display a high rate of long-term success. Additionally, not
all VISNs have Homeless Domiciliary programs.
Programs assisting homeless veterans need to show a cost/benefit
ratio in order to survive. Due to the Federal pay scales and other
indirect cost factors, VA Homeless Domiciliary programs generally cost
twice as much per homeless veteran participant (often over $100 per day
per veteran) as compared to the cost of the similar programs of
community-based organizations. If the operational cost of the VA
Homeless Domiciliary program is to be justified, then an assurance of
success, including a diminished rate of recidivism, should be expected.
This is not always the case, and is especially true if the veteran has
no linked transitional residential placement at time of discharge. A
linkage with non-profit community programs will enhance outcomes in a
cost-effective manner and openly speak to the belief in the ``continuum
of care'' concept embraced by the VA. HGPD has increased transitional
placement possibilities in a number of areas, but more are desperately
needed. Hence, the re-statement of the need for increased funding for
HGPD.
Where no VA Homeless Veteran Domiciliary exists, VVA urges the VA
to form an active linkage with community-based organizations for
extended homeless veteran transitional services at the conclusion of VA
Homeless Domiciliary care.
HOMELESS VETERANS SPECIAL NEEDS
Veterans are disproportionately represented among the homeless
population, accounting, according to most estimates, for one in three
homeless adult persons on any given night--and roughly 400,000 veterans
over the course of a year. Federal agencies that have the
responsibility of addressing this situation, particularly the
Departments of Veterans Affairs, Labor, and Housing and Urban
Development must work in concert, and should be held accountable for
achieving clearly defined results. In some cases, Federal agencies deal
inappropriately, without sensitivity to the particular needs and issues
of the homeless and because homeless veterans have unique issues
surrounding their military experiences, we consider them a ``Special
Needs Population''. Until homeless veterans achieve status as a
``Special Needs Population'' through legislative action, monies
earmarked by Congress to combat homelessness will fail to reach
programs specifically designated for these veterans.
VVA urges the Presidential Interagency Council on Homeless to
recognize homeless veterans as a Special Needs Population. Further, we
urge Congress to require all entities/agencies, including non-profit
and governmental, that receive Federal program funding dollars, to
specifically track and report statistics on the number of veterans they
serve, their residential status, and the services needed and provided.
Without this cooperation and requirement, how does anyone ``guess'' at
the number of veterans in the homeless population? Additionally, VVA
supports legislation that would incorporate a ``fair share'' dollar
approach for the Federal funding of all homeless programs and services
to specifically target homeless veterans.
WOMEN VETERANS AND HOMELESS WOMEN VETERANS
Women comprise a growing segment of the Armed Forces, and thousands
have been deployed to Iraq and Afghanistan. This has particularly
serious implications for the VA healthcare system because the VA itself
projects that by 2010, over 14 percent of all veterans utilizing its
services will be women.
Women's health care is not evenly distributed or available
throughout the VA system. Although women veterans are the fastest
growing population within the VA, there remains a need for an increased
focus on health care and its delivery for women, particularly the new
women veterans of today. Although VA Central Office may interpret
women's health services as preventive, primary, and gender-specific
care, this comprehensive concept remains ambiguous and splintered in
its delivery throughout all the VA medical centers. Many at the VHA
appear (unfortunately and wrongly) to view women's health as only a GYN
clinic. It certainly involves more than gynecological care. In reality,
women's health is viewed as a specialty unto itself as demonstrated in
every University Medical School in the country.
Furthermore, some women continue to report a less than
``accepting,'' ``friendly,'' or ``knowledgeable'' attitude or
environment both within the VA and/or by third party vendors. This may
be the result, at least in part, of a system that has evolved
principally (or exclusively) to address the medical needs of male
veterans. But reports also indicate that in mixed gender residential
programs, women remain fearful and unsafe.
The nature of the combat in Iraq and Afghanistan is putting service
members at an increased risk for PTSD. In these wars without fronts,
``combat support troops'' are just as likely to be affected by the same
traumas as infantry personnel. They are clearly in the midst of the
``combat setting''. No matter how you look at it, Iraq is a chaotic war
in which an unprecedented number of women have been exposed to high
levels of violence and stress as more than 160,000 female soldiers have
been deployed to Iraq and Afghanistan . . . This compared to the 7,500
who served in Vietnam and the 41,000 who were dispatched to the Gulf
War in the early 1990s. Today, nearly 1 of every 20 U.S. soldiers in
Iraq/Afghanistan is female. The death and casualty rates reflect this
increased exposure.
With 15-18 percent of America's active-duty military being female
(20 percent of all new recruits) and nearly half of them have been
deployed to Iraq and/or Afghanistan, there are particularly serious
implications for the VA healthcare system because the VA itself
projects that by 2010, more than 14 percent of all its veterans will be
women, compared with just 2 percent in 1997. Although the VA has made
vast improvements in treating women since 1992, returning female OIF
and OEF veterans in particular face a variety of co-occurring ailments
and traumas heretofore unseen by the VA healthcare system.
There have been few large-scale studies done on the particular
psychiatric effects of combat on female soldiers in the United States,
mostly because the sample size has heretofore been small. More than
one-quarter of female veterans of Vietnam developed PTSD at some point
in their lives, according to the National Vietnam Veterans Readjustment
Survey conducted in the mid-1980s, which included 432 women, most of
whom were nurses. (The PTSD rate for women was 4 percent below that of
the men.) Two years after deployment to the Gulf War, where combat
exposure was relatively low, Army data showed that 16 percent of a
sample of female soldiers studied met diagnostic criteria for PTSD, as
opposed to 8 percent of their male counterparts. The data reflect a
larger finding, supported by other research that women are more likely
to be given diagnoses of PTSD, in some cases at twice the rate of men.
Matthew Friedman, Executive Director of the National Center for PTSD, a
research-and-education program financed by the Department of Veterans
Affairs, points out that some traumatic experiences have been shown to
be more psychologically ``toxic'' than others. Rape, in particular, is
thought to be the most likely to lead to PTSD in women (and in men,
where it occurs). Participation in combat, though, he says, is not far
behind.
Much of what we know about trauma comes primarily from research on
two distinct populations--civilian women who have been raped and male
combat veterans. But taking into account the large number of women
serving in dangerous conditions in Iraq and reports suggesting that
women in the military bear a higher risk than civilian women of having
been sexually assaulted either before or during their service, it's
conceivable that this war may well generate an unfortunate new group to
study--women who have experienced sexual assault and combat, many of
them before they turn 25.
Returning female OIF and OEF troops also face other crises. For
example, studies conducted at the Durham, North Carolina Comprehensive
Women's Health Center by VA researchers have demonstrated higher rates
of suicidal tendencies among women veterans suffering depression with
co-morbid PTSD. And according to a Pentagon study released in March
2006, more female soldiers report mental health concerns than their
male comrades: 24 percent compared to 19 percent.
VA data showed that 25,960 of the 69,861 women separated from the
military during fiscal years 2002-2006 sought VA services. Of this
number approximately 35.8 percent requested assistance for ``mental
disorders'' (i.e., based on VA ICD-9 categories) of which 21 percent
was for post traumatic stress disorder or PTSD, with older female vets
showing higher PTSD rates. Also, as of early May 2007, 14.5 percent of
female OEF/OIF veterans reported having endured military sexual trauma
(MST). Although all VA medical centers are required to have MST
clinicians, very few clinicians within the VA are prepared to treat co-
occurring combat-induced PTSD and MST. These issues singly are ones
that need address, but concomitantly create a unique set of
circumstances that demonstrates another of the challenges facing the
VA. The VA will need to directly identify its ability and capacity to
address these issues along with providing oversight and accountability
to the delivery of services in this regard. All of these issues,
traumas, stress, and crises have a direct effect on the women veterans
who find themselves homeless. Early enactment of Senator Murray's bill
on women veterans currently pending in the Senate will do much to
rectify this situation, and VVA commends her for her leadership in this
and other matters of vital interest to veterans.
Although veterans make up about 11 percent of the adult population,
they make up 26 percent of the homeless population. Of the 154,000
homeless veterans estimated by the VA, women make up 4 percent of that
population. Striking, however, is the fact that the VA also reports
that of the new homeless veterans more than 11 percent of these are
women. It is believed that this dramatic increase is directly related
to the increased number of women now in the military (15 percent-18
percent). About half of all homeless veterans have a mental illness and
more than three out of four suffer from alcohol or other substance
abuse problems. Nearly 40 percent have both psychiatric and substance
abuse disorders. Homeless veterans in some respects make use of the
entire VA as do any other eligible group of veterans. Therefore all
delivery systems and services offered by the VA have an impact on
homeless veterans. Further, the failure of the Department of Labor
system to provide needed employment assistance in a nationwide
accountable manner to many veterans means they lose their slim purchase
on the lower middle class, and therefore end up homeless. Once
homeless, it becomes very difficult for these veterans to find
employment for a multiplicity of reasons.
The VA must be prepared to provide services to these former
servicemembers in appropriate settings.
One of the confounding factors with homeless women veterans is the
sexual trauma many of them suffered during their service to our Nation.
Few of us can know the dark places in which those who have suffered as
the result of rape and physical abuse must live every day. It is a very
long road to find the path that leads them to some semblance of
``normalcy'' and helps them escape from the secluded, lonely, fearful,
angry corner in which they have been hiding.
Not all residential programs are designed to treat mental health
problems of this very vulnerable population. In light of the high
incidence of past sexual trauma, rape, and domestic violence, many of
these women find it difficult, if not impossible, to share residential
programs with their male counterparts. They openly discuss their
concern for a safe treatment setting, especially where the treatment
unit layout does not provide them with a physically segregated, secured
area. In light of the nature of some of their personal and trauma
issues, they also discuss the need for gender-specific group sessions,
The VA requests that all residential treatment areas be evaluated for
the ability to provide and facilitate these services, and that medical
centers develop plans to ensure this accommodation.
While some facilities have found innovative solutions to meet the
unique needs of women veterans, others are still lagging behind. VVA
believes that to adequately serve this growing population of women
veterans, before it overpowers the ``women veteran challenged'' system
that already exists, more funding is required. We recommend a minimum
of an additional $10 million in funding over fiscal year 2008.
HUD-VASH
In 1992, the VA joined with HUD to launch the HUD-VASH program. HUD
funded almost 600 vouchers for this program. Through the end of fiscal
year 2002, 4,300 veterans had been served by the program, and had
participated for an average of 4.1 years. Of veterans enrolled in the
program, 90 percent successfully obtained vouchers and 87 percent moved
into an apartment of their own. This partnership highlights the success
of linking ongoing clinical care to permanent housing to assist
homeless chronically mentally ill veterans. This program was given
additional HUD-VASH vouchers with the passage of Public Law 107-95,
which authorized 500 HUD/VASH vouchers in fiscal year 2003, 1,000 in
fiscal year 2004, 1,500 in fiscal year 2005, and 2,000 in fiscal year
2006. The program was reauthorized under section 710, Rental Assistance
Vouchers for Veterans Affairs Supported Housing Program, with the
passage of Public Law 109-461, which authorized 500 vouchers for fiscal
year 2007, 1,000 vouchers for fiscal year 2008, 1,500 vouchers for
fiscal year 2009, 2,000 vouchers for fiscal year 2010 and 2,500
vouchers for fiscal year 2011.
VVA applauds the Senate Appropriations Committee for having funded
$75 million for the HUD-VASH Program in Public Law 110-161. The
vouchers created by this funding will prove paramount in addressing the
permanent housing needs of our less fortunate veterans. By allocating
this funding, Congress has given providers the greatest tool possible
in our fight to end homelessness among our veterans. VVA supports the
fiscal year 2009 appropriations request from the Department of Housing
and Urban Development for $75 million, which will provide an additional
10,000 vouchers. If enacted into law, some 20,000 vouchers will now be
available to assist homeless veterans. VVA urges this subcommittee to
reach out to your colleagues and request their support of these
vouchers.
HOMELESS VETERAN HUD TRANSITIONAL AND SUPPORTIVE SERVICES ONLY FUNDING
There continues to exist today, limited, if any, access to
transitional residential and supportive service only dollars within the
HUD Super NOFA grant proposal process. Supportive services are vital in
the successful reintegration of our homeless veterans back to the
community. There are currently no staffing dollars allocated for the
provision of supportive services, to include case management, to those
individuals in Shelter-Plus Care programs, for example. These case
management services are key in providing the veterans with a support
system to assist them with working into and through the system.
HUD is silently (but effectively) discouraging McKinney-Vento
funding for transitional housing and ``supportive services only''
programs with the request to city and municipalities continuum of care
for a 30 percent set aside of the grant dollars going for permanent
housing only. In the national competition for the McKinney-Vento
funding, many cities are requesting and accepting only new proposals
for permanent housing, renewals on some transitional housing programs,
and the elimination of ``Supportive Services Only'' programs
altogether, in order to remain HUD NOFA competitive. This situation
adversely affects those seeking funding for new transitional housing.
An additional effect of this situation is to also eliminate a potential
match for VA Homeless Grant and Per Diem (HGPD) grant proposals. VA
will lose a financially effective and efficient resource for providing
assistance to veterans who are homeless if non-profit agencies lose the
ability to obtain HUD McKinney-Vento grants for transitional programs.
This has significant impact in light of the lack of fair-share Federal
funding for homeless veterans. These successful non-profit agencies
have reduced recidivism, shortened the length of VA in-patient stay,
hence reducing the cost of treatment programs.
The decreasing desire of HUD to fund Supportive Services programs;
the disincentives placed by HUD on cities to renew the McKinney-Vento
``Supportive Services Only'' programs; the impact that lost supportive
service programs will have on the local social service system is
creating the slow but inevitable demise of front line service centers.
This will ultimately have a domino effect on the continuum of care
model.
Drop-in centers are one type of program that utilize homeless
grants for what is known as ``Supportive Services Only'' (SSO) funding.
HUD funds these SSO programs via the local agency's inclusion on their
city's priority list for its annual HUD McKinney-Vento submission. When
originally funded, an agency was required to commit to a 20-year
operational program. SSO programs targeting homeless veterans are
included in this evolving funding atmosphere. Our question is: To what
extent are the cities responsible for the continued renewals of
programs that were previously vital to the local continuum? Or what
consideration should be given by Federal agencies to make up for this
forced local change initiated by them?
Non-profit agencies were required to make long term commitments
when they were originally funded. Many received building construction
rehab funding. They were led to believe they are a crucial component
and partner to the comprehensive approach to the elimination of
homelessness. To suggest the non-profits find alternate funding in
order to continue and satisfy a commitment of 20 years seems
unrealistic in light of the very limited grant funding available for
these types of programs. Many, though successful in meeting all goal
and benchmarks, have been sliced from city McKinney-Vento funding,
thereby being left with a huge (for them) program commitment, no
continuing funding stream, and a large debt to HUD for funds awarded on
the original grant because they can't meet the 20 year commitment. Most
will lose staff. Some may even lose their property or be forced to
close their doors due to this circumstance. These non-profit agency
programs are the life-line of not only the agency's homeless clients,
but also some of the city social service agencies that depend on the
agency to assist with clients in an already over-burdened local service
system.
At a time when the big push is on permanent housing for the
homeless, with wraparound supportive services, is it logical to
eliminate these programs on the community level? In light of this
situation, and as a logical fit, in addition to the earlier suggestion
of ``Special Service Center'' grants from the HGPD program, VVA
believes it is time for the Department of Health and Human Services
(HHS) to enter this arena. We urge this subcommittee to encourage HHS
to work with the VA in establishing a unique partnership, creating a
joint program in an effort to provide enhanced opportunities to
homeless veterans. VVA urges a continuing dialogue between these two
agencies to reach a viable option to the situation that is facing the
non-profits gravely concerned about their own potential demise. What a
terrible loss this would be to the structure of community involvement
that has been so encouraged.
