[Congressional Record Volume 153, Number 67 (Wednesday, April 25, 2007)]
[Senate]
[Pages S5089-S5091]
From the Congressional Record Online through the Government Publishing Office [www.gpo.gov]

      By Mr. SMITH (for himself and Mr. Harkin):
  S. 1205. A bill to require a pilot program on assisting veterans' 
service organizations and other veterans' groups in developing and 
promoting peer support programs that facilitate community reintegration 
of veterans returning from active duty, and for other purposes; to the 
Committee on Veterans' Affairs.
  Mr. SMITH. Mr. President, I rise today to introduce the Heroes 
Helping Heroes Demonstration Program of 2007, along with my 
distinguished colleague from Iowa, Senator Harkin. I ask unanimous 
consent that the text of this bill be printed in the Record.
  Our intention is to expand the use of peer-support approaches to 
assist the reintegration of America's veterans as they return from 
active duty to their homes and communities. We hope that this 
legislation will demonstrate the effectiveness of peer-support 
approaches and ease the burden of the social, economic, medical and 
psychological struggles our veterans face.
  Deployed soldiers face extreme stress and at times devastating 
injuries. Left untreated, this stress can have devastating impact on 
soldiers and their families. Army researchers have found that alcohol 
misuse went from 13 percent among soldiers to 21 percent one year after 
returning from Iraq and Afghanistan. It also has been found that 
soldiers with anger and aggression issues increase from 11 percent to 
22 percent after deployment. Furthermore, the best studies to date have 
shown that up to one-third of our current war veterans are coping with 
a serious mental health problem, most notably Post Traumatic Stress 
Disorder (PTSD).
  In addition to these personal struggles, returning soldiers also face 
serious social and economic challenges. Data from the U.S. Bureau of 
Labor Statistics indicates that unemployment among soldiers returning 
to civilian life is 15 percent--three times the national average. Those 
soldiers planning to divorce their spouse rose from nine percent to 15 
percent after time spent in the combat zone. Unfortunately, as more 
troops are deployed, deployments are extended and breaks between 
deployments become shorter these problems will only become more 
prevalent.
  At present, the Department of Defense and the Department of Veterans 
Affairs are struggling to meet the needs of returning veterans. 
Situations like those recently uncovered at Walter Reed Hospital 
demonstrate a health care system stretched to its limits. Furthermore, 
it would require significant additional resources to build up 
traditional service organizations and approaches to be sufficient to 
deal with these serious problems.
  I have risen on this floor many times to speak about the need to 
adequately address the mental health and physical health needs of our 
citizens. However, there has never been a case when the responsibility 
and duty of this body and our country has been clearer than the duty to 
aid our veterans who have sacrificed their bodies, minds and lives for 
this country.
  Fortunately, ``peer-support'' approaches offer a low cost and 
effective adjunct to traditional services by allowing the heroes of our 
country to help each other. Veteran peer-support offers two things that 
no kind of professionalized service can ever hope to: the support of 
someone who has had the same kinds of experiences and truly understands 
what the veteran is going through; and the potential of a large pool of 
experienced volunteers who can assist and support returning veterans at 
very little cost.
  The effectiveness of these approaches has been documented in a 
variety of domains. Specifically, for mental health disorders like PTSD 
and depression, peer-support programs have shown that participation 
yields improvement in psychiatric symptoms and decreased 
hospitalizations, the development of larger social support networks, 
enhanced self-esteem and social functioning, as well as lower services 
costs. The Substance Abuse and Mental Health Service Administration 
(SAMHSA), and even the President's New Freedom Commission on Mental 
Health, have recognized peer-support approaches as an emerging best 
practice that is helping people recover from traumatic events.
  Although the peer-support approach is promising, the need for this 
type of assistance is growing and far exceeds the services that are 
available. A report from the National Symposium for the Needs of Young 
Veterans hosted by AMVETS recognized this need in Voices for Action: A 
Focus on the Changing Needs of America's Veterans.
  The legislation that I am introducing today requires the Veterans 
Administration to create a pilot project. This project would 
demonstrate and assess the feasibility of funding community based 
veterans' organizations and groups to create and expand peer-support 
programs for veterans. It also authorizes $13.5 million over three 
years for this program. These funds will be used to support the 
development or expansion of peer-support programs in up to 20 non-
profit organizations that support the reintegration of veterans on a 
local and national level.
  The use of peer-support approaches is supported by veterans, 
veterans' organizations and mental health professionals. I ask for 
unanimous consent to include in the record the following letters from 
the Iraq and Afghanistan Veterans of America, Disabled American 
Veterans, the National Coalition for Homeless Veterans, Vets4Vets and 
the American Psychological Association.
  I am pleased that Senator Harkin has joined me in this effort. Our 
legislation is an important step to expand and improve the support 
available to our veterans and their transition back to community life. 
We hope that this bill will continue to focus attention on the needs of 
our veterans who have given so much to their country.
  Mr. President, I yield the floor.
  There being no objection, the material was ordered to be printed in 
the Record, as follows:

                                S. 1205

       Be it enacted by the Senate and House of Representatives of 
     the United States of America in Congress assembled,

     SECTION 1. PILOT PROGRAM ON ASSISTING VETERANS ORGANIZATIONS 
                   IN FACILITATING COMMUNITY REINTEGRATION OF 
                   VETERANS.

       (a) Program Required.--
       (1) In general.--The Secretary of Veterans Affairs shall 
     carry out a pilot program to demonstrate and assess the 
     feasibility and advisability of delivering community 
     reintegration support and services to veterans by assisting 
     veterans organizations in developing and promoting peer 
     support programs for veterans.
       (2) Designation.--The pilot program required by paragraph 
     (1) shall be known as the ``Heroes Helping Heroes Program''.
       (b) Duration of Program.--The pilot program shall be 
     carried out during the three-year period beginning on October 
     1, 2007.
       (c) Selection of Pilot Program Participants.--
       (1) In general.--The Secretary shall select not more than 
     20 eligible entities to participate in the pilot program.
       (2) Application.--Each eligible entity seeking to 
     participate in the pilot program shall submit an application 
     to the Secretary at such time, in such manner, and 
     accompanied by such information as the Secretary shall 
     require.
       (3) Selection.--The Secretary shall select participants in 
     the pilot program from among the applicants under paragraph 
     (1) that the Secretary determines--
       (A)(i) have existing peer support programs that can be 
     expanded or enhanced, and resources, for the delivery of 
     community reintegration support and services to veterans 
     (including mentoring programs, self-help groups, and Internet 
     and other electronic-based peer support resources) that are 
     suitable for the pilot program; or
       (ii) have the capacity, including the skill and resources 
     necessary, to develop and maintain new peer support programs 
     for the delivery of community reintegration support and 
     services (including mentoring programs, self-help groups, and 
     Internet and other electronic-based peer support resources) 
     that are suitable for the pilot program; and
       (B) have a plan to continue such peer support programs 
     after the pilot program ends.
       (d) Grants.--
       (1) In general.--The Secretary shall award grants to pilot 
     program participants to develop and promote peer support 
     programs that deliver community reintegration support and 
     services for veterans.
       (2) Amount.--The Secretary shall ensure that the average 
     amount of the grant awarded under paragraph (1) to a pilot 
     program participant is not more than $300,000 and not less 
     than $100,000 per fiscal year.
       (3) Matching funds.--A recipient of a grant under paragraph 
     (1) shall contribute towards the development and promotion of 
     peer support programs that deliver community reintegration 
     support and services to veterans an amount equal to not less 
     than ten percent of the grant awarded to such recipient.
       (4) Duration.--The duration of any grant awarded under 
     paragraph (1) may not exceed three years.

[[Page S5090]]

