[Congressional Record (Bound Edition), Volume 161 (2015), Part 3]
[House]
[Pages 4000-4003]
[From the U.S. Government Publishing Office, www.gpo.gov]




   DEPARTMENT OF VETERANS AFFAIRS BUDGET PLANNING REFORM ACT OF 2015

  Mr. MILLER of Florida. Mr. Speaker, I move to suspend the rules and 
pass the bill (H.R. 216) to amend title 38, United States Code, to 
direct the Secretary of Veterans Affairs to submit to Congress a 
Future-Years Veterans Program and a quadrennial veterans review, to 
establish in the Department of Veterans Affairs a Chief Strategy 
Officer, and for other purposes, as amended.
  The Clerk read the title of the bill.
  The text of the bill is as follows:

                                H.R. 216

       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 ``Department of Veterans 
     Affairs Budget Planning Reform Act of 2015''.

     SEC. 2. ESTABLISHMENT OF STRATEGIC PLANS TO IMPROVE PROGRAMS 
                   AND BENEFITS FOR VETERANS.

       (a) Future-Years Veterans Program.--
       (1) In general.--Chapter 1 of title 38, United States Code, 
     is amended by adding at the end the following new section:

     ``Sec. 119. Future-Years Veterans Program

       ``(a) Submission to Congress.--The Secretary shall submit 
     to Congress each year, at or about the time that the 
     President's budget is submitted to Congress pursuant to 
     section 1105(a) of title 31, a Future-Years Veterans Program 
     reflecting the estimated expenditures and proposed 
     appropriations included in that budget. Any such Future-Years 
     Veterans Program shall cover the fiscal year with respect to 
     which the budget is submitted and at least the four 
     succeeding fiscal years.
       ``(b) Consistency.--(1) The Secretary shall ensure that 
     amounts described in subparagraph (A) of paragraph (2) for 
     any fiscal year are consistent with amounts described in 
     subparagraph (B) of such paragraph for that fiscal year.
       ``(2) Amounts referred to in paragraph (1) are the 
     following:
       ``(A) The amounts specified in program and budget 
     information submitted to Congress by the Secretary in support 
     of expenditure estimates and proposed appropriations in the 
     budget submitted to Congress by the President under section 
     1105(a) of title 31 for any fiscal year, as shown in the 
     Future-Years Veterans Program submitted pursuant to 
     subsection (a).
       ``(B) The total amounts of estimated expenditures and 
     proposed appropriations necessary to support the programs, 
     projects, and activities of the Department of Veterans 
     Affairs included pursuant to paragraph (5) of section 1105(a) 
     of title 31 in the budget submitted to Congress under that 
     section for any fiscal year.
       ``(c) Contents.--The Future-Years Veterans Program under 
     subsection (a) shall set forth the five-year plan of the 
     Department to address the commitment of the United States to 
     veterans and the resources necessary to meet that commitment 
     and shall be developed and updated, as appropriate, annually 
     by the Secretary. Each Future-Years Veterans Program shall 
     include an explanation of--
       ``(1) the information that was used to develop program 
     planning guidance for the Future-Years Veterans Program; and
       ``(2) how the resource allocations included in the Future-
     Years Veterans Program correlate to such five-year strategy.
       ``(d) Publication.--The Secretary shall publish on a 
     publically accessible Internet website of the Department each 
     Future-Years Veterans Program submitted pursuant to 
     subsection (a).''.
       (2) Clerical amendment.--The table of sections at the 
     beginning of such chapter is amended by inserting after the 
     item relating to section 118 the following new item:

``119. Future-Years Veterans Program.''.