SHELTER PLUS CARE (S+C)
The Shelter Plus Care (S+C) program is authorized under subtitle F
of the McKinney-Vento Homeless Assistance Act. Since 1992, HUD has
awarded Shelter Plus Care (S+C) funds to serve a population that has
been traditionally hard to reach--homeless persons with disabilities
such as serious mental illness, chronic substance abuse, and/or AIDS
and related diseases. The S+C program was built on the premise that
housing and services need to be connected in order to ensure the
stability of housing for this population. Consequently, S+C provides
rental assistance that local grantees must match with an equal value of
supportive services appropriate to the target population. The purpose
of the program is to provide permanent housing in connection with
supportive services to homeless people with disabilities and their
families. The primary target populations are homeless people who have:
serious mental illness; and/or chronic problems with alcohol, drugs or
both; and/or acquired immunodeficiency syndrome (AIDS) or related
diseases. The goals of the Shelter Plus Care Program are to assist
homeless individuals and their families to: increase their housing
stability; increase their skills and/or income; and obtain greater
self-sufficiency. Funding for new S+C projects is awarded competitively
through HUD's Continuum of Care process to eligible applicants: States,
units of local government and public housing authorities (PHAs).
Successful applicants become ``grantees'' once the S+C grant agreement
is fully executed. The program provides rental assistance for a variety
of housing choices and minimal administrative dollars.
While shelter plus Care is a program of great advantage for dual
diagnosed individuals because of the wrap-around services that it
requires, it does not provide any resources for these services. In
terms of its history, it is well over 16 years old when one takes into
account the time prior to 1992 when its guidelines, policies, and
criteria were formulated. It is a fairly aged program and not much has
changed over time . . . except much has changed.
The reporting, tracking, oversight, Annual Progress Reports (APR),
and audit requirements that HUD has placed on the non-profit agencies,
who have been awarded S+C programs, have grown over time. To some
extent this is due to the oversight that Congress rightly demands of
Federal agencies to ensure that those placed in these programs are
being assisted in an appropriate fashion with positive outcomes. The
dilemma for non-profits is not that the case management, reporting,
tracking and audits must be done, it rests with the fact that with no
program operational funding the non-profit agency is burdened with the
labor intensive organizational HUD program requirements of oversight,
tracking and reporting, not to mention the case management of all those
in the program. Case management alone is challenging due to the dual
diagnosed client base that is served by this essential permanent
housing program. For many of these clients it is the only permanent
independent housing program in which they will ever be able to survive.
Case management is an essential element to the success of these
individuals, not to mention the program itself. But the staffs of non-
profit agencies are salaried through program grants and donations. With
no S+C operational program funding these non-profits must utilize
already over taxed staff in order to satisfy the case management
requirements of its S+C programs. They are being slowly strangled.
What is unusual about this shortfall in S+C program operational
funding is that when one investigates the HUD Supported Housing Program
(SHP) Leasing grants one finds that for the client base in a program
that essentially functions the same way as S+C, the non-profit is able
to receive operational funding. This for a program whose client
eligibility is less dependent and less challenged than that of the dual
diagnosed, disabled S+C program clients.
It is the sense of Vietnam Veterans of America that this
subcommittee should review the S+C program and determine if it is not
reasonable to infuse program operational funding into the format of
this necessary and vital housing program that is for some the only
permanent housing in which they may ever be capable of living . . . the
only place they can call home . . . a place they hold precious . . . a
place that they don't have to share with anyone else. Without
operational funding assistance to the non-profit agencies that strive
to keep S+C alive this program will soon die due to the burden that is
being placed on them. VVA realizes that S+C is not specific to
veterans.
However, homeless veterans comprise up to one quarter of the
homeless population, which draws one to conclude that veterans
certainly are among those in S+C programs. It is also known that in
some areas, especially in larger cities, there are non-profits that
operate S+C exclusively for veterans. Again, VVA urges this
subcommittee to readdress the confines of this supportive housing
program to allow operational funding for HUD Shelter Plus Care programs
in order to keep this essential program alive. Without this additional
assistance and program alteration, thousands will lose the only
permanent housing they may ever have, and again be forced to return to
the state of homelessness. S+C is their salvation. In these times when
affordable permanent housing is so critical and at a minimum . . . in
these times when the emphasis of HUD and homeless advocates is on
permanent housing . . . in these times when so many of the homeless are
chronic and disabled are dependent on this program . . . it is crucial
that you investigate this matter and bring relief to the not for profit
agencies who are drowning in an attempt to do the right thing.
PERMANENT HOUSING NEEDS FOR LOW-INCOME VETERANS
Although the Federal Government makes a sizeable investment in
homeownership opportunities for veterans, there is no parallel national
rental housing assistance program targeted to low-income veterans.
Veterans are not well served through existing housing assistance
programs due to their program designs. Low-income veterans in and of
themselves are not a priority population for subsidized housing
assistance. (This is despite the fact that most of these programs were
created after World War II with veterans as the primary target
population!) And HUD devotes minimal (if any other than slight lip
service) attention to the housing needs of low-income veterans. This
has been made abundantly clear by the long-standing vacancy for special
assistant for veterans programs within the Office of Community Planning
and Development. It is imperative that Congress elevate national
attention to the housing assistance needs of our nation's low-income
veterans.
Public Law 105-276, The Quality Housing and Work Responsibility Act
of 1998 under title III, permanently repealed Federal preferences for
public housing and allowed the Public Housing Authority to establish
preference for low-income veterans applying for public housing. In
accordance with the GAO report, ``Rental Housing Information on Low-
Income Veterans Housing Condition and Participation in HUD's
Programs,'' only a few of the PHAs surveyed were using veterans'
preference criteria to assist low income veterans with housing. VVA has
found no mention of these guidelines in any of the 5-year plans issued
by the PHAs since the law was passed in 1998, which means HUD is once
again creating homeless veterans by overlooking laws mandated by
Congress.
VVA is requesting that this subcommittee support S. 1084 the Homes
for Heroes Act 2007 introduced by Senator Barrack Obama, (D-IL) which
would repeal the 1998 decision and provide additional benefits and
services to low income homeless veterans.
VVA urges full funding to the authorized level of $50 million for
the Homeless Veterans Reintegration Program (HVRP) administered by the
Department of Labor. This training/employment program has long suffered
the consequences of limited funding. HVRP is the most cost effective
and most cost efficient program that is administered through the USDOL,
and it is one of the few that has full accountability built into the
program design. How can the Secretary of Labor and DOL extol a
commitment to the training of homeless veterans and then deny them the
full funding under Public Law 107-95 and Public Law 109-233 that has
been requested and urged by the veterans' service organizations and
other keenly interested parties? Is there a part of helping homeless
veterans get and keep a job, thereby paying taxes, becoming self-
sufficient, and contributing to our communities that is bad and VVA
missed it? Perhaps DOL can explain, as we are at a loss.
The late Senator Paul Wellstone, in a 1998 speech before the
Veterans of Foreign Wars, said, ``listen to the homeless veteran who's
living on the streets in our cities. Here we are in the United States
of America today at our peak economic performance doing so well
economically, and we're still being told that we don't have the
resources to help homeless veterans. One-third of homeless people in
our country today are veterans. That's a national disgrace.''
VVA strongly believes that homeless veterans have perhaps the best
possibility for achieving rehabilitation because at an earlier point in
their lives they did have a steady, responsible job and lifestyle in
the military. We hope to recoup these individuals in the most efficient
manner, thereby saving Federal resources. And we must do so with bi-
partisan support from our Congressional leaders.
In closing VVA would like to personally thank you, Senator Murray
for securing $75 million for the HUD-VASH program, of which VVA has
been a strong advocated for since passage of Public Law 107-95, the
Homeless Veterans Comprehensive Assistance Act of 2001. VVA and its
National Women Veterans Committee wish to additionally thank Senator
Murray and her Senate colleagues who sponsored S. 2799, The Women
Veterans Comprehensive Health Care Act of 2008. VVA would respectfully
request the opportunity to discuss this bill with you in order to
provide our thoughts on its comprehensive nature. VVA would also like
to thank Pete Dougherty, Director, VA Homeless Veterans Programs, and
his staff for their tireless work on behalf of our homeless veterans.
Often it is a thankless job, and for that reason VVA extends a special
thanks to Mr. Dougherty for a job well done.
This concludes my testimony. I will be pleased to answer any
questions you may have at this time.
Senator Murray. Thank you very much, Mr. Weidman.
Mr. Lambros?
STATEMENT OF PAUL LAMBROS, EXECUTIVE DIRECTOR, PLYMOUTH
HOUSING GROUP
Mr. Lambros. Thank you, Senators, for allowing me to be
here today.
Plymouth Housing Group is a nonprofit provider of
supportive housing for formerly homeless people. We were
established in 1980 in response to people sleeping on the
streets of Seattle. Today we own and manage 12 buildings that
provide 1,000 units of housing in downtown Seattle. We also
operate King County Shelter Plus Care Program. Our model is to
move people directly off the streets into permanent supportive
housing. We provide housing for homeless clients of agencies
serving people with mental health issues, alcohol/drug issues,
and AIDS. We have developed programs to move medically
compromised homeless people off the streets into supportive
housing, dramatically reducing the cost of community services
such as emergency rooms.
We house well over 100 veterans currently, but have housed
many more in the past. Our newest building, the Simons Building
that Senator Murray came to--we set aside 25 apartments,
permanent apartments for homeless veterans. It opened in
January.
Our goal is to stabilize long-term, chronically homeless
people in permanent housing with the services that they need to
successfully remain in housing and stop the cycle of
homelessness. We work extensively with the Veterans
Administration and other veteran service providers.
I would like to touch on a couple of programs that we have
talked about already, but I will give my comments.
The HUD-VASH program is very important and the new vouchers
will help immensely. I think it is important to try to look at
that program to look at the people that are in transitional
housing and using those vouchers possibly with an exit strategy
as some other members have talked about. The fact is that after
that 24-month transition, some of them have nowhere to go. Many
who complete the transitional program still, again, need a
long-term subsidy.
The VA's Homeless Providers Grant and Per Diem Program is
an effective program but needs to be more flexible. It imposes
restrictions on the type of housing it will support. It
supports capital and service funding and transitional housing
for 24 months. In many cases it is better to move homeless
veterans directly into permanent supportive housing rather than
through transitional programs. Veterans we are working with
have multiple issues that need lifelong attention.
Another issue, capital funding of the Grant and Per Diem
Program is restricted to nonprofit organizations. However, to
develop high quality supportive housing, we use the Federal Low
Income Tax Credit Program. Tax credit projects require the
formation of for-profit partnerships, and thus are not eligible
to receive Grant and Per Diem funding, and technically because
the nonprofits do not have site control. The fact is if the
nonprofit partner does take control of the building, it becomes
part of the nonprofit after the 15-year compliance period of
the tax credit program. When developing a project along with
the tax credit program, we use city, county, and State dollars.
All of those funding sources have recognized the importance of
the tax credit program and have made their funding more
flexible. Highly effective projects are excluded from using the
Grant and Per Diem Program to serve homeless veterans, and this
should change.
Thanks to the leadership of Senator Murray, the challenges
faced by homeless veterans have received elevated attention in
the State of Washington. We recently passed the Veterans and
Human Services Levy in King County. I mentioned our newest
building that just opened in January. We received capital and
service funding from the Vets and Human Services Levy for the
project. That is why we have 25 apartments for homeless
veterans. When we get capital funding, we are committing to
funders that we will provide that housing for 40 years. This is
a great opportunity to have housing for veterans permanently in
that building for 40 years. If it was not for the levy, the
county would have probably used their capital dollars around
mental health and those units would have been set aside for
people with mental illness.
We, along with many agencies across the country, are
committed to providing housing to homeless vets. The more
flexible the funding can be, the more we can do. So I want to
talk about what is working for us right now.
Our partnership with the VA, in the process of opening the
Simons Senior Apartments, we developed an effective partnership
with the VA. The success of this partnership is largely because
we worked together with the VA from the very beginning of the
project to develop a model for rapidly housing homeless
veterans. Our model is one of collaborative case management. We
maintain communication, share resources, and provide mutual
training with the VA. The VA provides on-site visits by the VA
staff that serves to broker and enhance veterans' connections
to VA services in the hospital. On-site Plymouth Housing Group
staff work with veterans to follow through on their
appointments. They also encourage and support recovery and
encourage building relationships with other veterans in the
buildings.
Let me touch on some of the challenges we are seeing around
homeless veterans. Homeless veterans who do not have access to
support systems will find other ways to survive. Some use
alcohol or drugs to cope with the effects of mental health
issues. This type of self-medicating compounds mental health
issues with substance disorders. The stresses of life on the
street and the lack of security, the day-to-day struggle to
survive makes a goal of abstinence, for instance, unattainable.
Getting them into housing first and then working on these
issues is key. Once they are in housing, they are in a better
position to develop a goal for recovery, and we see achievement
every day in the veterans that we are serving.
I attached to my testimony four short stories of our
veterans. The one that really struck me is a vet that moved
into our housing most recently. He took one of the last spots
in the Simons Building. Albert is 70 years old, a Korean War
veteran, who had cycled in and out of housing for years. The
day before he was going to move in, he got kicked out of the
shelter because he was intoxicated. It was freezing that night
in Seattle. I am very proud of our staff, and the shelter staff
actually went out and found him so he could be housed. Albert's
story stuck in my head and keeps me wondering why. How is it
after all these years a 70-year-old veteran is still homeless?
All of you and VA's around the country are doing good work
to help, especially by making more funding available.
Community-based organizations like Plymouth Housing Group are
partners ready, willing, and able to get our homeless veterans
off the streets and into supportive housing. Key to that is to
make the funding as flexible as possible, such as what I talked
about with the tax credit program. In Seattle and King County,
we have been working toward the goals of our 10-year plan to
end homelessness. As more and more communities across the
country are undertaking their plans, they will develop and
tailor those plans to local conditions. Capital and service
funding must respond to local needs and be available to fill
the gaps that those areas think they have.
PREPARED STATEMENT
I want to thank Senator Murray for her great leadership. We
are very proud of her, those of us in Washington State. And
thank you, Senators, for allowing me to speak today.
[The statement follows:]
Prepared Statement of Paul Lambros
Plymouth Housing Group is a nonprofit low-income housing provider
in Seattle, Washington. We were established in 1980 in response to the
increasing numbers of homeless people living on Seattle streets. Today,
we own and manage 12 buildings that provide 1,000 units of permanent
supportive housing. Our model is to move homeless people directly off
the streets and into permanent supportive housing. We house well over
100 veterans, and our newest building, the Langdon and Anne Simons
Senior Apartments, reserves 25 apartments for homeless veterans.
We work extensively with the Veterans Administration and other
veterans service providers, as well as agencies that provide services
in such areas as mental health, chemical dependency, jail diversion,
HIV-AIDS, and others. In working with community partners, our common
goal is to stabilize long-term chronically homeless people in permanent
housing with the services tenants need to successfully remain in
housing.
HOUSING OPTIONS FOR HOMELESS VETERANS
The VA's Homeless Providers Grant and Per Diem Program provides
supportive housing and services to veterans in transitional housing
programs (up to 24 months).
The HUD-Veterans Affairs Supportive Housing (HUD-VASH) program,
which provides both subsidy and support services, is effective for
veterans who are ready to accept support and treatment services, are
relatively stable, and can successfully maintain their housing. HUD-
VASH vouchers to our area were cut under the current administration,
but we expect to see an allocation of another 105 vouchers.
Both programs provide important services to homeless veterans, but
they are not flexible enough to meet real needs at the local level. To
close the gaps, we rely on other sources of funding, such as King
County Housing Authority's Housing Access and Services Program, and
King County's Veterans and Human Services Levy.
Some key changes would make the Federal programs more responsive to
our local need.
The Homeless Providers Grant and Per Diem Program imposes
restrictions on the type of housing it will support. It is more
effective to move homeless veterans directly into permanent supportive
housing, rather through transitional programs. Capital funding under
the Grant and Per Diem Program is restricted to nonprofit
organizations. However, to develop high-quality permanent supportive
housing, we must use the Federal Low Income Housing Tax Credit Program.
Tax credit projects require the formation of for-profit partnerships,
and thus are not eligible to receive Grant and Per Diem funding because
technically the nonprofits do not have site control. Highly effective
projects are excluded from using this funding source to serve homeless
veterans.
Further, the Per Diem component of the program is restricted to
services provided to veterans in transitional programs--funds may not
be used for services to veterans living in permanent supportive
housing. We have found that formerly homeless tenants are most
vulnerable during the period of transition from homelessness to stable,
permanent housing. This is when they are most likely to need intensive
support services, and we have seen tenants become increasingly self-
reliant as they remain in their housing. Senate bill 2273, to fund
support services for formerly homeless veterans in permanent housing,
is needed.
