[Congressional Record Volume 155, Number 117 (Thursday, July 30, 2009)]
[Senate]
[Pages S8562-S8564]
From the Congressional Record Online through the Government Publishing Office [www.gpo.gov]

      By Mr. REED (for himself, Mr. Bond, Mrs. Murray, Mr. Johnson, Mr. 
        Kerry, and Mr. Durbin):
  S. 1547. A bill to amend title 38, United States Code, and the United 
States Housing Act of 1937 to enhance and expand the assistance 
provided by the Department of Veterans Affairs and the Department of 
Housing and Urban Development to homeless veterans and veterans at risk 
of homelessness, and for other purposes; to the Committee on Banking, 
Housing, and Urban Affairs.
  Mr. REED. Mr. President, today I introduce the Zero Tolerance for 
Veteran Homelessness Act. This comprehensive bill enhances and expands 
the assistance provided by the Department of Veterans Affairs and the 
Department of Housing and Urban Development to homeless veterans and 
veterans at risk of becoming homeless.
  It is one of our Nation's great tragedies that on any given night, 
131,000 veterans are homeless. The Department of Veterans Affairs 
estimates that more than 200,000 veterans experience homelessness each 
year and that nearly 1/5 of all homeless people in the United States 
are veterans. These numbers are expected to climb as our servicemembers 
fighting in Iraq and Afghanistan return home to face tough economic 
conditions.
  We know that veterans are often at greater risk of becoming homeless. 
Some return from deployments to discover that the skills they have 
honed in their military service can be difficult to transfer to jobs in 
the private sector. Others struggle with physical or mental wounds of 
war. Still others return to communities that lack safe, affordable 
housing.
  Our veterans have made great sacrifices to serve our country, and it 
is especially important to honor our commitment to them. The Department 
of Veterans Affairs is certainly a part of that commitment, providing 
benefits, medical care, support, and a sense of community to homeless 
veterans. However, a number of other federal agencies provide service 
to veterans, including the Department of Housing and Urban Development, 
and this legislation builds on that existing infrastructure.
  Many programs through HUD and the VA are already helping homeless 
veterans with transitional housing, health care and rehabilitation 
services, and employment assistance. However, a more comprehensive and 
coordinated approach would strengthen these programs and prevent more 
at-risk veterans from becoming homeless.
  That is why I have joined with my colleagues Senators Bond, Murray, 
and Johnson to introduce this much-needed legislation. The Zero 
Tolerance for Veterans Homelessness Act seeks to merge housing programs 
and support services for veterans from the start so that there is an 
integrated approach to address their risk of homelessness.
  First, this bill would create a new Homelessness Prevention program 
that would enable the VA to keep at-risk veterans in stable housing and 
offer increased assistance to veterans who have fallen into 
homelessness. Specifically, the VA could provide short-term rental 
assistance, housing relocation and stabilization services, services to 
resolve personal credit issues, payments for security deposits or 
utility costs, and assistance for moving costs. These up-front expenses 
can be the major obstacle that puts low-income or unemployed veterans 
at risk of becoming homeless. These homelessness prevention and rapid 
re-housing techniques have been successfully used in numerous 
communities to significantly reduce family homelessness, and this bill 
would give the VA resources to put these strategies into practice.
  Second, this bill would authorize additional housing vouchers through 
the HUD-Veterans Affairs Supportive Housing, VASH, program. This 
collaborative program provides homeless veterans with vouchers to rent 
apartments in the private rental market, as well as case management and 
clinical services at local VA medical centers. In this way, veterans 
receive the supportive housing they need to recover and thrive.
  The HUD-VASH program has grown in recent years. Twenty thousand 
vouchers were funded in the last two appropriations cycles, and 10,000 
more will likely be funded-in Fiscal Year 2010. However, more homeless 
veterans could benefit from this important resource. As such, the Zero 
Tolerance for Veterans Homelessness bill authorizes up to 10,000 
additional vouchers each year to reach a maximum of 60,000 vouchers by 
2013.
  Third, this legislation would make it easier for non-profits to apply 
for capital grants through the VA's grants and per diem program to 
build transitional housing and other facilities for veterans. This 
would streamline the process for non-profit organizations to be able to 
use financing from other sources to break ground on new housing 
construction. This is particularly important in the current economy, 
when non-profits are stretched and have to be more creative than ever 
to fund new capital projects.
  The Zero Tolerance for Veterans Homelessness Act would also create a 
Special Assistant for Veterans Affairs within HUD. The Special 
Assistant would ensure that veterans have access to HUD's existing 
programs and work to remove any barriers. The Special Assistant would 
also serve as a liaison between HUD and the VA, helping to connect and 
coordinate the services the two departments provide.
  Additionally, this legislation recognizes the need to measure 
progress of efforts to combat homelessness. It establishes a new 
Homeless Veterans Management Information System, to be developed by the 
VA, in consultation with HUD and the United States Interagency Council 
on Homelessness. This data collection system will be used to provide 
annual reports to Congress on the number of homeless veterans and they 
types of assistance they receive. This information will help illustrate 
how programs are performing and inform future policy.
  Finally, the bill would require the Secretary of Veterans Affairs, in 
consultation with other agencies, to analyze existing programs and 
develop a comprehensive plan with recommendations on how to end 
homelessness among veterans. Establishing a plan with appropriate 
benchmarks will enable the VA to more easily track progress towards 
this important goal.
  This bipartisan bill also complements a bill that I am cosponsoring 
with Senator Murray to enable programs at the VA and the Department of 
Labor to better serve homeless women veterans and homeless veterans 
with children.
  Only by working together, across the federal government and in 
partnership with non-profits and local housing authorities, will we be 
able to comprehensively help homeless veterans and reach those in 
danger of becoming homeless. We owe it to our veterans to ensure that 
they and their families have safe, affordable places to live and to 
provide the services and benefits they have earned. The nation's brave 
veterans deserve nothing less.
  I hope my colleagues will join in supporting this important, 
bipartisan legislation.
  Mr. President, I ask unanimous consent that the text of the bill be 
printed in the Record.
  There being no objection, the text of the bill was ordered to be 
printed in the Record, as follows:

                                S. 1547

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

     SECTION 1. SHORT TITLE.

       This Act may be cited as the ``Zero Tolerance for Veterans 
     Homelessness Act of 2009''.

     SEC. 2. FINDINGS.

       Congress finds that--

[[Page S8563]]

       (1) veterans are at a greater risk of becoming homeless 
     than other people in the United States, because of 
     characteristics that include--
       (A) having employment-related skills that are unique to 
     military service and that can be difficult to transfer to the 
     civilian sector;
       (B) combat-related health issues;
       (C) earning minimal income or being unemployed; and
       (D) a shortage of safe, affordable housing;
       (2) the Department of Veterans Affairs estimates that--
       (A) 131,000 veterans are homeless on any given night;
       (B) more than 200,000 veterans experience homelessness each 
     year; and
       (C) veterans account for nearly \1/5\ of all homeless 
     people in the United States;
       (3) approximately 1,500,000 veterans, nearly 6.3 percent of 
     the veterans in the United States, have an income that falls 
     below the Federal poverty level, and approximately 634,000 
     veterans have an income below 50 percent of the Federal 
     poverty level;
       (4) the Department of Veterans Affairs is only adequately 
     funded to respond to the health, housing, and supportive 
     services needs of approximately \1/3\ of the veterans in the 
     United States; and
       (5) it is expected that significant increases in services 
     will be needed to serve the aging veterans of the Vietnam war 
     and members of the Armed Forces returning from Operation 
     Iraqi Freedom and Operation Enduring Freedom.

     SEC. 3. PROGRAM ON PREVENTION OF VETERAN HOMELESSNESS.

       (a) Program on Prevention of Veteran Homelessness.--
       (1) In general.--Subchapter VII of chapter 20 of title 38, 
     United States Code, is amended by adding at the end the 
     following new section:

     ``Sec. 2067. Prevention of veteran homelessness

       ``(a) Prevention of Veteran Homelessness.--Not later than 
     180 days after the date of the enactment of this section, the 
     Secretary shall establish a program within the Veterans 
     Benefits Administration to prevent veteran homelessness by--
       ``(1) identifying in a timely fashion any veteran who is 
     homeless or at imminent risk of becoming homeless; and
       ``(2) providing assistance sufficient to ensure that each 
     veteran identified under paragraph (1) does not become or 
     remain homeless.
       ``(b) Types of Assistance.--The assistance provided under 
     subsection (a)(2) may include the following:
       ``(1) The provision of short-term or medium-term rental 
     assistance.
       ``(2) Housing relocation and stabilization services, 
     including housing search, mediation, and outreach to property 
     owners.
       ``(3) Services to resolve personal credit issues that have 
     led to negative credit reports.
       ``(4) Assistance with paying security or utility deposits 
     and utility payments.
       ``(5) Assistance with covering costs associated with 
     moving.
       ``(6) A referral to a program of another department or 
     agency of the Federal Government.
       ``(7) Such other activities as the Secretary considers 
     appropriate to prevent veterans homelessness.
       ``(c) No Duplication of Services.--The Secretary may 
     provide assistance under subsection (a)(2) to a veteran 
     receiving supportive services from an eligible entity 
     receiving financial assistance under section 2044 of this 
     title only to the extent that the assistance provided under 
     subsection (a)(2) does not duplicate the supportive services 
     provided to such veteran by such entity.
       ``(d) Staffing.--The Secretary shall assign such employees 
     at such locations as the Secretary considers necessary to 
     carry out this section.
       ``(e) Authorization of Appropriations.--There are 
     authorized to be appropriated to carry out this section 
     $50,000,000 for each of fiscal years 2010 through 2014.''.
       (2) Clerical amendment.--The table of sections at the 
     beginning of chapter 20 of such title is amended by adding at 
     the end the following new item:

``2067. Prevention of veteran homelessness.''.

       (b) Responsibilities of Homeless Veterans Program 
     Coordinators.--Section 2003(a) of such title is amended--
       (1) in paragraph (3), by striking ``The housing'' and 
     inserting ``Any housing'';
       (2) by redesignating paragraph (7) as paragraph (8); and
       (3) by inserting after paragraph (6) the following new 
     paragraph (7):
       ``(7) The program under section 2067 of this title.''.
       (c) Report.--Not later than 180 days after the date of the 
     establishment of the program required by section 2067 of 
     title 38, United States Code, as added by paragraph (1), the 
     Secretary of Veterans Affairs shall submit to Congress a 
     report on the operation of such program.

     SEC. 4. ENHANCEMENT OF COMPREHENSIVE SERVICE PROGRAMS.

       (a) Enhancement of Grants.--Section 2011 of title 38, 
     United States Code, is amended--
       (1) in subsection (a), by striking ``Subject to the 
     availability of appropriations provided for such purpose, 
     the'' and inserting ``The'';
       (2) in subsection (b)(1)(A), by inserting ``new 
     construction,'' before ``expansion''; and
       (3) in subsection (c)--
       (A) in the first sentence, by striking ``A grant'' and 
     inserting ``(1) A grant'';
       (B) in the second sentence of paragraph (1), as designated 
     by subparagraph (A), by striking ``The amount'' and inserting 
     the following:
       ``(2) The amount''; and
       (C) by adding at the end the following new paragraph:
       ``(3)(A) The Secretary may not deny an application from an 
     entity that seeks a grant under this section to carry out a 
     project described in subsection (b)(1)(A) solely on the basis 
     that the entity proposes to use funding from other private or 
     public sources, if the entity demonstrates that a private 
     nonprofit organization will provide oversight and site 
     control for the project.
       ``(B) In this paragraph, the term `private nonprofit 
     organization' means the following:
       ``(i) An incorporated private institution, organization, or 
     foundation--
       ``(I) that has received, or has temporary clearance to 
     receive, tax-exempt status under paragraphs (2), (3), or (19) 
     of section 501(c) of the Internal Revenue Code of 1986;
       ``(II) for which no part of the net earnings of the 
     institution or foundation inures to the benefit of any 
     member, founder, or contributor of the institution or 
     foundation; and
       ``(III) that the Secretary determines is financially 
     responsible.
       ``(ii) A for-profit limited partnership or limited 
     liability company, the sole general partner of which is an 
     organization that is described by subclauses (I) through 
     (III) of clause (i).
       ``(iii) A corporation wholly owned and controlled by an 
     organization that is described by subclauses (I) through 
     (III) of clause (i).''.
       (b) Study and Report on Per Diem Payments.--
       (1) Study and development of payment method.--Not later 
     than one year after the date of the enactment of this Act, 
     the Secretary of Veterans Affairs shall--
       (A) complete a study of all matters relating to the method 
     used by the Secretary to make per diem payments under section 
     2012(a) of title 38, United States Code; and
       (B) develop an improved method for adequately reimbursing 
     recipients of grants under section 2011 of such title for 
     services furnished to homeless veterans.
       (2) Consideration.--In developing the method required by 
     paragraph (1)(B), the Secretary may consider payments and 
     grants received by recipients of grants described in such 
     paragraph from other departments and agencies of Federal and 
     local governments and from private entities.
       (3) Report.--Not later than one year after the date of the 
     enactment of this Act, the Secretary of Veterans Affairs 
     shall submit to Congress a report on--
       (A) the findings of the Secretary with respect to the study 
     required by subparagraph (A) of paragraph (1);
       (B) the method developed under subparagraph (B) of such 
     paragraph; and
       (C) any recommendations of the Secretary for revising the 
     method described in subparagraph (A) of such paragraph and 
     any legislative action the Secretary considers necessary to 
     implement such method.
       (c) Authorization of Appropriations.--Section 2013 of such 
     title is amended by striking ``subchapter $150,000,000'' and 
     all that follows through the period and inserting the 
     following: ``subchapter--
       ``(1) $200,000,000 for fiscal year 2010; and
       ``(2) such sums as may be necessary for each of fiscal 
     years 2011 through 2014.''.