       (3) Effective date.--Section 119 of title 38, United States 
     Code, as added by paragraph (1), shall apply with respect to 
     the preparation and submission of the budget request for the 
     Department of Veterans Affairs for fiscal year 2020 and 
     fiscal years thereafter.
       (b) Quadrennial Veterans Review.--
       (1) In general.--Such chapter is further amended by adding 
     after section 119, as

[[Page 4001]]

     added by subsection (a)(1), the following new section:

     ``Sec. 120. Quadrennial veterans review

       ``(a) Requirement.--(1) Not later than fiscal year 2019, 
     and every fourth year thereafter, the Secretary shall conduct 
     a review of the strategy for meeting the commitment of the 
     United States to veterans and the resources necessary to meet 
     that commitment (in this section referred to as a 
     `quadrennial veterans review').
       ``(2) Each quadrennial veterans review shall include a 
     comprehensive examination of the policies and strategies of 
     the United States with respect to veterans, including 
     recommendations regarding the long-term strategy and 
     priorities for programs, services, benefits, and outcomes 
     regarding veterans and guidance on the programs, assets, 
     capabilities, budget, policies, and authorities of the 
     Department.
       ``(3) The Secretary shall conduct each quadrennial veterans 
     review in consultation with key officials of the Department, 
     the heads of other Federal agencies, and other relevant 
     governmental and nongovernmental entities, including State, 
     local, and tribal government officials, members of Congress, 
     veterans service organizations, private sector 
     representatives, academics, and other policy experts.
       ``(4) The Secretary shall ensure that each quadrennial 
     veterans review is coordinated with the Future-Years Veterans 
     Program required under section 119 of this title.
       ``(b) Contents of Review.--In each quadrennial veterans 
     review, the Secretary shall--
       ``(1) delineate a veterans strategy consistent with the 
     commitment of the United States to veterans and refine a 
     strategy for the types of, and provision of, programs, 
     services, benefits, and outcomes consistent with current 
     authorities and requirements;
       ``(2) outline and prioritize the full range of programs and 
     capabilities regarding veterans provided by the Federal 
     Government;
       ``(3) identify the budget plan required to provide 
     sufficient resources to successfully execute the full range 
     of such programs and capabilities;
       ``(4) include an assessment of the organizational alignment 
     of the Department with respect to the strategy referred to in 
     paragraph (1) and the programs and capabilities referred to 
     in paragraph (2);
       ``(5) review and assess the effectiveness of the mechanisms 
     of the Department for executing the process of turning the 
     requirements identified in the quadrennial veterans review 
     into a plan to meet such requirements, including an 
     expenditure plan for the Department; and
       ``(6) identify emerging trends, problems, opportunities, 
     and issues that could affect veterans or the Department 
     during the ten-year period following the period covered by 
     the review.
       ``(c) Submission to Congress.--(1) The Secretary shall 
     submit to the Committees on Veterans' Affairs of the Senate 
     and the House of Representatives a report regarding each 
     quadrennial veterans review. The Secretary shall submit the 
     report in the year following the year in which the review is 
     conducted, but not later than the date on which the President 
     submits to Congress the budget for the next fiscal year under 
     section 1105 of title 31.
       ``(2) Each report submitted under paragraph (1) shall 
     include--
       ``(A) the results of the quadrennial veterans review;
       ``(B) a description of the challenges to, and opportunities 
     for, the assumed or defined veterans-related interests of the 
     Nation that were examined for the purposes of that review;
       ``(C) the strategy for meeting the Nation's commitment to 
     veterans, including a prioritized list of the missions of the 
     Department;
       ``(D) a description of the interagency cooperation, 
     preparedness of Federal assets, infrastructure, budget plan, 
     and other elements of the programs and policies of the Nation 
     associated with the strategy referred to in subsection (b)(1) 
     that are required to execute successfully the full range of 
     programs and capabilities identified in such strategy and the 
     programs and capabilities outlined under subsection (b)(2);
       ``(E) an assessment of the organizational alignment of the 
     Department with the strategy referred to in subsection (b)(1) 
     and the programs and capabilities outlined under subsection 
     (b)(2), including the Department's organizational structure, 
     management systems, budget and accounting systems, human 
     resources systems, procurement systems, and physical and 
     technical infrastructure;
       ``(F) a discussion of the status of cooperation among 
     Federal agencies in the effort to promote national support 
     for veterans;
       ``(G) a discussion of the status of cooperation between the 
