[House Report 108-534]
[From the U.S. Government Publishing Office]
108th Congress Report
HOUSE OF REPRESENTATIVES
2d Session 108-534
======================================================================
HOMELESS VETERANS ASSISTANCE REAUTHORIZATION ACT OF 2004
_______
June 9, 2004.--Committed to the Committee of the Whole House on the
State of the Union and ordered to be printed
_______
Mr. Smith of New Jersey, from the Committee on Veterans' Affairs,
submitted the following
R E P O R T
[To accompany H.R. 4248]
[Including cost estimate of the Congressional Budget Office]
The Committee on Veterans' Affairs, to whom was referred the
bill (H.R. 4248) to amend title 38, United States Code, to
extend the authority of the Secretary of Veterans Affairs to
make grants to expand or modify existing comprehensive service
programs for homeless veterans, and for other purposes, having
considered the same, report favorably thereon with an amendment
and recommend that the bill as amended do pass.
The amendment is as follows:
Strike all after the enacting clause and insert the
following:
SECTION 1. SHORT TITLE.
This Act may be cited as the ``Homeless Veterans Assistance
Reauthorization Act of 2004''.
SEC. 2. EXTENSION OF AUTHORITY FOR SECRETARY OF VETERANS AFFAIRS TO
MAKE GRANTS FOR ASSISTANCE TO HOMELESS VETERANS.
Section 2011(a)(2) of title 38, United States Code, is amended by
striking ``September 30, 2005'' and inserting ``September 30, 2008''.
SEC. 3. AUTHORIZATION OF APPROPRIATIONS.
Section 2013 of title 38, United States Code, is amended--
(1) in paragraph (4), by striking ``$75,000,000'' and
inserting ``$100,000,000''; and
(2) by adding at the end the following new paragraphs:
``(5) $100,000,000 for fiscal year 2006.
``(6) $100,000,000 for fiscal year 2007.
``(7) $100,000,000 for fiscal year 2008.''.
SEC. 4. PERMANENT AUTHORITY FOR SECRETARY OF VETERANS AFFAIRS TO
OPERATE SEXUAL TRAUMA COUNSELING PROGRAM.
Section 1720D(a) of title 38, United States Code, is amended--
(1) in paragraph (1), by striking ``During the period through
December 31, 2004, the'' and inserting ``The''; and
(2) in paragraph (2), by striking ``, during the period
through December 31, 2004,''.
Introduction
The reported bill reflects the Committee's consideration of
two bills in the 108th Congress, H.R. 4248 and H.R. 3849. On
April 29, 2004, Honorable Christopher H. Smith and Honorable
Lane Evans introduced H.R. 4248, the Homeless Veterans
Assistance Reauthorization Act of 2004. On February 26, 2004,
Honorable Ciro R. Rodriguez, Honorable Lane Evans, and
Honorable Luis V. Gutierrez introduced H.R. 3849, the Military
Sexual Trauma Counseling Act of 2004.
On May 6, 2004, the Subcommittee on Health held a
legislative hearing to consider four bills and one draft
legislative proposal. Among the bills discussed, testimony was
received on H.R. 4248, to extend the authority of the Secretary
to make grants to provide programs for homeless veterans
through fiscal year 2008 and increase authority for
appropriations from $75 million to $100 million; and H.R. 3849,
to provide permanent authority for the Secretary to operate a
program to provide counseling and treatment for veterans who
while in military service experienced sexual trauma.
Witnesses who appeared before the Subcommittee included
Honorable Gordon H. Mansfield, Deputy Secretary of Veterans
Affairs, who was accompanied by Honorable Tim S. McClain,
General Counsel; Jonathan B. Perlin, M.D., Acting Under
Secretary for Health; and Mr. Thomas J. Hogan, Deputy Assistant
Secretary for Human Resources Management. Witnesses also
included Linda S. Schwartz, R.N., Dr.PH, Commissioner of the
Connecticut Department of Veterans Affairs; Andrea Mengel,
Ph.D., R.N., Head, Department of Nursing, Community College of
Philadelphia, representing the American Association of
Community Colleges; Mr. Robert Van Keuren, Chair of the VA
Advisory Committee on Homeless Veterans and Ms. Marsha Four,
R.N., Chair of the VA Advisory Committee on Women Veterans; Ms.
Cathleen C. Wimblemo, Deputy Director, Health Care, The
American Legion; Mr. Rick Weidman, Director, Government
Relations, Vietnam Veterans of America; Mr. Richard Jones,
National Legislative Director, AMVETS; Mr. Richard Fuller,
National Legislative Director, Paralyzed Veterans of America;
Mr. Dennis Cullinan, National Legislative Director, Veterans of
Foreign Wars; and Mr. Adrian M. Atizado, Assistant National
Legislative Director, Disabled American Veterans.