     SEC. 5. HUD VETERANS AFFAIRS SUPPORTIVE HOUSING VOUCHERS.

       Section 8(o)(19) of the United States Housing Act of 1937 
     (42 U.S.C. 1437f(o)(19)) is amended to read as follows:
       ``(19) Rental vouchers for veterans affairs supported 
     housing program.--
       ``(A) Rental vouchers.--The Secretary shall make available 
     to public housing agencies described in subparagraph (C) the 
     amounts described in subparagraph (B), to provide rental 
     assistance through a supported housing program administered 
     in conjunction with the Department of Veterans Affairs.
       ``(B) Amount.--The amounts specified in this subparagraph 
     are the amounts necessary to ensure that--
       ``(i) not more than 30,000 vouchers for rental assistance 
     under this paragraph are outstanding at any one time during 
     fiscal year 2010;
       ``(ii) not more than 40,000 vouchers for rental assistance 
     under this paragraph are outstanding at any one time during 
     fiscal year 2011;
       ``(iii) not more than 50,000 vouchers for rental assistance 
     under this paragraph are outstanding at any one time during 
     fiscal year 2012; and
       ``(iv) not more than 60,000 vouchers for rental assistance 
     under this paragraph are outstanding at any one time during 
     fiscal year 2013 and each fiscal year thereafter.
       ``(C) Public housing agencies.--A public housing agency 
     described in this subparagraph is a public housing agency 
     that--
       ``(i) has a partnership with a Department of Veterans 
     Affairs medical center or an entity determined to be 
     appropriate by the Secretary of Veterans Affairs;
       ``(ii) is located in an area that the Secretary of Veterans 
     Affairs determines has a high concentration of veterans in 
     need of assistance;
       ``(iii) has demonstrated expertise in providing housing for 
     homeless individuals; and
       ``(iv) meets any other criteria that the Secretary, in 
     consultation with the Secretary of Veterans Affairs may 
     prescribe.

[[Page S8564]]

       ``(D) Case management.--The Secretary of Veterans Affairs 
     shall ensure that the case managers described in section 
     2003(b) of title 38, United States Code, provide appropriate 
     case management for each veteran who receives rental 
     assistance under this paragraph that--
       ``(i) assists the veteran in--

       ``(I) locating available housing;
       ``(II) working with the appropriate public housing agency;
       ``(III) accessing benefits and health services provided by 
     the Department of Veterans Affairs and other departments and 
     agencies of the Federal Government;
       ``(IV) negotiating with landlords; and
       ``(V) other areas, as the Secretary determines is necessary 
     to help the veteran maintain housing or avoid homelessness; 
     and

       ``(ii) ensures that a veteran with a severe disability, 
     including a veteran that has been homeless for a substantial 
     period of time, is referred to sufficient supportive services 
     to provide the veteran with stable housing, including--

       ``(I) mental health services, including treatment and 
     recovery support services;
       ``(II) substance abuse treatment and recovery support 
     services, including counseling, treatment planning, recovery 
     coaching, and relapse prevention;
       ``(III) integrated, coordinated treatment and recovery 
     support services for co-occurring disorders;
       ``(IV) health education, including referrals for medical 
     and dental care;
       ``(V) services designed to help individuals make progress 
     toward self-sufficiency and recovery, including job training, 
     assistance in seeking employment, benefits advocacy, money 
     management, life-skills training, self-help programs, and 
     engagement and motivational interventions;
       ``(VI) parental skills and family support; and
       ``(VII) other supportive services that promote an end to 
     chronic homelessness.''.

     SEC. 6. SPECIAL ASSISTANT FOR VETERANS AFFAIRS IN OFFICE OF 
                   SECRETARY OF HOUSING AND URBAN DEVELOPMENT.