     Federal Government and State, local, and tribal governments 
     in supporting veterans and providing programs, services, 
     benefits, and outcomes to assist veterans;
       ``(H) an explanation of any underlying assumptions used in 
     conducting the review; and
       ``(I) any other matter the Secretary considers appropriate.
       ``(d) Publication.--The Secretary shall publish on a 
     publically accessible Internet website of the Department each 
     quadrennial veterans review submitted pursuant to subsection 
     (c).
       ``(e) Independent Veterans Review Panel.--(1) Not later 
     than February 1 of a year in which a quadrennial veterans 
     review is conducted under this section, the Secretary shall 
     establish an independent panel to be known as the Independent 
     Veterans Review Panel (in this subsection referred to as the 
     `Panel'). The Panel shall have the duties set forth in this 
     subsection.
       ``(2) The Panel shall be composed of 10 members who are 
     recognized experts in matters relating to veterans. The 
     members shall be appointed as follows:
       ``(A) Two by the chairman of the Committee on Veterans' 
     Affairs of the House of Representatives.
       ``(B) Two by the chairman of the Committee on Veterans' 
     Affairs of the Senate.
       ``(C) Two by the ranking member of the Committee on 
     Veterans' Affairs of the House of Representatives.
       ``(D) Two by the ranking member of the Committee on 
     Veterans' Affairs of the Senate.
       ``(E) Two by the Secretary, who shall serve as co-chairs of 
     the panel.
       ``(3) Members shall be appointed for the life of the Panel. 
     Any vacancy in the Panel shall be filled in the same manner 
     as the original appointment.
       ``(4) The Panel shall have the following duties with 
     respect to a quadrennial veterans review:
       ``(A) While the review is being conducted, the Panel shall 
     review the updates from the Secretary required under 
     paragraph (7) on the progress of the conduct of the review.
       ``(B) The Panel shall--
       ``(i) review the Secretary's terms of reference and any 
     other materials providing the basis for, or substantial 
     inputs to, the work of the Department of Veterans Affairs on 
     the quadrennial veterans review;
       ``(ii) conduct an assessment of the assumptions, strategy, 
     findings, and risks included in the report on the quadrennial 
     veterans review required in subsection (c);
       ``(iii) conduct an independent assessment of a variety of 
     strategies for delivering services and support to veterans;
       ``(iv) review the resource requirements identified pursuant 
     to subsection (b)(3) and, to the extent practicable, make a 
     general comparison to the resource requirements to support 
     the strategies assessed under this subparagraph; and
       ``(v) provide to the Committees on Veterans' Affairs of the 
     Senate and the House of Representatives and the Secretary, 
     through the report under paragraph (7), any recommendations 
     the Panel determines appropriate.
       ``(5) If the Secretary has not appointed members to the 
     Panel under paragraph (2)(E) by February 1 of a year in which 
     a quadrennial veterans review is conducted under this 
     section, the Panel shall convene for its first meeting with 
     the remaining members.
       ``(6) Not later than three months after the date on which 
     the report on a quadrennial veterans review is submitted 
     under subsection (c) to the Committees on Veterans' Affairs 
     of the Senate and the House of Representatives, the Panel 
     shall submit to such committees a report containing an 
     assessment of the quadrennial veterans review, including a 
     description of the items addressed under paragraph (4) with 
     respect to that quadrennial veterans review.
       ``(7) Periodically, but not less often than every 60 days 
     during the life of the panel, or at the request of the co-
     chairs, the Secretary shall brief the Panel on the progress 
     of the conduct of the quadrennial veterans review.
       ``(8)(A) The Panel may request directly from the Department 
     such information as the Panel considers necessary to carry 
     out its duties under this subsection. The Secretary shall 
     cooperate with the Panel to ensure that information requested 
     by the Panel under this subparagraph is promptly provided to 
     the maximum extent practical.
       ``(B) Upon the request of the co-chairs, the Secretary 
     shall make available to the Panel the services of any 
     federally funded research and development center that is 
     covered by a sponsoring agreement of the Department.
       ``(C) The Panel shall have the authorities provided in 
     section 3161 of title 5 and shall be subject to the 
     conditions set forth in such section.
       ``(D) Funds for activities of the Panel shall be provided 
     from amounts available to the Department.
       ``(9) The Panel shall terminate 45 days after the date on 
     which the Panel submits the report on the quadrennial 
     veterans review under paragraph (6).''.
       (2) Clerical amendment.--The table of sections at the 
     beginning of such chapter is amended by inserting after the 
     item relating to section 119, as added by subsection (a)(2), 
     the following new item:

``120. Quadrennial veterans review.''.

       (c) Policy Guidance.--
       (1) In general.--Such chapter is further amended by adding 
     after section 120, as added by subsection (b)(1), the 
     following new section:

     ``Sec. 121. Policy guidance

       ``The Secretary shall provide annually to the appropriate 
     officials of the Department

[[Page 4002]]

     written policy guidance for the preparation and review of the 
     planning and program recommendations and budget proposals of 
     the elements of the Department of such officials. Such 
     guidance shall include guidance on the objectives of the 
     Department in accordance with Future-Years Veterans Program 
     under section 119 of this title and the quadrennial veterans 
     review under section 120 and the resource levels projected to 
     be available for the period of time for which such 
     recommendations and proposals are to be effective.''.
       (2) Clerical amendment.--The table of sections at the 
     beginning of such chapter is amended by inserting after the 
     item relating to section 120, as added by subsection (b)(2), 
     the following new item:

``121. Policy guidance.''.

     SEC. 3. CHIEF STRATEGY OFFICER OF THE DEPARTMENT OF VETERANS 
                   AFFAIRS.

       (a) In General.--Chapter 3 of title 38, United States Code, 
     is amended by adding at the end the following new section:

     ``Sec. 323. Chief Strategy Officer

       ``(a) In General.--The Secretary shall designate the 
     Assistant Secretary whose functions include planning, 
     studies, and evaluations as the Chief Strategy Officer of the 
     Department. The Chief Strategy Officer shall advise the 
     Secretary on long-range strategy and implications.
       ``(b) Responsibilities.--The Chief Strategy Officer is the 
     principal advisor to the Secretary and other senior officials 
     of the Department, and shall provide independent analysis and 
     advice to the Secretary and such officials. The Chief 
     Strategy Officer shall carry out the following 
     responsibilities:
       ``(1) Conducting cost estimation and cost analysis for the 
     programs of the Department.
       ``(2) Establishing policies for, and overseeing the 
     integration of, the planning, programming, budgeting and 
     execution process for the Department.
       ``(3) Providing analysis and advice on matters relating to 
     the planning and programming phase of the planning, 
     programming, budgeting and execution process, and the 
     preparation of materials and guidance for such process, as 
     directed by the Secretary, working in coordination with the 
     Assistant Secretary for Management.
       ``(4) Developing and executing the Future-Years Veterans 
     Program of the Department, as specified under section 119 of 
     this title.
       ``(5) Developing resource discussions relating to 
     requirements under consideration in the quadrennial veterans 
     review under section 120 of this title.
       ``(6) Formulating study guidance for analysis of 
     alternatives for programs and initiatives, including any 
     necessary acquisitions, development, or procurement 
     commensurate with such alternatives, and performance of such 
     analysis as directed by the Secretary.
       ``(7) Reviewing, analyzing, and evaluating programs for 
     executing approved strategies and policies, ensuring that 
     information on programs and expected outcomes is presented 
     accurately and completely.
       ``(8) Ensuring that the costs of programs and alternatives 
     are presented accurately and completely by assisting in 
     establishing standards, policies, and procedures for the 
     conduct of cost estimation and cost analysis throughout the 
     Department, including guidance relating to the proper 
     selection of confidence levels in cost estimates generally 
     and for specific programs of the Department.
       ``(9) Conducting studies at the request of the Secretary 
     regarding costs, policy assumptions, and strategic 
     implications of current policies and possible alternatives.
       ``(10) Communicating directly to the Secretary and the 
     Deputy Secretary of Veterans Affairs about matters for which 
     the Chief Strategy Officer is responsible without obtaining 
     the approval or concurrence of any other official within the 
     Department.''.
       (b) Clerical Amendment.--The table of sections at the 
     beginning of such chapter is amended by inserting after the 
     item relating to section 322 the following new item:

``323. Chief Strategy Officer.''.

     SEC. 4. PROHIBITION ON NEW APPROPRIATIONS.

       No additional funds are authorized to be appropriated to 
     carry out this Act or the amendments made by this Act. This 
     Act and such amendments shall be carried out using amounts 
     otherwise available for the Department of Veterans Affairs.

  The SPEAKER pro tempore. Pursuant to the rule, the gentleman from 
Florida (Mr. Miller) and the gentleman from South Carolina (Mr. 
Clyburn) each will control 20 minutes.
  The Chair recognizes the gentleman from Florida.


                             General Leave

  Mr. MILLER of Florida. Mr. Speaker, I ask unanimous consent that all 
Members have 5 legislative days within which to revise and extend their 
remarks and add extraneous material on H.R. 216, as amended.
  The SPEAKER pro tempore. Is there objection to the request of the 
gentleman from Florida?
  There was no objection.
  Mr. MILLER of Florida. Mr. Speaker, I yield myself such time as I may 
consume.
  Mr. Speaker, H.R. 216, as amended, would revise the process by which 
the Department of Veterans Affairs prepares its annual budget as a 
means to provide Congress with greater transparency regarding VA's 
alignment of resource requirements with its strategic goals.
  The bill directs the Secretary of Veterans Affairs to submit annually 
to Congress a Future-Years Veterans Program reflecting estimated 
expenditures and proposed appropriations included in the budget for 
that fiscal year and the subsequent 4 fiscal years.
  The bill would also require the Secretary, in 2019 and every 4 years 
thereafter, to conduct a review of the strategy for meeting the 
Nation's commitment to veterans and the resources needed to implement 
the strategy. To assist the Secretary in carrying out the 5-year plan 
and the quadrennial review, the bill would require the Secretary to 
designate a chief strategy officer to advise the Secretary on long-
range VA strategy and implications.
  Finally, the bill puts in place a 10-member panel to study the 
quadrennial review and report back to the Congress on the panel's 
opinions of the review's findings. The combination of the 5-year budget 
look-ahead, the quadrennial review, and the panel is intended to 
increase our ability to determine VA's future needs in a manner that 
provides checks and balances that currently do not exist.
  Mr. Speaker, this really is a commonsense bill. No longer would VA be 
able to announce ambitious goals such as ending homelessness or 
eliminating the claims backlog without Members of Congress and the 
public having insight into the estimated long-range resources that are 
going to be needed to meet those goals.
  With a $168 billion budget, veterans and taxpayers deserve full 
transparency when it comes to how scarce resources are planned to be 
allocated.
  I must also add that this bill makes no additional fund available and 
would require VA to accomplish this bill's requirements within its 
existing resources.
  With that, I reserve the balance of my time.
  Mr. CLYBURN. Mr. Speaker, I yield myself such time as I may consume.
  Mr. Speaker, I rise in support of H.R. 216, as amended, the 
Department of Veterans Affairs Budget Planning Reform Act of 2015.
  This bill represents a bipartisan effort of the Veterans Affairs' 
Committee, building on the work of former Ranking Member Michael 
Michaud and current Ranking Member Corrine Brown of Florida.
  I also want to thank Chairman Jeff Miller, Mr. Doug Lamborn of 
Colorado, and all of the members of the committee for their efforts on 
behalf of this bill.
  H.R. 216 would codify and strengthen efforts by the VA to improve the 
manner in which it matches resources with requirements. H.R. 216 will 
improve transparency and give us in Congress, veterans, and the 
American people a better sense of where the VA is going and how it 
intends to get there.
  It is often said that the journey of a thousand miles begins with a 
single step. Far too often, it seems that, in terms of budget planning, 
the VA is focused on the single step and not the thousand-mile journey.
  Currently, the majority of the VA's programs are provided funding 
under what is called ``advance appropriations.'' This means that the VA 
budget is put in place well before the start of the fiscal year in 
which it will be needed.