Thanks to the leadership of Senator Murray, the challenges faced by
homeless veterans have received elevated attention in our State. This
has made it possible to pass a Veterans and Human Services Levy in King
County.
In Seattle and King County, we have been working toward the goals
of the Ten Year Plan to End Homelessness. As more and more communities
across the Nation undertake similar initiatives, they will develop
plans tailored to local conditions. Capital and services funding must
be flexible and responsive to local needs and be available to fill gaps
in those areas.
WHAT WORKS
In the process of opening the Simons Senior Apartments, we
developed an effective partnership with the VA. The success of this
partnership is largely because of the following factors:
--We worked together with the VA from the very beginning of program
development to develop a model for rapid housing of eligible
veterans.
--We exchanged information and training with VA staff. They taught us
about the complexities of veterans systems. We taught them how
to complete housing and subsidy applications.
--At the Simons Senior Apartments, we have four onsite case managers
and a nurse. Three of the housing case managers have
specialties: chemical dependency, geriatrics and veterans.
--Our model is one of collaborative case management: we maintain
communication, share resources, provide mutual training (e.g.,
about veterans issues and housing issues).
--Onsite visits by VA staff serve to broker and enhance veterans'
connections with the VA hospital.
--Onsite Plymouth Housing Group staff work with veterans to follow
through on appointments. They also encourage and support
recovery, and building community with other veterans in the
building.
CHALLENGES FACED BY HOMELESS VETERANS
Discharge Status.--Veterans who have received other than honorable
discharges are refused all services by veterans programs. Other than
honorable discharges can often stem from unidentified mental health or
substance-use disorders that result in violent or unacceptable
behaviors. Veterans who know the system and have resources can contest
these discharges and have them overturned, but veterans who do not have
resources and cannot contest discharge status become truly
impoverished. They are sleeping on our streets, and they identify
themselves to the public as veterans.
Level of Functioning.--Homeless veterans who don't have access to
support systems will find other ways to survive. Some use alcohol or
drugs to cope with the effects of mental illness. This type of ``self-
medicating'' compounds mental health issues with substance abuse
disorders. The stresses of life on the street, and the lack of
security--the day-to-day struggle to survive--makes the goal of
abstinence seem unrealistic and out of reach. Until veterans find the
support, safety and counseling they need, they are simply not yet in a
position to make abstinence a goal in their lives.
Abstinence is not a goal we can choose for another person. To be an
effective and lasting goal, it must be identified by the individual.
The Federal Substance Abuse and Mental Health Services Administration
(SAMHSA) makes this point in its National Consensus Statement on Mental
Health Recovery--it is equally applicable to recovery from substance
abuse disorders:
--``There are multiple pathways to recovery based on an individual's
unique strengths and resiliencies as well as his or her needs,
preferences, experiences (including past trauma), and cultural
background in all of its diverse representations.''
--``Recovery is not a step-by-step process but one based on continual
growth, occasional setbacks, and learning from experience.
Recovery begins with an initial state of awareness in which a
person recognizes that positive change is possible.''
Staff at the Simons Senior Apartments note that the veterans living
in the building all share a distrust and a sense of fatalism about
their housing. They seem to expect that their housing can't last--that
somehow it will all fall through or fail. Because these veterans are
not abstinent, they seem to have fallen through the cracks, rather than
having the opportunity for secure housing. Once they are in housing,
they are in a better position to develop a goal for recovery.
It is far more effective to acknowledge and support the veterans
who still struggle with mental health or substance abuse issues--to get
them into housing as quickly as possible. Once they are housed, we can
support them in their housing, and be available to help as they begin
to realize that positive change is possible.
ATTACHMENT--VETERANS' STORIES
These are all veterans who live in Plymouth Housing Group
buildings.
For more information, see the spring edition of Plymouth News at
www.plymouthhousing.org.
Albert, a Korean War veteran, was referred for housing in the
Simons Senior Apartments and completed the documentation necessary to
move in. However, when staff tried to locate him to let him know that
his application was approved, they learned that he had been asked to
leave the transitional shelter where he'd been staying because he was
intoxicated. He would be sleeping on the streets that night.
Staff from PHG's rental office, the Simons building manager and the
social services program manager worked with the transitional shelter to
locate Albert. They were able to find him and get him moved in. It was
just in time--the temperature dropped below freezing that night. With
the amount of alcohol in his system, we believe that Albert might not
have survived until morning.
Gunnar, a Vietnam-era Army veteran, spent 8 years living on the
street off and on when he could not pay his rent. He struggled with
alcohol and heroin addiction as well as the physical toll of
homelessness and addiction (he suffered severe head trauma when he was
intoxicated and fell from a parking garage). He would sometimes
shoplift in order to be jailed on cold nights. While he was in jail, VA
staff began to work with Gunnar, and he connected with support and
recovery services.
When Gunnar moved into the Pacific Apartments in September 2002, he
was clean and sober, and has maintained his sobriety. Staff at the
Pacific are impressed with his high standards of cleanliness in his
unit and in his personal appearance. With the Pacific as home, Gunnar
is able to maintain contact with VA support services and with his
family. He maintains a monthly budget, pays his bills and effectively
plans and sets goals. He is happy at the Pacific.
Joe, a Vietnam veteran, stopped drinking in 1993 and has maintained
his sobriety. However, he suffered cardiac arrest and developed other
severe health problems, and ultimately became homeless, sleeping in
shelters, in the woods or on public transportation. Life on the street
took a further toll on Joe's health. He suffered a collapsed lung and
frostbite so severe that it threatened his ability to walk. He needed
ongoing medical care, but very often did not get help until he required
emergency treatment or hospitalization.
Joe moved into Plymouth on Stewart where he received intensive,
round-the-clock support required to care for himself and get the
regular primary medical care he needed to regain his health. He visits
a nearby medical clinic for regular appointments and is now able to
walk without a cane. These days, Joe describes himself as
``optimistic.''
Richard, a Vietnam veteran, spent several years in Houston, caring
for his elderly mother and working part-time jobs. After his mother
died in 2006, he took a bus to Seattle where his brother was living.
Richard found hotels too expensive, so he slept in homeless shelters
and did odd jobs to save money for an apartment. But after he developed
pneumonia, his health went downhill and he was diagnosed with diabetes.
Health problems notwithstanding, Richard volunteered in the kitchen at
one shelter and the staff there helped him look for housing.
Richard moved into the Simons Senior Apartments when it opened in
early 2008. Supportive services there include assistance with economic
and health issues--including an onsite nurse to help Richard monitor
his diabetes and keep it under control. That's now easier to do because
he has a kitchen and can cook for himself--something he missed when he
was homeless.
Senator Murray. Thank you very much to all of you for
excellent testimony today, I think it was very interesting and
challenging to all of us. You have offered a lot of numbers and
statistics in your data, the number of homeless veterans, the
percentage that are struggling with mental illness, the number
that are chronically homeless.
And so I think I wanted to start by asking a question that
everyone in America ought to be asking. How did we get here?
How did we get to the point where every year over 300,000 of
our Nation's veterans are experiencing homelessness? Anybody
have a thought? Ms. Beversdorf?
Ms. Beversdorf. I often get that question from the media,
and what I usually share is that there are three primary issues
that we have to deal with, and you have heard all of them in
one degree or another. The first, of course, is the health
issues. I mean, let us face it. War changes individuals, and
when they come back, they are suffering from issues such as
post-traumatic stress disorder. Traumatic brain injury is a new
issue now that is very much a result of this particular war,
but other kinds of health issues have certainly been in the
past. Substance abuse issues, mental health issues. So that is
the first aspect.
The second is the employment issues. Many of those who go
into the service may be only 18. They just got out of high
school. And so when they go into the military, sometimes the
activities that they are involved with, the skills that they
have acquired are not necessarily transferable once they get
out of the military. They may not have gone to college. They do
not have a college education. They do not have any wherewithal
in terms of getting a job. They are not understanding of like
writing a resume or dressing for an interview or getting the
proper certification that is needed in order to get a job back
in the civilian sector.
And the third is what we have been all talking about here,
affordable housing.
What also happens is that when individuals first anticipate
getting out of the service, first of all, the Department of
Defense does not necessarily ask the right questions. Do you
have a job when you get out? Do you have a home to go to? And
as these young people are anticipating getting out of the
service, they often think that perhaps things are going to be
just the way they were when they left, and we all know that
that does not happen. I mean, we have also talked about the
social and economic activities in terms of divorce rates
skyrocketing. The person has changed after he or she returns
from the service, and the families that they are returning to
have also changed because of multiple deployments. They have
really had to get along on their own. So it is all these
factors that come together that make a person very different
and have very unique characteristics.
And finally, I would also say that even when you are in the
military, well, we have all these common communications now in
terms of e-mail and video. They still do not necessarily have
the support system that they need, and they may not have it
when they return. There are not always necessarily families
that are going to be with them. And so it is these kinds of
issues that come together and focus and make homelessness among
veterans a very unique issue.
Senator Murray. Mr. Weidman?
Mr. Weidman. Senator Murray, I am reminded that when they
became a national press phenomenon about trip-wire vets in the
Olympic Mountains in the early 1980s, people would call us up
and say, what about trip-wire vets? And we were astonished
because both Bobby Moeller and I and John Trazano and all the
early people in VVA in the national office said, they are all
around you. You do not have to go to the Olympic Mountains. It
is easier to hide in the cities and in the small towns than it
is in the Olympic Mountains. And you have people who are
basically there because their psychosocial readjustment
problems were not dealt with effectively by anybody when they
came home and certainly not by the VA.
So we are doing a much better job of dealing with those. It
is just they are behind the curve in terms of catching up with
the number of mental health staff and particularly those who
are qualified in PTSD at the VA. Certainly that would be one of
the reasons how we ended up here because we lost ground in the
1990s and because of the flat-lining of the VA budget and
actually we were losing ground even before that with the in-
patient PTSD programs. That bleeding has now been stanched for
some years, but it is going to take a while. And there are
still some without an in-patient PTSD program. So that is part
of it.
Part of it also has to do with a real change in the
effectiveness of the publicly funded labor exchange which has
been starved for the last 25 years for funds. As a result, the
DVOPs and LVERs are a larger percentage, ever-growing
percentage of the folks devoted to that, and less and less
accountable not because there are not great people as DVOPs and
LVERs, but because the system--the State workforce development
agencies see them as cash cows. So it is not very effective on
a nationwide basis, not an accountable procedure.
And that is one of the reasons why we are so high on the
Homeless Veterans Reintegration Program because it is the most
accountable of all those programs. You know what you are
getting for the $50 million, and it is a heck of a bang for the
buck. The cost per permanent placement is the best of any
program at DOL.
So it is a combination of those, and the other thing that
Cheryl pointed out is the increasing lack of affordable housing
which is the highest aspect of inflation in this country. And
many times cities get excited and small towns about the
reinvigoration of downtown, but what happens is that is where
the flop houses were, that is where cheap housing was. It might
have been terrible housing, but it was not the street. And when
that is rejuvenated, if you will, what happens is they simply
run off the poor people. It is not that they have a place to
go. They just do a run-off drill. So those that have no other
place to go will go to the street, and that is part of what has
happened in the last 25 years.
Senator Murray. So it is a very complex problem. Yet, there
are some solutions that are working. Mr. Lambros, you just
talked about finding a vet and bringing him in, a 70-year-old
vet I think you said.
What are the examples of success? What do you think is most
effective?
Mr. Lambros. Well, I think most effective is the housing,
but not just the housing, but the type of housing I think is
very important.
And for so many homeless vets--I wanted to add one thing
about the causes, lack of community. I mean, we have these
long-term homeless vets. They are on their own. So maybe they
had family at one time. Maybe they had friendships, but because
of the issues they have been dealing with, they have lost
those. And so without that community, how are they going to get
help? They need to get help from nonprofit providers, from the
VA, and others. So that is the main part we are trying to deal
with.
But moving people in and putting them in supportive housing
has been very effective. We have a great success rate--many
nonprofits do around the country--of keeping people stable and
in housing. And again, these are long-term effects that they
need to deal with. So we need more of that.
I want to add one thing. I think there is a missed
opportunity here. Right now I mentioned the 10-year plan on
homelessness. In King County, our county, United Way has
stepped up to say they are going to raise $25 million for
support services for those of us developing housing for
homeless people. That is happening around the country, and we
have an opportunity here to get more capital dollars and
service dollars for homeless veterans, especially capital, into
all of these projects being developed so that those can be
long-term. So when the vets issue is not the biggest issue on
the table 10 years from now maybe, those housing units are
still there and we do not have to worry about it as much as we
do today.
Senator Murray. Senator Bond?
Senator Bond. Thank you very much, Madam Chair.
I would note, again editorially, for the last 14 years, I
have worked on a bipartisan basis with Senator Murray and
Senator Mikulski, and we fought very hard to get the funding we
need for veterans and to end homelessness. It has been truly
bipartisan in Congress.
And OMB has been at the same time truly bipartisan. Under
both Democratic and Republican administrations, it has
shortchanged both HUD and VA. Now, you talk about
bipartisanship, man, we have got it right here. But we are
fighting an uphill battle.
And I would say that we have made progress. We have done a
lot of things. We have not done as much as we should, as much
as we would like to, or with your help and guidance, what we
are going to be able to do from here on.
Now, having gotten that off my chest let me direct a couple
of easy questions before I ask all of you the tough one.
First, Mr. Dougherty, you claim VA is the largest provider
of homeless treatment and assistance to veterans in the Nation.
I would like to know how much you have, how many programs do
you manage, and how many homeless vets you care for.
Mr. Dougherty. Senator, we see more than 100,000 homeless
veterans through the VA health care system. We also know that
at least 40,000 veterans who have been identified as being
homeless are in receipt of VA benefits. What that does, as Paul
and Rick talked about, for many of those veterans, if you get
yourself back into a position where you can get back into the
regular society. All of us want to be there. The ability to get
a service-connected disability, or an income support, as I am a
non-service-connected veteran, gives some an ability to both
help make a contribution to that housing, but gives me some
money upon which to live.
Senator Bond. So most of this work is not homeless-
specific. You are saying that since you give veterans benefits
and you provide veterans health care, a portion of that
population that you are serving under those programs are
homeless. Is that correct?
Mr. Dougherty. What we are attempting to do is not to be
the Department of Homeless Services. What we are attempting to
do is to make the wide array of services that are available to
veterans available to these veterans. That is why we started
out many years ago by doing outreach specifically to find those
veterans and to get those veterans into health care services.
Senator Bond. And I realize you need the broad service, but
I was asking you what percent. Do you have any idea of how many
of the homeless veterans you are reaching out to for this
discussion? How do you integrate with the homelessness problem
in those broader programs?
Mr. Dougherty. Given what are estimated the numbers of
homeless veterans are on any given night, we are seeing about
half of them in the VA health care system.
Senator Bond. And I would ask Mr. Johnston. You provide,
obviously, more homeless funding than any others, but I would
like to know, number one, what is your relationship with other
agencies assisting homeless vets? How does that work? And what
are the programs that you think are most successful? I know
that is a half-hour question, but maybe you can give me an
answer in a couple of minutes.
Mr. Johnston. Surely. In terms of relationships with other
Federal agencies, we have, I think, very great relationships
with a number of key Federal agencies. Pete Dougherty and I are
either on the phone or on the e-mail three or four times every
day, and I really mean that, not just because of HUD-VASH. We
have had a longstanding relationship between these two
agencies. The HUD-VASH original program was an initiative of
people at HUD and people at VA sitting down saying let us just
create this thing and then go to Congress to try to get it
funded.
So as one example, in our Continuum of Care funding, which
is about $1.3 billion, which is most of our homeless funding,
we actively encourage every community to use their CHALENG data
from VA to link up with the data they are getting for HUD so
they have a better competitive application locally, but more
importantly, that the various parties at the local level are
looking at all the data they have. And in the long term, I
think that is very valuable.
We have great relationships also with HHS and Labor. We
have done a number of grant initiatives with these different
agencies over the last couple of years where we provide the
housing and they provide their very tailored services. For the
VA, it was, for instance, case management to veterans. For HHS,
it was mental health treatment and case management. And for
Labor, it was job training.