       (e) Use of Funds.--A grant awarded to a pilot program 
     participant pursuant to subsection (d) shall be used by the 
     pilot program participant for costs and expenses connected 
     with the development and promotion of peer support programs 
     that deliver community reintegration support and services to 
     veterans, including costs and expenses of the following:
       (1) Program staff or a coordinator of volunteers, but not 
     more than 50 percent of such grant award may be used for such 
     purpose in any fiscal year of such pilot program.
       (2) Consultation services, but not more than 20 percent of 
     such grant award may be used for such purpose in any fiscal 
     year of such pilot program.
       (3) Program operations, including costs and expenses 
     relating to the following:
       (A) Advertising and recruiting.
       (B) Printing.
       (C) Training of volunteers, veterans, and staff.
       (D) Incentives, such as food and awards.
       (E) Overhead expenses, but not more than ten percent of 
     such grant award may be used for such purposes.
       (f) Technical Assistance.--In addition to the award of 
     grants under subsection (d), the Secretary shall provide 
     technical assistance to pilot program participants to assist 
     them in developing and promoting peer support programs that 
     deliver community reintegration support and services to 
     veterans.
       (g) Definitions.--In this section:
       (1) Eligible entity.--The term ``eligible entity'' means--
       (A) a veterans service organization;
       (B) a not-for-profit organization--
       (i) the primary mission of which is to assist veterans;
       (ii) that has been in continuous operation for at least 12 
     months; and
       (iii) is not a veterans service organization; or
       (C) a partnership between an organization described in 
     subparagraph (A) or (B) and an organization that is not 
     described in subparagraph (A) or (B).
       (2) Pilot program participant.--The term ``pilot program 
     participant'' means an eligible entity that is selected by 
     the Secretary, in accordance with subsection (c), to 
     participate in the pilot program under this section.
       (3) Veterans service organization.--The term ``veterans 
     service organization'' means any organization recognized by 
     the Secretary for the representation of veterans under 
     section 5902 of title 38, United States Code.
       (h) Authorization of Appropriations.--There are authorized 
     to be appropriated to the Department of Veterans Affairs to 
     carry out this section, $4,500,000 for each of fiscal years 
     2008, 2009, and 2010.
                                  ____

                                              Iraq and Afghanistan


                                          Veterans of America,

                                                   April 10, 2007.
     Hon. Gordon Smith,
     404 Russell Senate Office Building,
     Washington, DC.
       Dear Senator Gordon Smith: Only a veteran can truly 
     understand the story of another veteran. When a servicemember 
     returns home from a combat zone they are subjected to a 
     myriad of transitional issues; finding a new job, 
     reconnecting with family, and mostly important, learning 
     about the person they have become. We must find creative ways 
     to reach out and connect these returning heroes with people 
     who understand their story.
       The Heroes Helping Heroes Program is a Demonstration 
     Project which seeks to aid existing veterans' service 
     organizations and other non-profit organizations that 
     currently work with veterans in the development and promotion 
     of peer support programs across America. Iraq and Afghanistan 
     Veterans of America (IAVA) strongly endorses the Heroes 
     Helping Heroes Program as a creative attempt to connect 
     returning veterans with other veterans.
       This program will bolster existing local veterans support 
     organizations by offering grants, allowing them to expand 
     services at the fraction of the cost of starting new 
     programs. Heroes Helping Heroes will help fulfill the 
     government's duty to assist our service men and women who 
     fulfilled their solemn duty to serve.
           Sincerely,
                                                   Paul Rieckhoff,
     Executive Director.
                                  ____



                                                    Vets4Vets,

                                        Tucson, AZ, April 4, 2007.
       To whom it may concern: Vets4Vets is proud to endorse 
     Senator Gordon Smith's bill setting up a pilot program to 
     encourage peer support programs for Iraq-era veterans.
       Vets4Vets is a non-partisan peer support program, staffed 
     almost exclusively by Iraq-era veterans and dedicated to 
     helping Iraq and Afghanistan era veterans feel good about 
     themselves and heal from any negative aspects of service and 
     war. In our weekend workshops, one-on-ones, and local groups, 
     Vets4Vets allows veterans to take equal and uninterrupted 
     turns sharing their experiences and expressing their feelings 
     in a truly confidential setting. To further promote healing 
     Vets4Vets encourages service men and women to take part in 
     positive community action of their choosing that empowers 
     them to reach out to other veterans.
       Over 200 Iraq-era veterans have taken part in one or more 
     of our nine weekend workshops in the last year in various 
     parts of the country. Almost all of them have been combat 
     veterans. Many of them are now actively reaching out to their 
     peers to set up local peer support groups. There are already 
     groups meeting in a half dozen or so cities around the 
     country.
       As would be expected from the existing body of research on 
     peer support programs, these veterans universally enjoyed the 
     program and report significant improvement in their lives.
       We urge Members of Congress to support this bill and the 
     peer support programs for Iraq-era veterans which it will 
     encourage.
           Sincerely,
     Abel Moreno,
       Former Sergeant 82nd Airborne with tours in Iraq and 
     Afghanistan; Vets4Vets Media and Local Outreach Coordinator.
     Jason Ridolfi,
       Former Sergeant, USMCR with two tours in Iraq; Vets4Vets 
     Internet Outreach Coordinator.
                                  ____