On May 13, 2004, the Subcommittee on Health met and
unanimously ordered H.R. 4248, as amended, reported favorably
to the full Committee by voice vote.
On May 18, 2004, the full Committee held an oversight
hearing on the status of homeless assistance programs for
veterans conducted by the Department of Veterans Affairs (VA),
including its coordination with community-based providers and
other Federal agencies, principally the Departments of Health
and Human Services (HHS) and Housing and Urban Development
(HUD). The hearing provided an overview of VA's homeless
assistance programs; the relationships that exist between VA
and community-based providers; and a review of the Homeless
Veterans Comprehensive Assistance Act of 2001 (P.L. 107-95),
with an assessment of VA's progress in implementing this law.
The Committee also examined the status of VA's implementation
of the transitional housing authority passed by Congress in
Public Law 105-368, the Veterans Programs Enhancement Act of
1998.
Witnesses who appeared before the Committee unanimously
supported the homeless provisions in H.R. 4248 and included Mr.
John Kuhn, LCSW, MPH, Homeless Program Coordinator, New Jersey
Health Care System, Department of Veterans Affairs, who was
accompanied by three veterans: Mr. Robert Valentino, Mr. Ralph
Owens, and Mr. Thaddeus McNair. Richard McCormick, Ph.D., of
Hudson, OH, also testified as a former Capital Asset
Realignment for Enhanced Services (CARES) Commissioner and
former VA employee with over 30 years of service as a clinician
and mental health administrator in the Veterans Health
Administration (VHA), which included responsibility for
directing all mental health and homeless services in VISN 10,
as well as national roles such as Co-Chair of the Committee on
the Care of Severely Mentally Ill Veterans. Witnesses also
included Honorable Gordon H. Mansfield, Deputy Secretary of
Veterans Affairs, who was accompanied by Mr. Peter H.
Dougherty, Director, Office of Homeless Veterans, Programs; Ms.
M. Gay Koerber, Associate Chief Consultant, Health Care for
Homeless Veterans; and Mr. Claude B. Hutchison, Jr., Director,
Office of Asset Enterprise Management. Ms. Patricia Carlile,
Deputy Assistant Secretary for Special Needs Programs,
testified on behalf of HUD; and Mr. Don Winstead, Deputy
Assistant Secretary for Planning and Evaluation, Office of
Human Services Policy, represented HHS. Representing community-
based providers were Ms. Linda Boone, Executive Director of the
National Coalition for Homeless Veterans, Washington, DC; Mr.
William G. D'Arcy, Catholic Charities of the Archdiocese of
Chicago, Chicago, IL; Mr. James W. Manning, Commissioner,
Housing Authority of the Township of Neptune, Neptune, NJ; and
Mr. Carlos Martinez, President and CEO of the American GI
Forum, National Veterans Outreach Program, Inc., San Antonio,
TX.
On May 19, 2004, the full Committee met and unanimously
ordered H.R. 4248, as amended, reported favorably to the House
by voice vote.
Summary of the Reported Bill
H.R. 4248, as amended, would:
1. LExtend the authority of the Secretary to make grants to
expand or modify existing programs for homeless veterans from
September 30, 2005 to September 30, 2008.
2. LIncrease the authorization for the grant and per diem
program for homeless veterans from $75 million to $100 million,
for fiscal year 2005 through fiscal year 2008.
3. LMake permanent the authority of the Secretary to
provide sexual trauma counseling to veterans.
Background and Discussion
Extension of authority for Secretary of Veterans Affairs to
make grants for assistance to homeless veterans.--VA estimates
that there are 200,000 or more homeless veterans living on the
streets on any given night. Other organizations dedicated to
assisting homeless populations believe the number is closer to
300,000. For these veterans, access to VA benefits, specialized
services and effective outreach are vital components to any
hope of individual stability and improvement in their
prospects.
Public Law 107-95, the Homeless Veterans Comprehensive
Assistance Act of 2001, authorized the Secretary to make grants
for comprehensive service programs for homeless veterans. VA's
Homeless Grant and Per Diem program is one such program
established under this law to provide competitive grants to
community-based, faith-based, and public organizations that
offer transitional housing or service centers for homeless
veterans. With grants and per diem-only awards, VA is
contributing support for approximately 10,000 community-based
supportive housing beds and services to homeless veterans in
all 50 states and the District of Columbia. The current
authority for this program would expire on September 30, 2005.