Senator Bond. Let me go to what I think is the most
difficult question and may be difficult for Mr. Johnston and
Mr. Dougherty to answer, but I imagine our other panelists will
answer it.
We have got a whole range of programs somehow somewhere
targeted at homeless vets. There are so many different areas it
is tough to keep up with all of them. I believe, if it is
possible, to fold those programs into a much smaller number of
larger programs and increase the money going into the larger
programs to assure the continuum of care, what would you say
very quickly from your standpoints are the best vehicles? What
are the less good vehicles that might be combined into it? I
would like to ask you to answer that quickly, and the rest of
you perhaps to give us--what do we fold in and what programs
into which we fold them--if that grammar works. Where do we put
them?
Mr. Johnston. Well, I think Senator Reed's leadership on
greatly simplifying, consolidating, and making more flexible
the homeless programs at HUD would be a huge step forward. He
and Senator Allard for a number of years have been crafting, I
think, a great piece of legislation that has many positive
aspects of it. We have our own legislation. We do not mean to
be competing with their bill because the bills are very, very
similar, as was referenced earlier. It would eliminate all of
HUD's competitive programs for homelessness and make it a
single, simple program, with one match requirement, and one set
of eligible activities.
Senator Bond. That is an oxymoron, a simple HUD program,
but I share your----
Mr. Johnston. This would be one. Right now in the statute,
every one of our programs has a different match requirement.
Every one has a different set of eligible applicants and
eligible activities.
Senator Bond. Let me try to get quick answers. I apologize,
Madam Chair. The time has run out, Mr. Dougherty then Ms.
Beversdorf, and down the line.
Mr. Dougherty. Senator, I think that the HUD-VASH program
is a perfect example of how not to give us permanent housing
authority, but to link us with the Department of Housing and
Urban Development which does have permanent housing authority.
It links up the best of both of us. They have the ability to
get housing, we have the best ability, I think, to provide the
needed health care services and a comprehensive way to do that.
So I would say that this is a perfect example.
Senator Bond. Ms. Beversdorf.
Ms. Beversdorf. I would say that we need to be real careful
because when we go back and look at the transitional program,
the Grant and Per Diem Program, and the Homeless Veteran
Reintegration Program, the uniqueness about that is the fact
that it is veterans helping veterans. I think we need to go
back to the idea that veterans have very unique characteristics
and issues that need to be dealt with and the people who are
best able to serve them are those who understand the issues.
That is what I was covering when Senator Murray asked me about
why veterans are homeless.
Senator Bond. I agree with that.
Ms. Beversdorf. So at least in terms of Grant and Per Diem,
I think it needs to be a separate program. I think HVRP--and
frankly, that is why HUD-VASH is so good because it was new
vouchers specifically for veterans. And I think as we go on, in
terms of permanent supportive housing for low income veterans,
we have to again be careful not to put too many things together
because I readily admit, there are other homeless populations
that need to be addressed, but when 25 percent of the homeless
population are veterans, that is an important point.
Senator Bond. Mr. Berg.
Mr. Berg. I would say we have been very supportive of
Senator Reed and Senator Allard's bill to consolidate the HUD
programs. I do think that if we are going to say veterans
should not be homeless, that the VA needs to continue to have a
very strong role in that. The VA is where veterans come in
communities to get help, and we need to encourage that and
provide some more kinds of help like housing.
Senator Bond. Mr. Weidman.
Mr. Weidman. Veteran-specific programs work for the reasons
that Cheryl outlined. And the other thing is careful on
consolidation because if you do not write veterans specifically
in, in many cases they are going to be specifically read out at
the local level.
I would mention that the veterans helping veterans model
works. It is why in St. Louis, as an example, the St. Louis
Veterans Assistance Center run by Bill Elmore in the 1970s was
the most effective place for Vietnam veterans to get
comprehensive help. It is now morphed into the Center for Small
Business Development by Pat Heevy. And you want to allow for
that, veterans helping veterans. It is not only cost efficient,
but you can bring lots of volunteer resources to it.
So while consolidation in many cases is seductive and may
even make some sense, what has happened at the Department of
Labor has rebounded and meant that there are many fewer
services or in some cases no services at all for veterans,
particularly disabled vets, in employment.
Senator Bond. Mr. Lambros.
Mr. Lambros. Well, as a provider, consolidation scares us
because often it means reduction. So I would be cautious about
that.
I think the word I use versus ``consolidation'' is
``flexibility.'' I think to look at the funding sources
available to veterans and make sure again they are flexible
enough to work with local initiatives. The tax credit program
is an example that I mentioned. I know some States are using
the tax credit program with for-profits to do low cost housing.
In Washington State and many other States, we are using it for
the homeless. We are prioritizing the homeless. It is a perfect
opportunity to make vets capital dollars work in those
projects. I think it is just about flexibility.
We have, like I said, a great relationship with the VA, but
when we opened this new project and we knew we had 25 set-aside
units for homeless veterans, we have four case management staff
on site. We made sure we did not steal one from the VA, but we
hired one that has a lot of experience with veteran issues
because we knew that was important. But that is being funded
out of a totally different funding source.
Senator Bond. Thank you very much. I apologize to my
colleagues, but I thank you. That is really the kind of
guidance that we needed.
Senator Murray. Thank you very much.
Chairman Johnson?
Senator Johnson. Thank you all for your testimony. Before I
begin with questions, I would like to thank the VA and HUD and
other organizations for their ongoing efforts in regard to
homeless vets. I know many of our vets in clinics in South
Dakota appreciate the assistance and cooperation they have
received from your agencies. Thank you for that.
Mr. Dougherty, you said in your statement that the VA works
continuously to reach out and identify homeless vets and
encourage their utilization of VA's health care system. As you
may know, South Dakota is a very rural State. Outreach in rural
areas must be particularly challenging. Have you identified
significant challenges to rural outreach, and how do you
propose to overcome the challenges to help those veterans who
have little access to your programs and facilities?
Mr. Dougherty. Mr. Chairman, I appreciate your question
because many years ago when I worked on the staff here for the
Congress, I worked for a member who was the chair of the Rural
Caucus. When the Grant and Per Diem Program was created, it did
not set any minimum amounts of numbers of beds because we
wanted that program to work both for rural areas as well as
urban areas.
What we have done in the HUD-VASH program is to fund those
positions and also fund them with vehicles and with adequate
resources so those case managers can get out. I mean, it does
not do us any good to have a good dedicated case manager if
they are going to sit in their office and they do not have any
travel money to get out and go to those places. If you are in
New York City or somewhere like that and you have a public
transportation system, you can move around fairly quickly, but
if you are in rural South Dakota, and you are going to do that
kind of work, you have to have resources to do it.
We have several hundred staff under our Health Care for
Homeless Veterans Program, and that is what they do. They go to
those places. They work with veterans in those places. They
talk to city and county and State people. When folks call us,
county veterans service officers and others contact us and say
there is a homeless veteran who needs some assistance, we try
to get both the Benefits Administration and health care folks
out to them. One thing we do try to do is resource that staff
so they have the ability to go out and not just sit in the
hospital.
This is a program--I can tell you 20 years ago that people
would ask us all the time, what do you mean you are going to
have staff that is going to work out in the community? How does
this medical center monitor and oversee what that person does?
That attitude has changed dramatically now because they
recognize that you cannot do this kind of work by sitting in
the hospital and waiting for someone to come see us. We have to
go out into the community and find them there.
Senator Johnson. South Dakota also has a large population
of Native Americans, many of whom are vets. Can you tell us
what the VA does to reach out to that unique population of
vets? And also, what is the level of cooperation with the IHS?
Mr. Dougherty. Mr. Chairman, we have made and targeted in
the last several notices of funding availability under the
Grant and Per Diem Program that programs that will operate on
tribal lands would have a preference in the application. We
have three programs that were authorized in South Dakota on
tribal lands. We at one time made it that you had to be the
tribal government in order to be considered. But now we simply
say that if another entity, a nonprofit organization for
example, is working with you, we will allow you to be funded.
That Notice of Funding Availability and that provision to have
tribal governments as part of that housing and services is in
the current notice of funding availability, and we are hopeful
that we will get some additional resources.
I know a little bit about the Indian health care services
because I am the acting Deputy Assistant Secretary for
Intergovernmental Affairs, and we have been engaged in a number
of conversations with tribal governments about the health care
services between VA and the Indian Health Service. And it is
somewhat challenging; somewhat difficult, but I think there is
a commitment on the Department. I think our rural outreach
office that is going on will help us continue because most of
those tribal nations are in rural areas. I think that we will
more and more be able to provide veteran-specific services to
those veterans who are on tribal lands in the future.
Senator Johnson. Transportation is a critical issue when
dealing with vets in rural areas. When discussing homeless
vets, the issue is even more challenging. Let us say that you
have a homeless vet on the Pine Ridge Reservation that needs to
get to Minnesota or Omaha for specialized treatment. Utilizing
the normal process, the vet would pay for his or her own
transportation and then be reimbursed. I have heard from
shelters in South Dakota that this process is the same for
homeless vets. I think it is pretty safe to say that this
population of vets is not going to be able to pay for the
transportation up front. How is the VA working to overcome this
challenge?
Mr. Dougherty. Mr. Chairman, if the veteran had come into
the VA health care system and we were seeing them and they were
a homeless veteran and they needed to go to some other location
for health care services, we would not be providing
transportation support for that veteran to get to that
location. But if he was specifically a homeless veteran, once
he came in and we were identifying him and working with him, in
that situation we should provide the transportation for him to
go somewhere else. We are certainly happy to look into the
situation you are talking about and see if we can be more
helpful.
Senator Johnson. I am out of time.
Senator Murray. Thank you very much, Mr. Chairman.
Senator Reed.
Senator Reed. Thank you very much, Senator Murray. Thank
you for holding the hearing and thank you all for not only your
testimony but your support and your assistance in drafting the
legislation that Senator Allard and I are cosponsoring. We hope
that we can get it through the floor of the Senate because I
think it would be signed and it would be effective in helping
many Americans, including our veteran population.
I wanted to pick up on a point that Mr. Weidman made, which
is that not much has changed, unfortunately, over 20-plus
years. A third of homeless veterans have mental health issues.
A third have substance abuse issues, and a third have sort of
disengaged for one reason or another from the mainstream, if
you will.
I wonder your impression of whether those statistics vary
given this discrete veteran population in age--the newer
veterans, the Vietnam era, Korean War, World War II. And then I
will ask Mr. Dougherty if he could comment from the VA's
perspective.
Mr. Weidman. Well, the World War II and Korean veterans'--
many of them are dead because it is hard living out on the
street.
Senator Reed. Right. Then you hear about the 70-year-old
veteran.
Mr. Weidman. Right.
Vietnam veteran's--it is probably about the same I think
and it still pretty much holds true. But it holds true among
the young people coming home also. Now, the substance abuse may
have occurred when something happened in their life.
Let me give you an example of somebody who is just
disenfranchised. A friend is a sergeant 1st class with a unit
in the local National Guard that was deployed to Iraq, and when
he came home--and it was the second tour that this individual
had been on. And the spouse said, hey, I did not sign up for
this. And so when they came home, they had no place to go and
on an E-3 salary did not have the wherewithal to get their own
housing and therefore ended up sleeping in their car for about
8 months until we were able to get him out of--I heard about it
and we were able to connect him up with some people. But that
is the kind of thing which is just--once you are out on the
street, how do you get out of that situation? And so that has
not changed.
And I think that a better transition that Senator Bond
talked about would help a great deal. VVA hates the term
``seamless transition'' because it is news speak. You know, how
about we have a real transition first before you start calling
it seamless? I mean, it is a worthy goal, but it does not work
very well particularly for disabled vets. The DTAP program is
on paper more than it is in actuality.
Insofar as the mental health and substance abuse services,
substance abuse is also in the process of rebuilding at VA and
it is very uneven area to area. Some areas are pretty good.
Other areas are not. And it really reflects back to that period
in the 1990s when substance abuse services in some of the 21
networks was virtually wiped out.
And it is not as easy as just turning on the faucet when
they are finally getting more resources. We are a difficult
population, Senator Reed. We are not necessarily warm and
fuzzy, those of us who served in combat. And our stories are
hard for people to take. It is a very special kind of person
for a therapist who not only has empathy and understands what
we are talking about but can put up with that day after day
after day for months and weeks and years and yet keep coming
back with the empathy and the skills to help people get better.
So it is a rebuilding process.
That is one of the reasons why we were so upset that the
organizational capacity at the vet centers has not been
expanded to keep up with the overwhelming demand out there.
Senator Reed. Thank you.
Mr. Dougherty, your comments from the VA perspective.
Mr. Dougherty. Yes, Senator. One of the smartest things the
Department of Veterans Affairs ever did when we first started
working specifically with the homeless program is do a program
monitoring and evaluation of every veteran that we have seen.
We know every veteran who we have seen in the homeless-specific
program since 1987.
What we can tell you is generally among all those
veterans--and that percentage has changed but changed slightly
over the years--is that about 45 percent of the veterans we see
in homeless programs have a diagnosable mental illness, and
about 90 percent have a substance abuse problem, and about 35
percent are dually diagnosed, which makes that level a little
bit higher.
I can tell you we do specific program monitoring and
evaluation of those veterans who we have seen from Iraq and
Afghanistan in the last 3 years. The difference among that
group is the substance abuse problem is less than it is among
these other veterans, but the mental health issue particularly
around combat-related PTSD is much higher.
Senator Murray--when she asked a question before, I wanted
to jump in about what the difference is societally because this
is the thing that sort of haunts those of us who do this all
the time. And one of the differences is we simply live in a
different society than we did in World War II. My family lived
in the same area of New York State for 250 years and basically
nobody ever moved away from there. None of us live in that area
any longer. We live in a different society. My grandfather was
one of 11 boys. My father was an only child. We do not have the
extended families. The social service network that comes out
today did not exist back then.
The other is in the Department. We never even recognized
PTSD, until many years after Vietnam was over. There are lots
of things that we are doing differently.
Senator Reed. Thank you very much.
This raises a question, Mr. Johnston. First, thank you for
your kind comments about the Allard-Reed legislation and for
your assistance. I really appreciate it very much.
But it points to the link between supportive services and
housing. I think we recognize that now, but the question I
would have is how can we target these services to be more
effective, or are we thinking along those lines, because we do
have a finite amount of money. And sometimes what stops a
project or undermines a project is not that you do not have the
structure. You just do not have the supportive services to
complement it.
Mr. Johnston. The unique opportunity that HUD has with its
current homeless programs--and it would continue in your
consolidated program--is that you can use HUD funds to do
anything to solve homelessness. You can use them for all sorts
of housing activities, as well as any imaginable supportive
service. So if they need drug treatment, mental health
treatment, substance abuse treatment, child care, job training,
et cetera, you can use that. So a link between housing and
services, as Plymouth does--they have one of our grants where
you can use our supportive housing program both for the housing
and for the services--that is really vital.
We realize that we do have limited resources, and so we
have been encouraging communities over the last 5 or 6 years to
use more of our money for housing and try to fund their
services elsewhere. But we still fund a lot. We fund about $500
million a year in services.
Senator Reed. Thank you.
And Ms. Beversdorf and Mr. Berg, thank you so much for all
the assistance you have given to myself, my staff.
I have just a few seconds left, but one of the issues,
obviously, is to try to stop this from happening, and when you
have a population of new veterans coming out of active military
service, there is a chance for the Department of Defense and VA
to coordinate. We hope that is happening. But then you have
veterans who have at least been able to support themselves into
their mid-life and now they are having problems. I wonder if
you could just quickly comment on that topic.
Ms. Beversdorf. Well, I think sometimes there is difficulty
in terms of knowing where to go when you decide you need help.
I always keep saying as long as I am with the National
Coalition for Homeless Veterans, if there could be some kind of
sustained national public awareness effort to get to these
people at a time when they need the services, I think that that
would be really helpful because we get many calls. NCHV gets as
many as 300 calls a month, but a lot of people do not even know
where NCHV is.
The good news is there are more points of contact out
there, more community-based organizations, and more people who
are interested. But somebody has to tell them about that. They
have to urge them to go to the VA. Some people are reluctant to
go to the VA.