       Section 4 of the Department of Housing and Urban 
     Development Act (42 U.S.C. 3533) is amended by adding at the 
     end the following new subsection:
       ``(g) Special Assistant for Veterans Affairs.--
       ``(1) Establishment.--There shall be in the Department a 
     Special Assistant for Veterans Affairs, who shall be in the 
     Office of the Secretary.
       ``(2) Appointment.--The Special Assistant for Veterans 
     Affairs shall be appointed by the Secretary, based solely on 
     merit and shall be covered under the provisions of title 5, 
     United States Code, governing appointments in the competitive 
     service.
       ``(3) Responsibilities.--The Special Assistant for Veterans 
     Affairs shall be responsible for--
       ``(A) ensuring that veterans have access to housing and 
     homeless assistance under each program of the Department 
     providing such assistance;
       ``(B) coordinating all programs and activities of the 
     Department relating to veterans; and
       ``(C) carrying out such other duties as may be assigned to 
     the Special Assistant by the Secretary or by law.''.

     SEC. 7. HOMELESS VETERANS MANAGEMENT INFORMATION SYSTEM.

       (a) In General.--Subchapter VII of chapter 20 of title 38, 
     United States Code, as amended by section 3(b), is further 
     amended by adding at the end the following new section:

     ``Sec. 2068. Homeless Veterans Management Information System

       ``(a) Method for Data Collection and Aggregation.--(1) Not 
     later than one year after the date of the enactment of this 
     section, the Secretary shall, in consultation with the 
     Special Assistant for Veterans Affairs of the Department of 
     Housing and Urban Development and the United States 
     Interagency Council on Homelessness established under section 
     201 of the McKinney-Vento Homeless Assistance Act (42 U.S.C. 
     11311), establish a method for the collection and aggregation 
     of data on homeless veterans participating in programs of the 
     Department of Veterans Affairs and the Department of Housing 
     and Urban Development, including the following:
       ``(A) The age, race, sex, disability status, marital status 
     of the veteran, income, employment history, and whether the 
     veteran is a parent.
       ``(B) If the veteran received housing assistance, the 
     number of days that the veteran resided in such housing, and 
     the type of housing in which the veteran resided.
       ``(C) If the veteran is no longer participating in a 
     program, the reason the veteran left the program.
       ``(2) The method required by paragraph (1) shall be 
     established in a manner that ensures that each veteran is 
     counted only once.
       ``(b) Annual Data Collection and Aggregation.--Not later 
     than one year after the method is established under 
     subsection (a), and annually thereafter, the Secretary shall 
     collect and aggregate data using the method established under 
     subsection (a).
       ``(c) Annual Reports.--Not later than two years after the 
     date of enactment of this section and annually thereafter, 
     the Secretary shall submit to Congress a report on the data 
     collected and aggregated under subsection (b).
       ``(d) Authorization of Appropriations.--There are 
     authorized to be appropriated to carry out this section--
       ``(1) $10,000,000 for fiscal year 2010; and
       ``(2) such sums as may be necessary for fiscal years 2011 
     through 2014.''.
       (b) Clerical Amendment.--The table of sections at the 
     beginning of chapter 20 of such title is amended by adding at 
     the end the following new item:

``2068. Homeless Veterans Management Information System.''.

     SEC. 8. PLAN TO END VETERAN HOMELESSNESS.

       (a) In General.--Not later than 1 year after the date of 
     enactment of this Act, the Secretary of Veterans Affairs 
     shall submit to Congress a comprehensive plan to end 
     homelessness among veterans that includes--
       (1) an analysis of programs of the Department of Veterans 
     Affairs and other departments and agencies of the Federal 
     Government that are designed to prevent homelessness among 
     veterans and assist veterans who are homeless;
       (2) an evaluation of whether and how partnerships between 
     the programs described in paragraph (1) would contribute to 
     ending homelessness among veterans;
       (3) recommendations for improving the programs described in 
     paragraph (1), creating partnerships between such programs, 
     or eliminating programs that are no longer effective;
       (4) recommendations for new programs to prevent and end 
     homelessness among veterans, including an estimation of the 
     cost of such programs;
       (5) a timeline for implementing the plan; and
       (6) such other information as the Secretary determines 
     necessary.
       (b) Consideration of Veterans Located in Rural Areas.--The 
     analysis, evaluation, and recommendations included in the 
     report required by subsection (a) shall include consideration 
     of the circumstances and requirements that are unique to 
     veterans located in rural areas.
                                 ______