                              {time}  1645

  This also means that the VA is attempting to estimate the demands it 
will face many, many months down the road. H.R. 216 will assist the VA 
in ensuring that these estimates are as reliable as possible.
  H.R. 216 will provide the necessary framework for the VA to 
strategically determine how best to meet the needs of veterans, while 
ensuring that this framework and these decisions are transparent and 
justified. This will assist our work here in Congress and give veterans 
the peace of mind that the VA is looking to the future and not caught 
in the past.

[[Page 4003]]

  H.R. 216 would require the VA to lay out a 5-year budget plan 
beginning in fiscal year 2020. This budget plan would be informed by a 
quadrennial review, initially required in fiscal year 2019, and then 
upgraded every 4 years. This would give the VA plenty of time to ensure 
that its internal processes can support these requirements.
  H.R. 216 would also require the Secretary to provide annual policy 
guidance to ensure that near-term budgets are aligned with the VA's 
longer-term strategic outlook.
  Many of the challenges the VA is facing today are remarkably similar 
to the problems it was facing when I served on the committee two 
decades ago. There is always a challenge to fit the available resources 
to the immediate needs and to focus on what will be required in the 
months ahead. It is easy to lose focus on where we are going while 
meeting the emergencies and crises of today.
  I believe that H.R. 216 will assist all of us in keeping the entire 
journey in mind and not the single step. It will provide the 
information we need to look ahead, enable veterans and the American 
people to have the information they need to be assured that we are on 
the right track, and better enable the VA to get the resources it truly 
needs to meet the challenges it faces.
  Mr. Speaker, I reserve the balance of my time.
  Mr. MILLER of Florida. Mr. Speaker, I have no speakers, so if the 
gentleman is prepared to close, I am also prepared to close.
  Mr. CLYBURN. Mr. Speaker, I urge my colleagues to support H.R. 216.
  I yield back the balance of my time.
  Mr. MILLER of Florida. Mr. Speaker, I do want to thank my good 
friend, Mr. Clyburn, for helping manage this bill for Ms. Brown and 
also to say thank you to our former colleague, Mr. Michaud, who did, in 
fact, work long and hard to get this piece of legislation brought to 
the floor.
  Once again, I encourage all Members to support H.R. 216, as amended.
  I yield back the balance of my time.
  The SPEAKER pro tempore. The question is on the motion offered by the 
gentleman from Florida (Mr. Miller) that the House suspend the rules 
and pass the bill, H.R. 216, as amended.
  The question was taken.
  The SPEAKER pro tempore. In the opinion of the Chair, two-thirds 
being in the affirmative, the ayes have it.
  Mr. MILLER of Florida. Mr. Speaker, on that I demand the yeas and 
nays.
  The yeas and nays were ordered.
  The SPEAKER pro tempore. Pursuant to clause 8 of rule XX, further 
proceedings on this motion will be postponed.

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