And the other important thing is that these young people
who are returning now--homelessness takes a long time. I mean,
when you talk about the Vietnam era, it sometimes took 5 to 7
years before they exhausted all the possible resources. So each
situation is different, but at least we are trying to do a
better job of getting the word out. And we have more points of
contact out there, but we still have a long ways to go.
Senator Reed. Mr. Berg, just quickly.
Mr. Berg. I would just add if the help that is needed is
housing, if people are homeless or about to become homeless,
that is still not necessarily there in communities. Things like
HUD-VASH will help, but finding housing, using the private
market, using other programs, that is something that does not
really exist as much as it should.
Senator Reed. Thank you.
Let me just follow up on something I think Ms. Beversdorf
said. I think this is a developing problem for these new
veterans because the resources--your parents eventually go away
and your friend's couch goes away when he or she gets married
and has their own family. So we might have a bigger population
of new veterans that are confronting this issue of homelessness
than we anticipate at the moment or statistics suggest.
Ms. Beversdorf. And many more also have families now too. I
mean, that is the thing that is so difficult, that the VA by
law is only supposed to treat the veteran. Yet, if you think
about ending homelessness, you need that support system and
child care. Senator Murray is talking about more women, a lot
more men too. So what do we do about the child care and the
family issues?
Senator Reed. Thank you.
Senator Murray. Senator Reed, thank you so much for your
commitment and work on this as well. We appreciate it.
Let me go back. Mr. Dougherty, I want to ask you. It seems
like we are hearing a lot that some of the predictors of
homelessness are mental illness, substance abuse, financial
instability, lack of community, and all those things. Does the
VA currently do any kind of individual comprehensive assessment
of each service member entering the VA system to evaluate those
that may be at risk for homelessness?
Mr. Dougherty. When we find a veteran and we engage that
veteran at the bridge or in the park or out in the woods, we do
a very extensive----
Senator Murray. When they are homeless, but what about all
of the veterans who are returning. Is there any kind of
evaluation to look at this?
Mr. Dougherty. No, we do not do the same kind of evaluation
that I am referring to unless we have some reason to believe
that veteran is homeless or at risk.
Senator Murray. So we wait until they are homeless.
Ms. Beversdorf, maybe you could comment. Would it be
helpful if we were evaluating those veterans to sort of have a
yellow flashing light this veteran may be at risk of
homelessness so we can deal with those issues sooner than that?
Ms. Beversdorf. Absolutely. Again, when people get back and
they begin to realize maybe they have more problems than they
thought and they did not anticipate. That is the time when they
should be going for services.
Now, I could actually step back a little bit. I think it is
still regrettable that when individuals get out of the service
that there is not a good transition. As I said, I am a veteran
as well and nobody certainly asked me if I had a home to go to
or I had a job. And yet, these are the major features. Do you
have health issues and employment issues and housing issues?
And if you could find those things out before someone is
discharged, that would certainly be a start. But again,
sometimes young people are so anxious to get back and they
think everything is going to be okay, and that is when things
start happening.
And I would also say, because I wanted to address what
Senator Johnson was talking about, I think we need to think
about the non-VA facilities, particularly in rural areas. They
need to be more attuned to the fact that there are going to be
veterans coming to their facilities like these mental health
centers or community health centers. We need to make sure that
we do not say, well, gee, you are a veteran, so you will have
to go 300 miles up the road to a VA medical center when this
person might be in crisis and need that assistance right away.
Senator Murray. We have a lot that we could do. We are,
unfortunately, running out of time, and I want to ask one last
question that I focused on a little bit on in my opening
statement and that I have heard mentioned several times, and
that is the issue of female veterans. You know, the VA was
designed in large part to deal with men, and the fact is that
we have a growing number of women who are serving us honorably
and when they get out, there is not the same ability for them
to access VA or they often do not even think of themselves as
veterans. And we know that the sexual trauma issue is growing
and needs to be addressed.
Mr. Weidman, you testified about some of the challenges
within the VA system that could limit the VA's ability to meet
the needs of female veterans. Can you talk a little bit about
what steps you think we need to address that population in
particular?
Mr. Weidman. Theoretically every hospital has a woman
veteran's coordinator and in some cases that is only
theoretically. There are only about 40 of the 156 medical
centers that have free-standing women's clinics. It is our view
that we need a free-standing women's clinic in every VA medical
center, certainly in the tertiary facilities. That would be
number one.
The second thing is the CBOCs. Of the 800 community-based
outreach clinics, their goal is 80 percent of them have mental
health services. But what they are calling mental health
services is a part-time psychologist or clinical social worker
who may or may not know PTSD from ABCD and much less be skilled
in meeting the needs of military sexual trauma, particularly
complicated by those young women who have been exposed to both
hostile fire and military sexual trauma. These are going to be
very complicated cases.
So you need free-standing women's clinics at most of the VA
hospitals, which they currently do not have, and you need also
to ensure that within the vet center system, there are enough
female veterans who are staffers who have the clinical skills
to provide the military sexual trauma. Although the vet center
has many fine counselors, by and large women who have been
subject to military sexual trauma are not going to open up to
men, one.
And two, you also need, just in general across the system--
and this is something VVA has been asking VA to get geared up
for now for 5 years. You cannot take women veterans who have
been exposed to hostile fire and throw them into a group
therapy session with the guys. Just think about the nature of
PTSD. Women are not going to open about the problems they have
with intimacy in front of the guys and the guys, sure as the
dickens, are not going to open up to the problems that they
have in front of the women. So in this case, you really need
separate but equal treatment and focus on the needs of women
when it comes to PTSD as well as other care.
One last point, if I may. By having a free-standing women's
clinic, nobody knows why any woman goes there, and she is much
more likely to see a psychologist and talk about the sexual
trauma if nobody knows why she goes there. She could be going
in there for physiological reasons.
Senator Murray. Sure.
Mr. Weidman. And so that is why having a free-standing
women's clinic is so important, one of the many reasons.
Senator Murray. Thank you.
Mr. Dougherty, do you have any thoughts on that?
Mr. Dougherty. Yes, I would. There are several things,
Madam Chairman.
The Department has recognized the need for sort of some
safety and security issues in residential treatment programs on
VA property. And so we have moved so that the women, if you
will, are not sort of at the end of the hallway where the men
are located and so on. All of our programs are now moving to
separate areas so that the women have their own environment in
which to be housed and placed.
Under our community programs, we have women-only programs
under the Grant and Per Diem Program. And we also have programs
for women veterans, including those who have children, as
special needs funding so we can fund some of those additional
services that those women need.
But under the HUD-VASH program, we think one of the great
advantages this is giving us is that for many of those women
who have children or have families, this will give them a place
to have that place in the community where they can then go and
access VA health care services, where before they would be
reluctant to come and get services from us. So we think this
will be a great addition to particularly those younger women
veterans coming back from service in Iraq and Afghanistan.
Senator Murray. Thank you very much.
Chairman Johnson, do you have any additional questions?
Senator Johnson. No.
ADDITIONAL COMMITTEE QUESTIONS
Senator Murray. We do have some additional questions from
other members of the committee. Our time has run out. We will
submit those and ask all of you to respond for the record.
But let me just personally thank each and every one of you
for your commitment to this critically important issue and your
time and energy on working on it and coming before us and
giving us a lot to ponder as we move forward to try and meet
this tremendous need. So thank you very much to all of you.
[The following questions were not asked at the hearing, but
were submitted to the witnesses for response subsequent to the
hearing:]
Questions Submitted to Mark Johnston
Questions Submitted by Senator Patty Murray
THE HUD-VASH PROGRAM
Question. Our Nation now has approximately 20 years of experience
with the issue of homeless veterans. We know that veterans are over-
represented among the homeless population. Every night as many as one
out of every four homeless people on the street is a veteran.
This past year, I worked with Senator Bond, as well as our
colleagues on the Military Construction VA Subcommittee to help tackle
this problem. For the first time since 1994, we provided new HUD-
Veterans Affairs Supportive Housing or HUD-VASH vouchers to get over
10,000 homeless veterans into permanent housing and provide them with
the services they need.
HUD and VA recently announced the $75 million that Congress
provided last year to fund these vouchers. Sites were selected in every
State. Among the factors that VA and HUD considered in determining what
communities received vouchers, were the homeless population of the area
and proximity to VA medical centers. Mr. Johnston, can you provide more
details on how the sites were selected?
Answer. The sites that received HUD-VASH vouchers across the
country were selected through a collaborative, two-step process between
the VA and HUD. The VA distributed the first approximately 7,500
vouchers in blocks of 35 (per the case management ratio) based on need
data and on ensuring equitable geographic distribution. HUD then
reviewed data on the number of homeless veterans reported by Continuums
of Care (CoC) in 2006 and 2007, and cross referenced the geographic
areas covered by VA Medical Centers and CoCs. HUD then supplemented
with additional vouchers (also in blocks of 35) in those areas with
high numbers of reported homeless veterans. PHA administrative
performance was also taken into account.
Question. How do you address the concerns of communities that
weren't selected, but that have homeless veterans who need services,
particularly those in rural areas?
Answer. The VA believes that there will be many additional sites
that will be specifically identified and that can be addressed in the
next round of funding. The VA has suggested having communities that are
interested in securing new HUD-VASH vouchers for their community
contact their nearest VA Medical Center and talk with the local VA
homeless coordinator. The VA believes this contact will help address
the need for HUD-VASH services in these areas. The VA expects this
additional contact will enhance the penetration of this program in
smaller and more rural areas of the country.
Question. If additional funding was provided in 2009, will you use
a similar selection process, and what advice would you give communities
that you would like to receive vouchers that weren't selected?
Answer. We believe that there will be many additional sites that
can be specifically addressed in a next round of funding. Matching
resources with total geographic need and concentrations of need is a
complex undertaking. The program is working through all VA-Medical
Centers and therefore provides significant coverage across the country.
Additional funding will allow the program to achieve growth depth of
coverage. The VA has specifically suggested having communities that are
interested in securing new HUD-VASH vouchers for their community
contact their nearest VA Medical Center and talk with the local VA
homeless coordinator. We believe this contact will help address the
need for HUD-VASH services in these areas. It is expected that this
enhanced contact will enhance the penetration of this program in
smaller and more rural areas of the country.
Question. I have heard in my community that there is a desire to
make these vouchers project-based. So, instead of tying the vouchers to
tenants who may move around, the vouchers would be tied to a particular
building. This would help communities finance permanent housing
facilities for veterans. Mr. Johnston, is HUD planning to allow PHAs to
project-base these vouchers in 2008?
Answer. Yes. Section j of the Implementation of the HUD-VA
Supportive Housing Program (HUD-VASH Operating Requirements) published
in the Federal Register on May 6, 2008, states that HUD will consider,
on a case-by-case basis, requests from the PHA (with the support of the
VA Medical Center) to project-base these vouchers in accordance with 24
CFR section 983.
RAPID RE-HOUSING
Question. As you know, I included a rapid re-housing program for
families in last year's Transportation and Housing Appropriation's
bill. This approach helps families who are in need of short-term
assistance get the resources they need--such as rental assistance and
other support services--to help prevent them from falling into
homelessness. Mr. Berg's testimony suggests a similar approach could
work for veterans. Based on what we know about prevention, do you think
that a similar program would be effective in helping veterans at risk
of homelessness?
Answer. HUD is in the early stages of implementing the Rapid Re-
Housing for Families Demonstration Program (RRH) through the 2008 CoC
NOFA. HUD anticipates that some of the families to be served through
this demonstration will be families with veteran head of households. In
addition, many veteran families currently living in shelters or on the
streets will be eligible to receive permanent, rather than
transitional, housing and services through HUD-VASH. The lessons
learned through both the HUD-VASH and the Rapid Re-Housing
Demonstration will help to inform HUD on how to proceed to serve
veterans effectively.
COORDINATION BETWEEN HUD AND THE VA
Question. We have created many programs to address the needs of
homeless veterans. Programs range from housing to health care to job
training, and they are scattered among various Federal agencies,
including HUD, the VA and the Department of Labor. I held a roundtable
on the issue of homeless veterans in Seattle in February and I heard
from some at the event that there was little coordination between HUD
and the VA on the ground level. Mr. Johnston, how can be we sure that
coordination between HUD and the VA is occurring in the field?
Answer. Ensuring effective coordination of the HUD-VASH program at
the local level has been a priority of both HUD and the VA in
implementing the HUD-VASH program. Some of the actions to ensure
coordination include:
--As soon as participating VA medical centers and Public Housing
Agencies (PHAs) were identified, the VA directed its homeless
network coordinators to make contact with the participating
PHAs so local planning and coordination could begin. HUD field
office staff helped establish these local connections between
PHAs and VA staff.
--On May 8, 2008, HUD and the VA held a joint video broadcast to
explain the HUD-VASH operating requirements to PHAs and the VA
homeless network staff and to give them the opportunity to ask
questions.
--On-going HUD and VA teleconferences with the HUD-VASH sites are
planned to monitor progress and to identify problems that need
attention.
--Regular HUD teleconference calls with our field offices relating to
HUD-VASH program operations as well as VA coordination at the
national and local levels will enable HUD to identify potential
problems and propose solutions.
--An additional tool, a joint VA-HUD tracking system, is being
developed to enable HUD and the VA to identify sites that need
extra technical assistance.
the role of the u.s. interagency council on homelessness
Question. The Interagency Council on Homelessness is charged with
coordinating the Federal response to homelessness. Members of ICH
represent various departments and agencies within the Federal
Government, including HUD, the VA, the Department of Defense and the
Department of Labor. I think it is noteworthy that Secretary Peake is
currently chairing the ICH. I hope that he will take this opportunity
to promote better coordination and a greater commitment by Federal
agencies to ending homelessness for veterans. Mr. Johnston, what can
the ICH do to improve coordination among Federal agencies?
Answer. The Interagency Council on Homelessness (ICH) has had
success with program initiatives involving HHS, VA and HUD, and has
learned lessons about how those types of collaborative initiatives
could work better given the statutory and regulatory framework of each
agency's programs. The ICH could use the lessons learned to explore the
possibility of future joint initiatives that address emerging needs of
homeless families and individuals.
______
Questions Submitted by Senator Richard J. Durbin
CHRONICALLY HOMELESS VETERANS
Question. Studies show that permanent supportive housing is an
effective, cost-efficient way to address the issue of the chronically
homeless. Your written testimony cites a number of ways HUD is working
to support these initiatives, including the Collaborative Initiative to
Help End Chronic Homelessness, the Continuum of Care competition, and
initiatives with the Department of Labor. In sum, these programs have
served fewer than 1,000 chronically homeless veterans--out of the
64,000 veterans who were chronically homeless in 2005. How does HUD
plan on reaching the other 63,000+ chronically homeless veterans?
Answer. HUD expects that many chronically homeless veterans will be
provided permanent housing through the HUD-VASH program. In addition to
those served in HUD-VASH, HUD estimates that at least 10 percent of
adult participants served through HUD's homeless programs are veterans.
In addition to targeted homeless programs, a significant number of
Public Housing Authorities around the country have implemented
preferences for either persons who are homeless or veterans, or both.
HUD-VASH
Question. HUD-VA Supported Housing (HUD-VASH) combines section 8
vouchers with VA case management and clinical services for homeless
veterans with severe psychiatric or substance abuse disorders. In your
testimony, you said that HUD and VA expect to provide housing and
services to about 10,000 homeless veterans through the HUD-VASH using
the $75 million provided in the fiscal year 2008 omnibus. You also said
that the agencies expect to serve an additional 10,000 homeless
veterans through the President's fiscal year 2009 request of $75
million. Given the fact that there are hundreds of thousands of
homeless veterans, why is the administration requesting flat funding?
Answer. The administration is not requesting flat funding. The
administration's fiscal year 2009 budget request for the Homeless
Assistance Grants account includes an increase of over $50 million
above the 2008 appropriation. In addition to the increased request for
homeless programs, the administration included a request for an
additional $75 million for HUD-VASH, which will fund up to 10,000
additional units of permanent housing vouchers for homeless veterans.
______
Questions Submitted by Senator Dianne Feinstein
WEST LA VA CAMPUS
Question. Several months ago, I was told that the VA would
coordinate with HUD to come up with a plan for supportive, long-term
therapeutic housing at buildings 205, 208 and 209 on the West LA VA
campus. The goal of this strategy was to begin the McKinney-Vento
process leading to the formal Federal Register notice requesting
letters of interest. Are you aware of the West LA VA designation of
three buildings for homeless services?