VA cost projections for the Homeless Grant and Per Diem
program are that spending will increase to about $100 million
by 2015. To meet this growing need, the President's budget
proposal for fiscal year 2005 requested an increase in the VA's
grant and per diem program authorization from $75 million to
$100 million.
The Committee bill would extend the program authority
through fiscal year 2008 and authorize an increase in the
authorization of appropriations from $75 million to $100
million.
Permanent authority for Secretary of Veterans Affairs to
operate sexual trauma counseling program.--Public Law 102-585,
the Veterans Health Care Act of 1992, included provisions
authorizing VA to provide mental health counseling for women
veterans who had experienced sexual trauma while serving on
active military duty. In 1994, Public Law 103-452, the Veterans
Health Programs Extension Act of 1994, broadened eligibility
for sexual trauma counseling and treatment for veterans of
either gender who may have experienced sexual trauma while
serving on active duty.
Individuals who experience sexual trauma may have a variety
of psychological and physical health effects, but commonly have
problems with interpersonal relationships, difficulty with
concentration, and issues with self-medication through
substance abuse.
As of August 2003, VA reported that 31,423 males and 27,385
female veterans responded positively to relevant screenings,
indicating unwanted sexual experiences had occurred during
their military service periods. With the expanded role of the
U.S. military, including Reservists and National Guard, in
operations in Iraq and Afghanistan and other overseas
deployments, VA expects a rise in the number of veterans
seeking such counseling and treatment in the future. Under
current law, the authority to provide sexual trauma counseling
for eligible individuals expires on December 31, 2004.
The Committee bill would recognize the continuing need for
these programs within VA by permanently authorizing the
counseling authority.
Section-By-Section Analysis
Section 1 of the bill would name this Act the ``Homeless
Veterans Assistance Reauthorization Act of 2004.''
Section 2 of the bill would amend section 2011(a)(2) of
title 38, United States Code, to extend the authority of the
Secretary to make grants for assistance to homeless veterans
through September 30, 2008.
Section 3 of the bill would amend section 2013 of title 38,
United States Code, to authorize an increase in appropriations
to support grants for homeless veterans from $75,000,000 to
$100,000,000 in each fiscal year beginning in 2005 through
2008.
Section 4 of the bill would amend section 1720D(a) of title
38, United States Code, to make permanent the authority of the
Secretary to provide sexual trauma counseling and appropriate
care and services to eligible veterans.
Performance Goals and Objectives
The Department of Veterans Affairs' performance goals and
objectives are established in annual performance plans and are
subject to the Committee's regular oversight and evaluation by
the U.S. General Accounting Office. VA also publishes a
performance and accountability report for each fiscal year.
Statement of the Views of the Administration
STATEMENT OF THE HONORABLE GORDON H. MANSFIELD, DEPUTY SECRETARY OF
VETERANS AFFAIRS, BEFORE THE SUBCOMMITTEE ON HEALTH, COMMITTEE ON
VETERANS AFFAIRS, U.S. HOUSE OF REPRESENTATIVES
May 6, 2004
Good morning, Mr. Chairman and Members of the Subcommittee.
I am pleased to be here to present the Department's views on
several bills and a draft bill, which pertain primarily to veteran's
health care and related administrative matters.
* * * * * * *
H.R. 4248
H.R. 4248 would extend to September 30, 2008, VA's authority to
carry out the Homeless Providers Grant and Per Diem Program. Currently,
authority for the program will expire on September 30, 2005. It would
also authorize $100 million in appropriations for each of fiscal years
2005, 2006, 2007, and 2008. Currently, $75 million is authorized for
fiscal year 2005.
VA strongly supports H.R. 4248. VA's Homeless Providers Grant and
Per Diem Program is a highly successful collaborative effort between VA
and non-profit organizations and local and state government agencies to
furnish needed outreach, supportive services, and transitional housing
services to homeless veterans. Since the program was authorized in
1992, VA has obligated $76 million to the grant component of the
program. These funds have resulted in the development of 6,400
transitional housing beds and 17 independent service centers and the
purchase of 128 vans.
Similar success is found with the per diem component of the
program. The most recent awards were used to support 1,583 beds in 80
programs. To date, under the per diem-only program, 3,799 new beds are
either operational or coming on-line.
Still VA needs to continue working with its community partners to
develop more transitional housing for homeless veteran across the
country. VA estimates the cost associated with enactment of this
proposal to be $8,956,672 above the current authorized level for fiscal
year 2005. We estimate that to ensure full funding for this program for
fiscal years 2006, 2007, and 2008, we will require $91,698,224,
$81,996,208, and $86,282,778, respectively. We therefore welcome the
Committee's proposal to increase the level of authorized appropriations
for this program.