                                                National Coalition


                                        for Homeless Veterans,

                                   Washington, DC, April 11, 2007.
     Hon. Gordon Smith,
     U.S. Senate,
     Washington, DC.
       Dear Senator Smith: The National Coalition for Homeless 
     Veterans (NCHV) writes to express our support for your bill, 
     which would establish a demonstration project entitled 
     ``Heroes Helping Heroes Program.'' The project would provide 
     expanded peer support services for veterans through veteran 
     service organizations and other non-profit community-based 
     organizations that serve veterans.
       Established in 1990, NCHV is a nonprofit organization with 
     the mission of ending homelessness among veterans by shaping 
     public policy, promoting collaboration, and building the 
     capacity of service providers. NCHV's membership of over 250 
     community based organizations (CBOs) in 48 states and the 
     District of Columbia provides housing and supportive services 
     to homeless veterans and their families.
       The Department of Veterans Affairs (VA) reports an 
     estimated 400,000 veterans experience homelessness at some 
     time during a year, and 200,000 are homeless on any given 
     night. With the VA reaching only 25 percent of the homeless 
     veteran population and CBOs 30 percent of those in need, a 
     substantial number of homeless veterans undoubtedly do not 
     receive much needed services. Moreover, because some areas of 
     our country have no community based organizations or VA 
     facilities nearby, other programs that serve veterans are 
     needed.
       Findings from a survey conducted by NCHV in November 2005 
     suggest the homeless veteran population in America may be 
     experiencing significant changes. In addition to those who 
     are aging and need permanent supportive housing, the 
     percentage of women veterans seeking services is growing. 
     Moreover, combat veterans of Operation Iraqi Freedom, 
     Operation Enduring Freedom and the Global War on Terror are 
     returning home and suffering from war related conditions that 
     may put them at risk for homelessness. These men and women 
     are beginning to trickle into the Nation's community-based 
     homeless veteran service provider organizations and need a 
     variety of services--from mental health programs and peer 
     support to housing, employment training and job placement 
     assistance. The Heroes Helping Heroes program will serve as a 
     starting point to help these returning heroes address their 
     many needs.
       NCHV supports your efforts and leadership on behalf of our 
     nation's veterans. Thank you for providing an opportunity to 
     help them successfully reintegrate back into civilian life.
           Sincerely,
                                                Cheryl Beversdorf,
     President and CEO.
                                  ____



                                   Disabled American Veterans,

                                                   March 28, 2007.
     Hon. Gordon Smith,
     U.S. Senate,
     Washington, DC.
       Dear Senator Smith: On behalf of the Disabled American 
     Veterans (DAV), I am writing with regards to the legislation 
     that would create the ``Heroes Helping Heroes Program.''
       As you know, active duty service members sometimes have 
     difficulty making the transition back to civilian life. This 
     is particularly true for our injured service members and 
     service members who served in combat. For some severely-
     disabled veterans of Operations Iraqi and Enduring Freedom, 
     the success of becoming a productive member of society will 
     be measured by their ability to live independently and 
     achieve the highest quality of life possible.
       Your legislation seeks to help veterans reintegrate into 
     their communities by authorizing the Department of Veterans 
     Affairs to create a pilot program to assist in the 
     development and capitalization of peer support programs. 
     While DAV does not have a resolution from our membership to 
     actively support this legislation, its purpose appears 
     beneficial and we would not be opposed to the favorable 
     consideration of this bill.

[[Page S5091]]

       The DAV sincerely appreciates your efforts and commitment 
     to improve the lives of our nation's sick and disabled 
     veterans, their dependents and survivors.
           Sincerely,
                                               Joseph A. Violante,
     National Legislative Director.
                                  ____