Answer. Yes. HUD and HHS staff have been briefed by a
representative of the VA on this issue and HUD is prepared to work with
the VA as they move forward.
Question. To what extent have you worked with the VA to provide
vouchers for supportive housing at these buildings?
Answer. These buildings have not been submitted for screening
through the McKinney title V process, and have not received funding
(title V provides no funding).
Question. What sources of funds are available to rehabilitate these
historic buildings for use as homeless programs for veterans?
Answer. Funds for rehabilitation of buildings can come from a
variety of Federal, State and local sources. Some potential HUD sources
include the Community Development Block Grants, the HOME Program, and
Homeless Assistance Grants.
MC KINNEY-VENTO PROCESS
Question. Has the multi-agency McKinney process been used
successfully recently for housing programs? What are some examples?
Answer. Yes. The title V program has been used successfully. While
HUD makes the suitability determinations, HHS must process and approve
the particular applications for homeless use. Three examples of
successful title V applications include:
--VA parcel, Los Angeles CA: Salvation Army used as transitional
housing;
--Homestead AFB, FL: Used for transitional housing; and
--Boyett Village, Albany, GA: Used for transitional housing.
HUD-VASH
Question. As you note in your testimony, in fiscal year 2008, the
Federal Government authorized 10,000 permanent housing units for
homeless veterans, including 800 housing vouchers for Southern
California under HUD's Veterans Affairs Supportive Housing Program
(HUD-VASH) to provide rental assistance and supportive services to
veterans. While the city of Los Angeles received the vouchers, neither
the county nor any other city within the county was awarded vouchers.
Given the large number of homeless veterans spread throughout the
County of Los Angeles, how will the HUD-VA supportive housing rental
assistance vouchers and supportive services program be implemented to
allow homeless veterans the choice to move into homes throughout the 88
cities within the County of Los Angeles?
Answer. Normal portability provisions of the HCV program will allow
the family to live within or outside the jurisdiction of the issuing
(or initial) PHA as long as the family is able to receive case
management services from the VAMC as determined by that entity. In
other words, families issued vouchers by the Housing Authority of the
city of Los Angeles may move under portability throughout Los Angeles
County and elsewhere as long as the family can receive case management
services from the Greater Los Angeles VA Medical Center.
______
Question Submitted by Senator Mitch McConnell
PROGRAM COORDINATION
Question. What is HUD doing to improve coordination between its
substance abuse counseling, mental health counseling and homelessness
programs?
Answer. Through its Homeless Assistance programs, HUD funds housing
as well as many types of supportive services necessary to assist
homeless families and individuals obtain and remain in their housing.
These services are funded through the comprehensive ``Continuum of
Care'' approach and are coordinated at the local level by grantees and
homeless planning groups. In order to maximize the housing resources
provided through HUD's competitive programs, programs often leverage
services provided through other Federal agencies such as HHS and the
VA.
______
Questions Submitted to Peter H. Dougherty
Questions Submitted by Senator Patty Murray
RAPID RE-HOUSING MODEL FOR HOMELESS VETERANS
Question. One of the major reasons that veterans fall into
homelessness is that they are struggling economically, and more
specifically, they have difficulty maintaining or finding safe and
affordable housing. Often, these veterans find themselves in a
difficult situation, and if provided some temporary housing assistance
they might be able to avoid homelessness. Mr. Berg's testimony suggests
that one of the missing pieces in the assistance that we provide to our
veterans is some sort of housing assistance. He further suggests some
sort of temporary assistance program that could help prevent
homelessness.
Mr. Dougherty, if given the resources, do you think that the VA
could implement, or assist in implementing, such a program?
Answer. VA does not have the statutory authority or the resources
to provide temporary housing assistance to at risk veterans. We provide
health care and benefits to eligible veterans struggling economically
and having difficulty maintaining and finding affordable housing. Early
and preventive intervention with the VA health care system and our
benefits assistance could be very helpful in preventing some veterans
from becoming chronically homeless.
COORDINATION BETWEEN FEDERAL AGENCIES IN THE FIELD
Question. We have created many programs to address the needs of
homeless veterans. Programs range from housing to health care to job
training, and they are scattered among various Federal agencies,
including HUD, the VA and the Department of Labor. I held a roundtable
on the issue of homeless veterans in Seattle in February and I heard
from some at the event that there was little coordination between HUD
and the VA on the ground level.
Mr. Dougherty, are you concerned that poor coordination in the
field could be keeping veterans from getting all of the services that
are available to them?
Answer. Nationally VA works very closely with the field to
coordinate health care and benefits for veterans with other Federal,
State, and local agencies as well as with non profit service providers.
We have a major focus in improving our local relationships. This is a
major priority of mine in my roles as National Director Homeless
Veterans Programs and Acting Deputy Assistant Secretary for
Intergovernmental Affairs.
Question. How can we sure that coordination between HUD and the VA,
and other Federal agencies, is occurring in the field?
Answer. I am in contact with one or more HUD offices daily. VA will
be holding a national conference in August 2008 to improve
collaboration between HUD and VA specifically on HUD-VASH. Secretary
Peake is the Chair of the U.S. Interagency Council on Homelessness
(ICH). I am the designated Senior Policy Representative for the ICH and
there is a major focus to improve coordination and planning of services
and initiatives among Federal partners. Last year VA hosted more than
9,000 individuals and organizations at more than 100 community homeless
assessment meetings.
Question. Mr. Dougherty, does the VA have any similar incentives
that promote coordination?
Answer. Under VA's Homeless Providers Grant and Per Diem Program,
applications that show coordination have a rating factor that will
improve their score. VA looks specifically for coordination and
planning of services at the local level.
THE ROLE OF THE U.S. INTERAGENCY COUNCIL ON HOMELESSNESS
Question. The Interagency Council on Homelessness is charged with
coordinating the Federal response to homelessness. Members of ICH
represent various departments and agencies within the Federal
Government, including HUD, the VA, the Department of Defense and the
Department of Labor. I think it is noteworthy that Secretary Peake is
currently chairing the ICH. I hope that he will take this opportunity
to promote better coordination and a greater commitment by Federal
agencies to ending homelessness for veterans.
Mr. Dougherty, what can the ICH do to improve coordination among
Federal agencies?
Answer. VA has participated in every ICH meeting since the council
reorganized. In addition we have regular (normally monthly) meetings as
a Senior Policy Group. Those efforts led to a coordinated response to
Chronic Homelessness both by defining the term and funding the Chronic
Homeless Initiative. That effort also caused a change in policy
regarding availability of property under McKinney-Vento. These efforts
re-enforced our efforts that led to several successful multi-
departmental efforts including the Incarcerated Veterans Transition
Program with the Departments of Labor and Justice.
TRANSITIONAL HOUSING VERSUS PERMANENT HOUSING
Question. The HUD-VASH program is the only program that the VA
participates in that provides for permanent housing instead of
temporary transitional housing.
Mr. Dougherty, has the VA considered providing resources for
permanent housing for veterans? If not, why not?
Answer. VA has submitted a draft bill to Congress that would permit
VA to carry out a pilot program to make grants to public and nonprofit
(including faith-based and community) organizations to coordinate the
provision of supportive services available in the local community to
very low income, formerly homeless veterans residing in permanent
housing. We look forward to working with Congress to enact this
legislative proposal.
THE VA'S GRANT AND PER DIEM PROGRAM
Question. The Grant and Per Diem Program is an essential tool that
communities use to address the issue of homelessness among our
veterans. It allows communities to provide the housing and services to
our Nation's veterans who might otherwise be sleeping on the street. It
has been credited with helping to reduce the number of homeless
veterans over the past several years. However, we have also heard
testimony from our witnesses here today that funding for this program
needs to be increased.
There are also concerns about the structure of the program.
Community-based organizations contend that the rate at which these
organizations are compensated, and the fact that it is done on a
reimbursable basis makes it difficult for them to provide veterans with
the services that they need.
Mr. Dougherty, do you think there are legislative or administrative
changes that should be made to improve this program?
Answer. VA has testified in support of certain amendments proposed
in S. 1384 to VA's Homeless Providers Grant and Per Diem Program. In
particular, section 1 of that legislation would eliminate the existing
requirement to adjust the rate of per diem paid to a provider under
VA's Homeless Providers Grant and Per diem Program by excluding other
sources of income the provider receives for furnishing services to
homeless veterans through other programs. Such other sources of income
would include payments and grants furnished to the provider by other
departments or agencies at the Federal, State, and local level as well
by private entities. VA supports this provision with the following
caveat. As currently worded, section 1 could permit a grantee-provider
to receive more than 100 per cent of its costs for furnishing services
to homeless veterans. For purposes of accountability, we recommend that
Congress amend the provision to ensure that the potential for such an
occurrence is prevented. There are no costs associated with this
provision.
______
Questions Submitted by Senator Dianne Feinstein
Question. In my January 31 meeting with you and Secretary Peake,
you indicated that you would work under the McKinney-Vento process to
make available three buildings designated by Secretary Nicholson to
serve homeless veterans, given the 21,000 homeless veterans in Los
Angeles County.
At that meeting, I was told that the Department would hold a public
meeting within a month to discuss a future notice for supportive, long-
term therapeutic housing at buildings 205, 208 and 209 on the West LA
VA campus. The goal of this strategy was to begin the McKinney-Vento
process leading to the formal Federal Register notice requesting
letters of interest.
During the meeting, you assured me that you would be able to use
the McKinney-Vento process to make buildings available to serve
homeless veterans and that the process would get underway within a
month.
Since that meeting, you have expressed concerns to my staff about
using McKinney-Vento for this project and mentioned that you may
investigate other options. My understanding is that you have placed the
McKinney-Vento process on hold.
My staff followed up with you on several occasions, but since that
meeting over 3 months ago, it appears that the VA has made little to no
progress on moving forward with a plan. In my view, we certainly have
lost precious time since the VA's designation of use for these
buildings in August 2007.
What progress have you made for the three buildings that have been
designated for use for homeless veterans programs?
Answer. VA has completed a full assessment of all programs and
activities within the 3 buildings. There are numerous program related
activities in those buildings to help veterans including a Patient
Wellness Clinic, occupational therapy, and Mental Health intensive case
management.
Question. Why have you put McKinney Vento on hold?
Answer. As expressed in my first meeting with you and in subsequent
meetings with you and your staff there appears to be an expectation of
the type of programs and services to be housed in those three buildings
that I am convinced will be difficult to achieve by using McKinney-
Vento. We have every intention of following the Secretary's decision
last year to make them available for homeless services and we continue
to work with you achieve the type of housing with services that are
appropriate.
Question. Have you changed the plan for these buildings that we all
agreed would be used in our January 31 meeting?
Answer. At each meeting and conversations with you and your staff I
have stated that our hope is to insure that the buildings can be used
to provide high quality housing and services for homeless veterans.
That has not changed.
Question. Do you think the process laid-out in the January 31
meeting is not the best way to ensure sufficient proposals for long-
term homeless housing? If so, please provide your proposed
alternatives.
Answer. VA wants to ensure that each building is used
appropriately. We are exploring enhanced sharing and declaring the
buildings as underutilized buildings and are making them available
under McKinney-Vento. In both cases we will only proceed after holding
extensive meetings that would allow potential applicants for long-term
housing plenty of notice to get prepared before any notice is
published.
Question. Can you explain to me why you are reluctant to use the
McKinney-Vento process to seek to provide long-term homeless housing?
Answer. We have no control over the type of services or use for the
buildings under McKinney-Vento process. We think this could achieve the
desired result, but it is far more complicated.
Question. Although we have yet to see action in over 3 months, do
you have a proposed timeline for implementation of a plan to provide
this housing?
Answer. A formal letter outlining our action is forthcoming.
Question. If you have not made progress, what is your current
proposal for a way forward?
Answer. A plan to proceed is underway.
Question. As you note in your testimony, in fiscal year 2008, the
Federal Government authorized 10,000 permanent housing units for
homeless veterans, including 800 housing vouchers for Southern
California under HUD's Veterans Affairs Supportive Housing Program
(HUD-VASH) to provide rental assistance and supportive services to
veterans. While the city of Los Angeles received the vouchers, neither
the county nor any other city within the county was awarded vouchers.
Given the large number of homeless veterans spread throughout the
County of Los Angeles, how will the HUD-VA supportive housing rental
assistance vouchers and supportive services program be implemented to
allow homeless veterans the choice to move into homes throughout the 88
cities within the County of Los Angeles?
Answer. The decision to use a specific housing authority is made by
the Department of Housing and Urban Development. I would defer to HUD
to respond to this question.
Question. In a document prepared by Dr. John Nakashima of the VA
Greater Los Angeles Healthcare System in March 2007, he noted some
trends that are important for consideration of the future of the VA
system. Specifically, he noted that Southern California VA centers are
seeing an increase in the number of homeless veteran families at
homeless centers. I have previously raised the idea of the VA providing
supportive family housing for veteran families, and personally believe
the West LA VA campus presents a terrific opportunity to pilot a
supportive family housing program.
Do you concur with Dr. Nakashima's assessment that homeless family
housing needs have increased in recent years?
Answer. Dr. Nakashima's review concluded that our outreach efforts
continue to show that there is a slight increase in the percentage of
homeless veterans with families.
Question. Have you explored the need for this type of housing and
the possibility of the VA assisting veteran families with supportive
housing, especially for homeless families and families of veterans
returning from combat with multiple amputations, post-traumatic stress
disorder, and traumatic brain injury?
Answer. Patients with severe disability from the war are case
managed, and rarely are homeless. The office of Care Coordination
insures that the war injured veterans receive case management services
and appropriate follow-up services. VA conducts an individualized
assessment of all incoming patients and places them in residential
treatment setting or housing alternatives that can accommodate and
provide care for their disabilities.
Question. Do you believe the VA is capable of providing supportive
family housing, both in general and specifically at the West LA VA
campus?
Answer. VA has some legal limitation regarding services to non-
veterans.
______
Questions Submitted by Senator Mitch McConnell
Question. What additional legislative authorities does the VA need
to improve its efforts towards reducing homelessness among the veteran
population?
Answer. VA has submitted a draft bill to Congress that would permit
the Department to carry out a pilot program to make grants to public
and nonprofit (including faith-based and community) organizations to
coordinate the provision of supportive services available in the local
community to very low income, formerly homeless veterans residing in
permanent housing. We look forward to working with Congress to enact
this legislative proposal.
Question. How can the VA better target initiatives or programming
to assist homeless veterans in rural areas, such as in my home State of
Kentucky?
Answer. The Community Homelessness Assessment, Local Education and
Networking Groups (CHALENG) For Veterans meetings is one mechanism to
identify the unmet homeless veterans' needs, develop an inventory of
existing services, and identify gaps in services. This planning is
completed at the local VA level with input and collaboration from other
Federal, State, and local community providers. VA can better target
homeless veterans' needs through participation in the local HUD CoC
planning process and development of your State plan to End Chronic
Homelessness.
Question. How can the VA better target certain populations more
likely to become homeless, such as incarcerated veterans or those with
substance abuse problems?
Answer. Collaborations with the U.S. Departments of Labor (DOL) and
Justice to assist in a coordinated approach to the delivery of services
to incarcerated veterans are reducing homelessness in the incarcerated
veteran population. The Incarcerated Veterans Transition Program (IVTP)
grantee Volunteers of America in Kentucky reported a less than 10
percent recidivism rate for veterans transitioning from incarceration
to community re-entry. VA has approved 39 Incarcerated Veteran Outreach
Specialists to coordinate pre-release planning from a State or Federal
prison. Each VA Network has at least one specialist assigned to assist
with pre-release planning and coordination of services.
Question. What is the VA doing to improve coordination between its
substance abuse counseling, mental health counseling and homelessness
programs?
Answer. VA outreach and case management staff refer homeless
veterans to appropriate mental health and substance abuse services and
ensure appropriate follow-up services. The 2007 Northeast Program
Evaluation Center (NEPEC) data indicate an average of 75 percent fewer
substance abuse and mental health problems for homeless veterans at
time of discharge from a Grant and Per Diem transitional housing
program. VA hired 30 substance abuse counselors to provide on site
services to veterans residing in transitional housing provided by a
grantee under the VA Grant and Per Diem Program.