______
H.R. 3849
H.R. 3849 would permanently authorize VA's program to provide
counseling services and care for sexual trauma. Currently, VA's
authority for this program extends only through December 31, 2004.
VA strongly supports making this treatment authority permanent. The
number of women veterans seeking VA counseling and treatment for
military sexual trauma continues to increase at a substantial rate.
Likewise, the number of women who serve in the Armed Forces, the
Reserves, and the National Guard continues to grow. VA must therefore
be able to provide needed sexual trauma counseling and related health
care to these current and future veterans without any lapse in program
authority. Enactment of H.R. 3849 would achieve that goal. VA estimates
there would be no additional costs associated with enactment of this
proposal.
* * * * * * *
Congressional Budget Office Cost Estimate
The following letter was received from the Congressional
Budget Office concerning the cost of the reported bill:
U.S. Congress,
Congressional Budget Office,
Washington, DC, June 4, 2004
Hon. Christopher H. Smith
Chairman, Committee on Veterans' Affairs,
House of Representatives, Washington, DC
Dear Mr. Chairman: The Congressional Budget Office has
prepared the enclosed cost estimate for H.R. 4248, the Homeless
Veterans Assistance Reauthorization Act of 2004.
If you wish further details on this estimate, we will be
pleased to provide them. The CBO staff contact is Sam
Papenfuss, who can be reached at 226-2840.
Sincerely,
Douglas Holtz-Eakin,
Director
Enclosure.
------
Congressional Budget Office Cost Estimate
June 4, 2004
H.R. 4248--Homeless Veterans Assistance Reauthorization Act of 2004
As ordered reported by the House Committee on Veterans' Affairs on May
19, 2004
SUMMARY
H.R. 4248 would authorize appropriations for the Department
of Veterans Affairs (VA) to provide assistance to homeless
veterans. The bill also would permanently extend the authority
for VA to provide counseling to those veterans who have
suffered from sexual trauma.
CBO estimates that implementing this bill would cost $30
million in 2005 and $375 million over the 2005-2009 period,
assuming appropriation of the estimated amounts. Enacting the
bill would not affect direct spending or revenues.
H.R. 4248 contains no intergovernmental or private-sector
mandates as defined in the Unfunded Mandates Reform Act (UMRA)
and would impose no costs on state, local, or tribal
governments.
ESTIMATED COST TO THE FEDERAL GOVERNMENT
The estimated budgetary impact of H.R. 4248 is shown in the
following table. The costs of this legislation fall within
budget function 700 (veterans benefits and services).
By Fiscal Year, in Millions of Dollars
-----------------------------------------------------
2004 2005 2006 2007 2008 2009
----------------------------------------------------------------------------------------------------------------
SPENDING SUBJECT TO APPROPRIATION
Spending Under Current Law for Assistance for Homeless
Veterans and Sexual Trauma Counseling
BudgetAuthority/Authorization Level a................... 79 78 0 0 0 0
Estimated Outlays....................................... 79 77 7 0 0 0
Proposed Changes
Assistance for Homeless Veterans
Authorization Level................................... 0 25 100 100 100 0
Estimated Outlays..................................... 0 23 92 99 99 10
Sexual Trauma Counseling
Estimated Authorization Level......................... 0 7 11 11 12 12
Estimated Outlays..................................... 0 7 10 11 12 12
Total Changes
Estimated Authorization Level..................... 0 32 111 111 112 12
Estimated Outlays................................. 0 30 102 110 111 22
Spending Under H.R. 4248 for Assistance for Homeless
Veterans and Sexual Trauma Counseling
Estimated Authorization Level........................... 79 110 111 111 112 12
Estimated Outlays....................................... 79 107 109 110 111 22
----------------------------------------------------------------------------------------------------------------
a The 2004 level is the estimated amount appropriated for that year. No appropriation has yet been provided for
fiscal year 2005. The amount in 2005 represents a current authorization of $75 million for assistance for
homeless veterans and $3 million for sexual trauma counseling.
BASIS OF ESTIMATE
This estimate assumes that H.R. 4248 will be enacted near
the start of fiscal year 2005, and that the authorized and
estimated amount will be appropriated for each year.
Assistance for Homeless Veterans
Section 2 would authorize the appropriation of $100 million
in 2005, instead of the $75 million that is authorized under
current law, for the purpose of providing assistance to
homeless veterans. It also would authorize $100 million a year
over the 2006-2008 period for the same purpose. These funds
would be spent on providing grants to organizations to help
them furnish, expand, or modify services to homeless veterans,
including transitional housing, outreach programs,
rehabilitative services, and vocational counseling and
training. In addition, VA could use the funds to provide per
diem payments to those organizations that provide such services
to homeless veterans. CBO estimates that implementing this
provision would cost $23 million in 2005 and $323 million over
the 2005-2009 period, assuming appropriation of the authorized
amounts.