                           American Psychological Association,

                                                    April 4, 2007.
     Hon. Gordon Smith,
     U.S. Senate,
     Washington, DC.
     Hon. Tom Harkin,
     U.S. Senate,
     Washington, DC.
       Dear Senators Smith and Harkin: On behalf of the American 
     Psychological Association (APA) and our 148,000 members and 
     affiliates; I am writing to thank you for your leadership in 
     legislative efforts to promote the reintegration of America's 
     veterans as they return from active duty to their homes and 
     communities.
       Deployed soldiers face unique risks and experience stress 
     and at-times devastating injuries. Left untreated, the 
     attendant mental health problems can severely restrict 
     veterans' lives and their ability to reconnect to family, 
     work, and social relationships. In their most tragic forms, 
     such problems can also lead to marital dissolution, the abuse 
     of alcohol and other drugs, and suicide. At present, the 
     Department of Defense (DoD) and the Department of Veterans 
     Affairs (VA) are striving to meet the mental health 
     treatment. needs of returning veterans. It is imperative that 
     we redouble our efforts to aid our veterans who served in 
     Iraq and Afghanistan and are suffering from post-traumatic 
     stress disorder and other mental health problems.
       Your proposed bill, which would establish a demonstration 
     project entitled ``the Heroes Helping Heroes Program,'' would 
     provide expanded peer support services for veterans through 
     veterans service organizations and other non-profit 
     community-based organizations that serve veterans. Through 
     peer support programs, veterans help one another to cope with 
     the trauma of combat experience, the mental anguish that 
     comes from debilitating physical injury, and the difficulties 
     of readjusting to a civilian mindset and the rhythms of daily 
     life. Such programs are highly effective in providing needed 
     support to veterans, as we know from the veterans 
     readjustment counseling centers currently run by the VA.
       In closing, I thank you once again for your efforts and 
     leadership on behalf of our nation's veterans.
           Sincerely,
                                        Norman B. Anderson, Ph.D.,
                                          Chief Executive Officer.

  Mr. HARKIN. Mr. President, I am pleased to join with the 
distinguished Senator from Oregon, Senator Smith, to introduce the 
Heroes Helping Heroes Act, to expand the availability of peer support 
programs for veterans.
  As our military personnel return from combat, they face daunting 
challenges in transitioning back to civilian life. They have to deal 
with family issues arising from their long absence from home. They have 
to find new employment. They also have to cope with separation from 
their close friends. After spending many months if not years with the 
men and women in their unit--sharing intense wartime experiences and 
looking out for each other--they may not find that same close support 
when they return.
  In addition, many members of our Armed Forces have endured tremendous 
stress during combat, which can trigger severe mental health issues 
after they have returned home. Research shows that one in three 
veterans of the war in Iraq, and one in nine veterans of the war in 
Afghanistan, are coping with a serious mental health problem, including 
depression, substance abuse, and/or post-traumatic stress disorder 
(PTSD). Untreated and under-treated stress exposure for soldiers 
results in a higher incidence of suicide, higher divorce rates, and 
higher rates of drug or alcohol abuse. Additionally, there have been 
almost 25,000 non-fatal American casualties. Such injuries often have 
serious impacts on the ability of transitioning veterans to reintegrate 
into their home and community life.
  Currently, VA facilities are overwhelmed by the sheer number of 
veterans who need assistance. The Government Accountability Office 
(GAO) reported that many VA medical facilities are unprepared to care 
for the mental health needs of the number of veterans who will need 
services. Peer support approaches offer a low-cost and effective 
supplement to traditional services by allowing veterans to help each 
other. In peer support programs, transitioning veterans can talk to 
someone who had similar experiences and understands what they are going 
through. Veteran peer counselors who are trained to provide support and 
refer for services when necessary can provide outreach to other 
veterans and assist in a smooth transition back to civilian life.
  The Heroes Helping Heroes program will allow veterans' service 
organizations to develop or expand peer support programs. Veterans' 
service organizations and other non-profits that serve veterans are 
well-equipped to provide such peer support programs. Given that the VA 
is stretched to capacity, these organizations are able to run such 
programs in addition to mental health services provided by professional 
counselors.
  The Substance Abuse and Mental Health Service Administration (SAMSHA) 
and the President's New Freedom Commission on Mental Health have 
recognized peer support approaches as an emerging best practice in 
helping people to recover from traumatic events. Research has found 
that peer support programs are effective in alleviating PTSD symptoms 
and depression, reducing the likelihood of hospitalization, and 
increasing social support.
  When members of our Armed Forces come home from war, this does not 
necessarily mean that the war is over for them. Many continue to carry 
physical and psychological wounds and scars. We have a profound moral 
contract to care for those who have fought for our country and 
sacrificed so much. One additional way to make good on that contract in 
a cost-effective way is to expand the availability peer support 
programs nationwide. To that end, I urge my colleagues to join with 
Senator Smith and me in sponsoring the Heroes Helping Heroes Act.
                                 ______