Question. Is the VA cooperating with non-profit agencies in local
communities to help address problems associated with homelessness?
Answer. Nationally VA works very closely with the field to
coordinate health care and benefits for veterans with other community
and faith-based community organizations. We have a major focus in
improving and strengthening our relationships with local community non-
profit and faith based organizations. This is a major priority of mine
in my roles as National Director Homeless Veterans Programs and Acting
Deputy Assistant Secretary for Intergovernmental Affairs. Last year, VA
hosted more than 9,000 individuals and organizations at more than 100
community assessment meetings to identify unmet homeless veterans
needs, gaps in services, and develop plans of action in collaboration
with local community partners to address the local needs.
Question. What is the VA's optimal staffing level for case
management in Kentucky?
Answer. There are 8 operational Grant and Per Diem Programs (GPD)
with 189 beds in the State of Kentucky. VA has authorized 3 GPD
liaisons to provide oversight and coordination of services for veterans
placed in transitional housing. VA has a designated Coordinator for
Homeless Veterans Program at each VA Medical Center. The case
management staff veteran ratio for the HUD-VASH Program is one case
manager to 35 veterans. Kentucky received 70 section 8 housing vouchers
and VA will hire two staff to provide required case management
services.
Question. What is the optimal staffing level at each community-
based outpatient clinic (CBOC) in Kentucky? Is each properly staffed?
Answer. Each Kentucky CBOC is staffed at the optimal level in
accordance with VA guidelines:
--One full time provider for 1,000 to 1,400 patients.
--At least two support staff (i.e. nurse) for each provider.
Question. What is the average wait time for an appointment at a
Kentucky CBOC?
Answer. The average wait time for an appointment at a Kentucky CBOC
is less than 30 days from the date of the initial request.
Question. How could the VA increase utilization of CBOC's by rural
veterans, particularly those in Kentucky?
Answer. To increase rural veterans' utilization of CBOCs in
Kentucky, VA plans to open six new clinics before the end of fiscal
year 2008 and one in fiscal year 2009. These CBOCs will service rural
areas and improve access for rural veterans in Kentucky. VHA recognizes
that delivering health care closer to the veterans' place of residence
is one way to increase utilization of CBOCs and to better achieve our
mission of being a patient-centered and integrated health care
organization.
Question. What are the transportation options available to rural
veterans and how can access to transportation be improved?
Answer. Private organizations and public institutions provide
different transportation options to rural veterans. Veteran Service
Organizations (VSO) provides van service to VA clinics and medical
centers in many areas. County and State governments may provide public
transportation to or near VA clinics. In some instances, local
community resources that offer transportation may offer it at low cost
or no cost to low income veterans. Low income and service-connected
veterans may be eligible for beneficiary travel reimbursement through
VA.
Increasing the availability of VSO van service and county or State
transportation resources could improve access to transportation for
Kentucky's veterans.
Question. What is the policy on mental health screenings for
veterans seeking or receiving care at CBOCs?
Answer. VA's CBOC policy on mental health screening is that all
patients are screened for mental health issues by their primary care
provider during their initial primary care visit and annually
thereafter. If an initial screening suggests that treatment or further
evaluation is needed, the veteran is seen by a CBOC mental health
provider or, if a higher level of care is required, referred to the
CBOC's parent facility. All veterans in a CBOC are also screened
annually for depression, PTSD, alcohol misuse and suicide risk.
Question. What avenues do patients have to report problems or
complaints with care at CBOCs?
Answer. VA tracks patient satisfaction for all medical centers and
CBOCs through national patient satisfaction surveys. Each CBOC has a
service-level representative who is trained to receive and address
complaints. Each VA medical center (parent facility) has seasoned
patient advocates who are available to the CBOCs.
Veterans are encouraged to report specific problems or complaints
that are not resolved at the service-level to the Patient Advocate's
Office. These complaints are tracked through the Patient Advocate
Tracking System. All complaints and concerns are tracked in a national
data base allowing for analysis of trends and benchmarking.
Question. Please provide a list of operational CBOCs in Kentucky
and an update on the status of those pending.
Answer.
--------------------------------------------------------------------------------------------------------------------------------------------------------
State (where CBOC
CBOC Name CBOC Status Parent Facility is located) County Date Opened
--------------------------------------------------------------------------------------------------------------------------------------------------------
Prestonburg..................................... Open............... Huntington......... KY................. Floyd.............. 07/21/91
Somerset........................................ Open............... Lexington.......... KY................. Pulaski............ 10/01/00
Morehead........................................ Open............... Lexington.......... KY................. Rowan.............. 03/17/08
Fort Knox....................................... Open............... Louisville......... KY................. Hardin............. 01/05/98
Shively......................................... Open............... Louisville......... KY................. Jefferson.......... 07/24/00
Dupont.......................................... Open............... Louisville......... KY................. Jefferson.......... 10/19/04
Newburg......................................... Open............... Louisville......... KY................. Jefferson.......... 10/28/04
Bowling Green................................... Open............... Tennessee Valley HS KY................. Warren............. 06/01/97
Ft. Campbell.................................... Open............... Tennessee Valley HS KY................. Christian.......... 07/01/01
Paducah......................................... Open............... Marion, IL......... KY................. McCracken.......... 03/01/98
Hanson.......................................... Open............... Marion, IL......... KY................. Hopkins............ 08/19/05
Florence........................................ Open............... Cincinnati......... KY................. Boone.............. 09/26/06
Bellevue........................................ Open............... Cincinnati......... KY................. Campbell........... 06/21/99
Community Based Clinics approved and scheduled
to open by the end of the fiscal year 2008 or
fiscal year 2009 are:
Berea....................................... Approved........... Lexington.......... KY................. Madison............ 9/08 \1\
Hazard...................................... Approved........... Lexington.......... KY................. Perry.............. 6/23/08
Leitchfield................................. Approved........... Louisville......... KY................. Grayson............ 9/08 \1\
Carollton................................... Approved........... Louisville......... KY................. Carroll............ 9/08 \1\
Hopkinsville................................ Approved........... Tennessee Valley HS KY................. Christian.......... 9/08 \1\
Owensboro................................... Approved........... Marion, IL......... KY................. Daviess............ 9/08 \1\
Mayfield.................................... Approved........... Marion, IL......... KY................. Graves............. 12/08 \2\
--------------------------------------------------------------------------------------------------------------------------------------------------------
\1\ On schedule to open September, 2008.
\2\ This CBOC was approved for fiscal year 2009, it is expected to be operational by the end of the first quarter of fiscal year 2009.
Question. Of the operational CBOCs in Kentucky, please list which
ones provide services from contracted health care.
Answer. Bowling Green is the only CBOC in Kentucky that provides
services from contracted health care. All others are staffed by VA
employees.
______
Questions Submitted to Cheryl Beversdorf
Questions Submitted by Senator Patty Murray
THE HUD-VASH PROGRAM
Question. In providing funding and developing the legislative
language for HUD-VASH last year, we took great care to ensure that the
program had enough flexibility to serve the most vulnerable veterans.
We asked HUD and VA to consider the nearness to VA Medical Centers to
ensure that services would be delivered efficiently. But many veterans
are located in rural areas--far from a VA Medical Center--perhaps
making them even more vulnerable to homelessness.
How can the VA better serve homeless veterans in need of permanent
supportive housing that aren't near a VA medical center?
Answer. The new HUD-VASH voucher program goes a long way towards
making section 8 permanent housing available to veterans in rural
areas. Rural homeless tend to be much less visible as ``on the street''
homeless and more likely to be living in cars, on friend's couches, or
in substandard spaces. VA case managers will monitor these veterans and
they will avail themselves of services provided by both VA and the
community. One of the VA Advisory Committee on Homeless Veterans major
recommendations last year was for VA to develop programs for supportive
services for permanent housing, including rural homeless.
Additionally, for all veterans at risk of homelessness, the first
line of engagement should be a strong partnership between VA and
community health centers, especially in rural areas underserved by the
VA. While current practice allows a veteran to access services at non-
VA facilities, the process is often frustrating and problematic,
particularly for a veteran in crisis. Protocols should be developed to
allow VA and community clinics to process a veteran's request for
assistance directly and immediately without requiring the patient to
first go to a VA medical facility.
PREVENTING HOMELESSNESS
Question. In addition to all of the physical and mental challenges
that our veterans face, they are also facing a declining economy. Gas
and food prices are rising, affordable housing is getting harder to
find and jobs are scarce. Addressing the economic challenges that many
veterans face will be important in preventing more veterans from
becoming homeless.
Ms. Beversdorf, how can we get veterans better job training to help
them achieve greater economic stability?
Answer. Make the Transition Assistance Program (TAP) mandatory for
all separating troops and provide enough employment and training
assistance staff to develop a separation plan for each new veteran. The
Warrior Transition Unit (WTU) at Fort Drum, NY could serve as a
prototype for getting this done--the combination of case management and
resources including education, career preparation, and employment
assistance is very successful.
Additionally, last year the U.S. Department of Labor Veterans'
Employment and Training Service established the Advisory Committee on
Veterans' Employment and Training and Employer Outreach (ACVETEO),
which is responsible for assessing the employment and training needs of
the Nation's veterans. Such needs may include transition assistance,
protection of employment and reemployment rights, education, skills
training, and integration into the workforce, among others. Not later
than December 31 of each year ACVETEO is required to submit a report to
the Secretary of Labor and the Senate and House Committees on Veterans
Affairs on the employment and training needs of veterans for the
previous fiscal year with a special emphasis on disabled veterans.
HOMELESS VETERANS WITH FAMILIES
Question. The number of female veterans is increasing. We are also
seeing an increasing number of families with dependent children
homeless or at-risk of homelessness. Most of the programs at the VA,
however, are not designed to meet the needs of veterans with families.
Ms. Beversdorf, what are your thoughts on the challenge of serving
female veterans, including those with children?
Answer. In-patient PTSD for returning women veterans is a need and
some may also have been sexually harassed or abused. Currently, lack of
day care prevents many female veterans from accessing VA services;
female veterans without other family support for childcare often forego
VA services rather than risk losing custody of minor children. Congress
needs to grant authority to VA to provide for services to minor
children of veterans male and female.
VA needs to continue to expand programs and services for women, the
fastest growing segment of the homeless veteran population. Additional
funding could be used under current law to increase the number of
special needs grants awarded under the GPD program. The program awards
these grants to reflect the changing demographics of the homeless
veteran population. One grant targets women veterans, including those
with dependent children. Women now account for more than 14 percent of
the forces deployed to Iraq and Afghanistan, yet there are only eight
GPD programs receiving special needs grants for women in the country.
TRANSITIONAL HOUSING PROGRAMS
Question. Many homeless veterans struggle with mental illness and
substance abuse. It is critical for them to get into stable housing so
they can concentrate on getting well instead of worrying about where
they are going to sleep that night. The VA has many transitional
housing programs, but this assistance is limited to 2 years. Many
veterans will continue to need housing or supportive services after
they must leave these programs.
Ms. Beversdorf, what happens to veterans who hit the time limit,
but are not yet ready to transition into housing on their own?
Answer. There is flexibility in the VA program that allows
extension of transitional services beyond 2 years if clinically
appropriate. Those veterans who cannot ``graduate'' from transitional
programs are candidates for permanent supportive housing and one of the
main reasons for creating the new section 8, HUD-VASH program. This is
currently only available through non-VA channels (HHS) but VA has been
encouraged to develop veteran specific supportive services by the
Advisory Committee on Homeless Veterans.
The Senate recently passed S. 2162, the Veterans' Mental Health and
Other Care Improvements Act of 2008, which contains a measure that
would provide grants to government and community agencies to provide
supportive services to low-income veterans in permanent housing. Funds
would be used to provide continuing case management, counseling, job
training, transportation and child care needs. Similar legislation was
included in H.R. 2874, which the House passed last year. Another bill,
S. 2273, the Enhanced Opportunities for Formerly Homeless Veterans
Residing in Permanent Housing Act of 2007, was recently considered by
the Senate Veterans Affairs Committee and, if enacted, would provide
supportive services to very low income, formerly homeless veterans
residing in permanent housing.
Question. Do we have any data on the number or percentage of
veterans that benefit from transitional housing assistance but then end
up homeless because the 2-year period of eligibility expires?
Answer. The Northeast Program Evaluation Center (NEPEC) at the West
Haven VAMC collects outcome data from VA Grant and Per Diem program
operators.
THE VA'S GRANT AND PER DIEM PROGRAM
Question. The Grant and Per Diem Program is an essential tool that
communities use to address the issue of homelessness among our
veterans. It allows communities to provide the housing and services to
our Nation's veterans who might otherwise be sleeping on the street. It
has been credited with helping to reduce the number of homeless
veterans over the past several years. However, we have also heard
testimony from our witnesses here today that funding for this program
needs to be increased.
Ms. Beversdorf, you have both testified that you would like to see
the program funded at $200 million. Can you explain how you arrived at
this number?
Answer. In September 2007, despite the commendable growth and
success of the Grant and Per Diem Program and its role in reducing the
incidence of veteran homelessness, the Government Accountability Office
(GAO) reported the VA needs an additional 9,600 beds to adequately
address the current need for assistance by the homeless veteran
population. That finding was based on information provided by the VA,
the GAO's in-depth review of the GPD program, and interviews with
service providers. The VA concurred with the GAO findings.
The projected $137 million in the President's fiscal year 2009
budget request will allow for expansion of the GPD program, but it is
not nearly enough to address the needs called for in the GAO report.
For example in 2006, the VA created the position of GPD Liaisons at
each medical center to provide additional administrative support for
the GPD office and grantees. The VA published a comprehensive program
guide to better instruct grantees on funding and grant compliance
issues, and expects to provide more intense training of GPD Liaisons.
This represents a considerable and continual investment in the
administrative oversight of the program that should translate into
increased capacity to serve veterans in crisis.
Additional funding would increase the number of operational beds in
the program, but under current law it could also enhance the level of
other services that have been limited due to budget constraints. GPD
funding for homeless veteran service centers--which has not been
available in recent grant competitions--could be increased. These drop-
in centers provide food, hygienic necessities, informal social supports
and access to assistance that would otherwise be unavailable to men and
women not yet ready to enter a residential program. They also could
serve as the initial gateway for veterans in crisis who are threatened
with homelessness or dealing with issues that may result in
homelessness if not resolved. For Operation Iraqi Freedom and Enduring
Freedom (OIF/OEF) veterans in particular, this is a critical
opportunity to prevent future veteran homelessness.
Additional funding could also be used under current law to increase
the number of special needs grants awarded under the GPD program. In
addition to the need for more programs for women veterans, other
focuses include the frail elderly, increasingly important to serve
aging Vietnam-era veterans--still the largest subgroup of homeless
veterans; veterans who are terminally ill; and veterans with chronic
mental illness. These grants provide transitional housing and supports
for veteran clients as organizations work to find longer-term
supportive housing options in their communities.
Question. There are also concerns about the structure of the
program. Community-based organizations contend that the rate at which
these organizations are compensated, and the fact that it is done on a
reimbursable basis makes it difficult for them to provide veterans with
the services that they need.
Ms. Beversdorf, do you think that changes should be made to the
program in order to better serve homeless veterans?
Answer. Yes. Currently the reimbursement an organization receives
under the Grant and Per Diem Program (GPD) is based on the State
veterans' home rate--which is generally custodial care--and limited to
about $31 per day. That rate is then discounted based on additional
Federal funding an organization receives. The original intent of the
GPD program was to provide beds in a safe, substance-free environment
for veterans transitioning out of homelessness. Experience has shown
this transition also requires intense case management; counseling for
substance abuse and behavioral problems; treatment for physical and
mental illnesses; employment preparation, placement and follow-up
services; life skills training; legal assistance; family reunification
services, child care assistance. Access to these services is vital to
successful transition out of homelessness; and these all represent
additional costs to the service provider.
Many organizations receive grants from the Departments of Housing
and Urban Development, Labor, Justice, Health and Human Services, and
Education to provide specialized services for their homeless clients,
but the amount of reimbursement under the GPD program is reduced if
homeless veteran programs receive other Federal funding. The guidelines
of the GPD program make it clear that successfully competing for funds
requires links to other community-based and local government agencies,
yet penalize organizations that receive Federal funds to do so.