Sexual Trauma Counseling
Section 3 would permanently extend a provision allowing VA
to provide counseling to veterans who suffered from sexual
trauma while serving on active duty. Under current law, the
authority to provide such counseling expires on December 31,
2004. Using information from VA, CBO estimates that about 2
percent (approximately 100,000) of veterans who received care
from VA were eligible to receive counseling for sexual trauma
in 2003. Data from VA although incomplete, suggests that about
5,000, or 5 percent, of those eligible veterans received such
counseling in 2003, at an average per capita cost of almost
$2,000. Assuming that about this same number of veterans
receives counseling for sexual trauma each year over the 2005-
2009 period, CBO estimates that permanently extending this
provision would cost $7 million in 2005 and $52 million over
the 2005-2009 period, assuming appropriation of the necessary
amounts.
INTERGOVERNMENTAL AND PRIVATE-SECTOR IMPACT
H.R. 4248 contains no intergovernmental or private-sector
mandates as defined in UMRA. Public agencies would be eligible
to receive grants to provide and enhance services to homeless
veterans; any costs incurred by those governments would be
voluntary.
estimate prepared by:
Federal Costs: Sam Papenfuss (226-2840)
Impact on State, Local, and Tribal Governments: Melissa
Merrell (225-3220)
Impact on the Private Sector: Chad Goldberg (226-2900)
estimate approved by:
Peter H. Fontaine, Deputy Assistant Director for Budget
Analysis
Statement of Federal Mandates
The preceding Congressional Budget Office cost estimate
states that the bill contains no intergovernmental or private
sector mandates as defined in the Unfunded Mandates Reform Act.
Statement of Constitutional Authority
Pursuant to Article I, section 8 of the United States
Constitution, the reported bill is authorized by Congress'
power to ``provide for the common Defense and general Welfare
of the United States.''
Changes in Existing Law Made by the Bill, as Reported
In compliance with clause 3(e) of rule XIII of the Rules of
the House of Representatives, changes in existing law made by
the bill, as reported, are shown as follows (existing law
proposed to be omitted is enclosed in black brackets, new
matter is printed in italics, existing law in which no change
is proposed is shown in roman):
TITLE 38, UNITED STATES CODE
* * * * * * *
PART II--GENERAL BENEFITS
* * * * * * *
CHAPTER 17--HOSPITAL, NURSING HOME, DOMICILIARY, AND MEDICAL CARE
* * * * * * *
SUBCHAPTER II--HOSPITAL, NURSING HOME OR DOMICILIARY CARE AND MEDICAL
TREATMENT
* * * * * * *
Sec. 1720D. Counseling and treatment for sexual trauma
(a)(1) [During the period through December 31, 2004, the] The
Secretary shall operate a program under which the Secretary
provides counseling and appropriate care and services to
veterans who the Secretary determines require such counseling
and care and services to overcome psychological trauma, which
in the judgment of a mental health professional employed by the
Department, resulted from a physical assault of a sexual
nature, battery of a sexual nature, or sexual harassment which
occurred while the veteran was serving on active duty.
(2) In furnishing counseling to a veteran under this
subsection, the Secretary may[, during the period through
December 31, 2004,] provide such counseling pursuant to a
contract with a qualified mental health professional if (A) in
the judgment of a mental health professional employed by the
Department, the receipt of counseling by that veteran in
facilities of the Department would be clinically inadvisable,
or (B) Department facilities are not capable of furnishing such
counseling to that veteran economically because of geographical
inaccessibility.
* * * * * * *
CHAPTER 20--BENEFITS FOR HOMELESS VETERANS
* * * * * * *
SUBCHAPTER II--COMPREHENSIVE SERVICE PROGRAMS
Sec. 2011. Grants
(a) Authority To Make Grants.--(1) * * *
(2) The authority of the Secretary to make grants under this
section expires on September 30, [2005] 2008.
* * * * * * *
Sec. 2013. Authorization of appropriations
There are authorized to be appropriated to carry out this
subchapter amounts as follows:
(1) * * *
* * * * * * *
(4) [$75,000,000] $100,000,000 for fiscal year 2005.
* * * * * * *
(5) $100,000,000 for fiscal year 2006.
(6) $100,000,000 for fiscal year 2007.
(7) $100,000,000 for fiscal year 2008.
* * * * * * *