A payment system based on the scope of services available at a
facility rather than simply a daily amount for a veteran in a bed would
allow VA to better coordinate and regulate the GPD program. VA would,
as it does now, continue to monitor activities at GPD providers and
audit their annual reports. However, organizations that provide on-site
case management, 24-hour emergency psychiatric assistance, on-site
employment preparation and placement services, on-site kitchen and
meals, transportation assistance, child care facilities for dependent
children and other supportive services would be able to incorporate
those necessary costs in their grant applications as ``allowable''
costs chargeable to the VA under the Grant and Per Diem Program.
The list of supportive services allowable under the grant would
have to be revised, but not the application process. Organizations
would have to clearly indicate the number of veterans their programs
would serve, acceptable housing and employment ``placement targets,''
as they do now, but also an estimation of the cost and reach of their
supportive services offerings. Annual audits would validate reported
expenses and certify program outcomes. The audits are currently
required, and GPD liaisons at all VA Medical Centers are responsible
for completing these oversight functions, so there would be no
significant increase in administrative burden for the program.
Applicants would be evaluated on the number of veterans they help, the
breadth of services they provide, and success reaching or exceeding
their goals.
While the prime objective of this recommendation is to help
organizations provide the best level of care and continuity of services
possible, it would also provide more financial stability to
organizations--mostly nonprofits--focusing on service gaps that the
Government needs help to fill. That is the fundamental purpose of the
Grant and Per Diem Program, and we now have an appreciable body of
evidence that supports revising the payment system.
the role of the u.s. interagency council on homelessness
Question. The Interagency Council on Homelessness is charged with
coordinating the Federal response to homelessness. Members of ICH
represent various departments and agencies within the Federal
Government, including HUD, the VA, the Department of Defense and the
Department of Labor. I think it is noteworthy that Secretary Peake is
currently chairing the ICH. I hope that he will take this opportunity
to promote better coordination and a greater commitment by Federal
agencies to ending homelessness for veterans.
Ms. Beversdorf, what can the ICH do to improve coordination among
Federal agencies?
Answer. There needs to be greater effort among non-VA agencies to
identify those clients who are veterans and receiving services, but may
not be accessing VA services for which they are eligible. There is no
way to know today how many veterans these non-VA providers are serving.
The ICH should encourage increased visibility in 10-year plans to the
work being done by communities in their work with veterans.
______
Questions Submitted to Steven R. Berg
Questions Submitted by Senator Patty Murray
FEMALE VETERANS
Question. The VA has also reported that while females currently
make up 4 percent of the homeless population, they make up 11 percent
of new homeless veterans. More female veterans are also under greater
economic pressure than their male counterparts. Mr. Berg, an assessment
conducted by your organization found that many female veterans are
spending too much of their income on housing, putting them at greater
risk of homelessness.
How is the lack of affordable housing affecting veterans and
especially female veterans?
Answer. As stated in our report, Vital Mission: Ending Homelessness
Among Veterans, about 4 percent of veterans pay more than 50 percent of
their income for housing. This kind of ``severe housing cost burden''
is actually rarer among veterans than among non-veteran Americans, but
this is small comfort for those veterans who experience it. Among
veterans who are women, severe housing cost burden is more common--the
rate is approximately 6 percent. For veterans who rent, the rate is
higher: approximately 10 percent for all veterans and 13 percent for
women.
The effects of high housing cost burdens are well known.
Homelessness is the most obvious and debilitating. Even for those who
never experience homelessness, however, many move frequently,
establishing a pattern of getting behind in rent, scraping together
enough money move into a new apartment before being evicted from the
old one, and starting the process over again. This pattern, often
involving three or four moves each year, has a bad impact on the
ability to be part of a community, and makes it particularly difficult
for children to achieve in school, since in many cases a move means a
new school and resulting challenges. In extreme cases, severe housing
cost burdens can place families in the position of choosing between
rent/heat and food.
RAPID RE-HOUSING MODEL FOR HOMELESS VETERANS
Question. Lack of affordable housing is a major risk factor for
homelessness. In addition, we know that many people, including
veterans, can suddenly find themselves homeless due to a sudden or
temporary economic hardship. The solution for these veterans may be
short-term rental assistance, or perhaps help with the first and last
month's rent to find a home. This idea is similar to the rapid re-
housing demonstration program that I included in last year's bill.
Mr. Berg, how effective would this type of assistance be in helping
veterans avoid homelessness? And how could HUD and the VA partner on
such an initiative?
Answer. Very helpful. Many veterans end up homeless after losing
housing that had the potential to be stable. Emergency prevention and
rapid rehousing programs deal with financial issues using short-term or
one-time assistance for back rent and/or security deposits. They deal
with longer term financial issues by using community-based resources to
help increase earnings and access cash benefits for which people are
eligible--veterans have enhanced opportunities in this regard due to
programs like the Homeless Veterans Reintegration Program at DOL, and
the system of veterans benefits. Rapid rehousing and emergency
prevention programs also deal with other kinds of issues such as mental
health, substance abuse, resulting conflicts with family members,
through case management and use of community-based programs. For
veterans, the availability of help through the VA for addressing issues
such as PTSD would be a huge advantage. This would allow more expensive
resources, such as slots in transitional housing or permanent
supportive housing, to be reserved for veterans with the most severe
problems.
The key challenges in implementing this model more broadly for
veterans who are homeless or at risk of homelessness are:
--Having designated people at the local level who can perform the
``real estate function,'' developing relationships with local
landlords and helping veterans find housing.
--Making the flexible funding available to pay for back rent,
security deposits, credit checks, and other costs related to
securing or maintaining housing.
--Ensuring broad availability of VA resources to address PTSD--
anecdotal reports indicate a repeat for recent veterans of a
common pattern from the Viet Nam era, with veterans who
originally moved in with family losing that housing because of
increased household conflict due in part to the effects of
PTSD.
TRANSITIONAL HOUSING VERSUS PERMANENT HOUSING
Queston. The HUD-VASH program is the only program that the VA
participates in that provides for permanent housing instead of
temporary transitional housing. Over in the HUD budget, we are
emphasizing permanent housing and setting aside 30 percent of the
homeless funding available for permanent housing.
Mr. Berg, how effective has the 30 percent set-aside within the HUD
budget been?
Answer. The 30 percent set-aside has been the device used by
Congress to ensure that a substantial percentage of the new money that
Congress has put into the HUD McKinney-Vento programs goes for
permanent supportive housing. It was adopted after a period when
spending by local communities on permanent supportive housing dropped
precipitously, despite evidence that PSH was a very effective
intervention. It has had its intended effect--since its adoption,
60,000 units of PSH have been funded across the country, with many
communities reporting substantial reductions in street homelessness as
a result. At the same time, spending on other kinds of homeless
programs has also increased, although not to the same extent.
Question. Do you think that permanent housing should be an eligible
purpose for some of the VA's housing programs, such as the Grant and
Per Diem Program?
Answer. In order to end homelessness among veterans, more permanent
supportive housing needs to be available. The Grant and Per Diem
Program has historically been a temporary intervention, which works
well for veterans with temporary barriers. For those with permanent
disabilities, however, a permanent solution is needed. One simple way
to achieve this would be to expand eligible activities under GPD to
include permanent housing for those who need it, but of course this
will only be effective if accompanied by an expansion in funding to
avoid negatively impacting the number of transitional beds.
THE ROLE OF THE U.S. INTERAGENCY COUNCIL ON HOMELESSNESS
Question. The Interagency Council on Homelessness is charged with
coordinating the Federal response to homelessness. Members of ICH
represent various departments and agencies within the Federal
Government, including HUD, the VA, the Department of Defense and the
Department of Labor. I think it is noteworthy that Secretary Peake is
currently chairing the ICH. I hope that he will take this opportunity
to promote better coordination and a greater commitment by Federal
agencies to ending homelessness for veterans.
Mr. Berg, what can the ICH do to improve coordination among Federal
agencies?
Answer. One fruitful area for coordination would be in the
collection of data about homelessness. The VA Health Care system has
made great strides in documenting the housing status of people it
serves. Through the ICH this practice should be incorporated by other
Federal ``mainstream'' agencies. This would help in targeting
interventions to those who are using the most expensive taxpayer-funded
services.
Another important undertaking would be to complete the process of
developing a plan for the Federal Government fulfilling its role in
ending homelessness. This kind of strategic planning has had a positive
impact at the local and State level. Various attempts have been made
over the years to develop such a plan, but they have never been
completed.
A third important undertaking would be an ongoing identification of
gaps in the system of Federal supports. For example, veterans become
homeless despite the expenditure of billions of dollars for services to
needy veterans, in part because of the lack of a relatively inexpensive
system to help veterans with housing crises. The ICH should maintain a
comprehensive list of services available and, more importantly, a clear
assessment of where services are lacking.
______
Question Submitted by Senator Richard J. Durbin
Question. One of your policy recommendations includes providing
permanent supportive housing units to meet the needs of the as many as
66,000 chronically disabled, chronically homeless veterans in the
country.
What steps can Congress take to implement this recommendation?
Answer. Funding of additional HUD-VASH vouchers or some other form
of support for the operating costs of permanent supportive housing.
Targeting of these resources to chronically homeless veterans will
increase the rate at which this problem is resolved.
Creation of a program to fund capital development for permanent
supportive housing for veterans.
Allow the VA to contract with nonprofit providers to provide
support services to veterans who have moved from the streets into
supportive housing.
(As an alternative, making permanent housing an allowable activity
under the Grants and Per Diem Program, accompanied by a sufficient
increase in funding for that program, would have the same effect as the
previous items.)
Through oversight, encouragement of a management agenda at the VA
that encourages local VA officials to identify chronically homeless
veterans and prioritize them for inclusion in VA-funded housing
programs such as Grant and Per Diem and HUD-VASH, and also encourages
them to coordinate on the local level with HUD-funded homelessness
programs to ensure that these veterans have a fair opportunity to use
HUD-funded programs for permanent supportive housing for homeless
people.
______
Questions Submitted to Paul Lambros
Questions Submitted by Senator Patty Murray
THE VA'S GRANT AND PER DIEM PROGRAM
Question. Mr. Lambros, your organization provides permanent housing
to homeless veterans in Seattle, and I understand that your
organization is currently unable to use the VA's Grant and Per Diem
Program.
Is the Grant and Per Diem Program something that would help you
better serve homeless veterans and can you help us understand the
restrictions that limit your ability to use this funding?
Answer. Yes. This VA program, particularly the Per Diem aspect,
would go a long way towards offering veterans the type of on-site
supportive case management which we have consistently proven helps
formerly homeless people with complex issues and disabilities remain
safe and secure in housing. This effective model calls for a Housing
Case Manager to client ratio of 1:25, as well as a front desk at the
building which is staffed 24/7. While this remains a highly cost
effective approach (in that the evidence points to the fact that it
prevents the types of crises that result in frequent, costly Emergency
Room visits, ambulance services, jail bookings, and detox admissions)
the services still require funds.
The Per Diem Program would be a cost-efficient use of funds, yet
the VA imposes restrictions on the type of housing it will support with
the funds--they can only be used in transitional housing projects.
Plymouth Housing Group has posited, for over 15 years, that
permanent supportive housing (PSH), with attached services, is the best
path for homeless single adults. In the last few years, PSH has become
nationally acclaimed as the most humane, clinically sound, and cost-
efficient model for ending homelessness for this adult population in
which veterans are highly represented.
Without hesitation, I can say that more veterans in our State would
be safely and stably housed if the VA's Grant and Per Diem program
could expend its funds on permanent, support-enriched housing.
Another issue that prevents agencies such as Plymouth Housing Group
from utilizing the Grant and Per Diem funds relates to another example
of inflexibility in the program. Capital funding under the Grant
Program is restricted to non-profit organizations. However, to develop
high-quality supportive housing, agencies in our State use the Federal
Low Income Housing Tax Credit Program. Tax credit projects require the
formation of for-profit partnerships, and thus are not eligible to
receive the VA Grant capital funding because technically the non-
profits do not have site control. However, non-profit partner does take
control after the 15 year compliance period of the tax credit program.
When developing a project along with the tax credit program we use
city, county and State capital funding--all vital to make a project
work. Those funding sources have recognized the importance of the tax
credit program and have made their funding more flexible in response.
Again, agencies such as Plymouth Housing Group would be able to
work harder at ending homelessness for our veterans if we could access
these funds within our current funding structures.
COORDINATION BETWEEN FEDERAL AGENCIES IN THE FIELD
Question. We have created many programs to address the needs of
homeless veterans. Programs range from housing to health care to job
training, and they are scattered among various Federal agencies,
including HUD, the VA and the Department of Labor. I held a roundtable
on the issue of homeless veterans in Seattle in February and I heard
from some at the event that there was little coordination between HUD
and the VA on the ground level.
Mr. Lambros, as a provider who interacts with veterans every day,
what has been your experience with various Federal agencies and their
coordination?
Answer. When I hear people speak of poor coordination, they are
usually referring to the policy-makers and administrators in those
Federal agencies. For instance, one agency may be admirably developing
a means to securing more rental subsidies for veterans, and yet the
agency who actually serves homeless veterans may be excluded from those
discussions or indeed the actual subsidy grant-process until the last
minute. So it seems like the decisionmaking entities in Washington, DC
may not be accessing the rich information and experiences that local VA
agencies have gleaned from serving veterans. Senator Murray's round
table was an excellent model for hearing about the real issues
occurring in our State.
Plymouth Housing Group's partnership with the Department of
Veterans Affairs, via the VA Puget Sound Healthcare System has been
developed an enhanced by committed and intelligent staff at that
facility. These professionals have built solid bridges with Plymouth
Housing Group staff in order to bring the best services possible to the
veteran clients we share. Coordination is maintained through regular
communication and case conferencing.
Plymouth tenants tell us that, within the large VA itself, the
various structures are not well-connected. For instance, the Health
Administration is a completely different body from the Benefits
Administration, often causing confusion to clients who cannot
understand why staff at one facility cannot process problems, and that
these need to be directed to another facility. It seems that the
concept of ``one-stop'' services is not available to veterans. Without
the professional support of case managers in the community, I do not
know how veterans can negotiate these large systems.
______
Question Submitted by Senator Richard J. Durbin
Question. In your prepared testimony, you mention that your focus
is to transition homeless people from the streets directly to permanent
housing.
What brought you to the conclusion that this is the best approach,
say as an alternative to transitional housing?
Answer. Plymouth Housing Group strives to provide a milieu that is
stabilizing for the long term, and our experience has informed us that
helping people to move directly into permanent supportive housing is a
good way to ensure long-term stability.
This is particularly true for the population we serve--people who
have been labeled ``hard to house'' by more conventional housing
projects--people who do not ``fit'' anywhere else. We have always
believed that everyone deserves housing and that people, particularly
the poor and vulnerable, should not have to negotiate endless barriers
and meet a slew of conditions in order to earn the right to be housed.
Our goal is to get them off the streets, into a safe environment and,
once housed, offer them all the services and support they need to turn
their lives around. It fits our mission and it works!
This model of homeless housing has gained huge popularity
nationally--you may have heard it referred to as Housing First: http://
www.endhomelessness.org/content/article/detail/1423/.
It is a growing movement that recognizes the financial and health-
related value of getting people off the streets and into the place they
can call ``home''--rapidly and permanently. The evidence-basis of this
national movement is that the more quickly people are moved into a
place that feels permanent for them, the more wiling and able they are
to work on their life-improvement goals.
For single adults, transitional housing is simply a place for
someone to make life changes in order to ``prove'' that they are
``housing-ready''. When the program duration is up, the person needs to
move into a new home. At Plymouth and other similar permanent
supportive housing programs, people do not have to move as a
consequence of doing well. They are home, and do not need to have their
lives disrupted once again in response to program mandate adherence.
I have heard good arguments for transitional housing being a
component for family homelessness and for domestic violence survivors.
So when I make this argument for a direct move from homelessness into
permanent housing, I need to qualify that our experiences and evidence
come from our practices with the single adult homeless population.
CONCLUSION OF HEARING
Senator Murray. With that, this subcommittee is recessed,
subject to the call of the Chair. Thank you.
[Whereupon, at 11:45 a.m., Thursday, May 1, the hearing was
concluded, and the subcommittee was recessed, to reconvene
subject to the call of the Chair.]
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