[House Report 115-686]
[From the U.S. Government Publishing Office]


115th Congress    }                                      {      Report
                        HOUSE OF REPRESENTATIVES
 2d Session       }                                      {     115-686

======================================================================



 
 HOMELESS VETERANS' REINTEGRATION PROGRAMS REAUTHORIZATION ACT OF 2018

                                _______
                                

  May 18, 2018.--Committed to the Committee of the Whole House on the 
              State of the Union and ordered to be printed

                                _______
                                

    Mr. Roe of Tennessee, from the Committee on Veterans' Affairs, 
                        submitted the following

                              R E P O R T

                        [To accompany H.R. 4451]

      [Including cost estimate of the Congressional Budget Office]

    The Committee on Veterans' Affairs, to whom was referred 
the bill (H.R. 4451) to amend title 38, United States Code, to 
provide for a five-year extension to the homeless veterans 
reintegration programs and to provide clarification regarding 
eligibility for services under such programs, having considered 
the same, report favorably thereon with an amendment and 
recommend that the bill as amended do pass.

                                CONTENTS

                                                                   Page
Purpose and Summary..............................................     2
Background and Need for Legislation..............................     2
Hearings.........................................................     3
Subcommittee Consideration.......................................     4
Committee Consideration..........................................     4
Committee Votes..................................................     4
Committee Correspondence.........................................      
Committee Oversight Findings.....................................     4
Statement of General Performance Goals and Objectives............     4
Earmarks and Tax and Tariff Benefits.............................     5
Committee Cost Estimate..........................................     5
Budget Authority and Congressional Budget Office Estimate........     5
Federal Mandates Statement.......................................     7
Advisory Committee Statement.....................................     7
Constitutional Authority Statement...............................     7
Applicability to Legislative Branch..............................     7
Statement on Duplication of Federal Programs.....................     7
Disclosure of Directed Rulemaking................................     7
Section-by-Section Analysis of the Legislation...................     7
Changes in Existing Law Made by the Bill as Reported.............     8

    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' Reintegration 
Programs Reauthorization Act of 2018''.

SEC. 2. REAUTHORIZATION OF HOMELESS VETERANS REINTEGRATION PROGRAMS.

  (a) Five-Year Extension of Homeless Veterans Reintegration 
Programs.--Section 2021(e)(1)(F) of title 38, United States Code, is 
amended by striking ``2018'' and inserting ``2022''.
  (b) Five-Year Extension of Homeless Women Veterans and Homeless 
Veterans With Children Reintegration Grant Program.--Section 
2021A(f)(1) of such title is amended by striking ``2018'' and inserting 
``2022''.
  (c) Clarification of Eligibility for Services Under Homeless Veterans 
Reintegration Programs.--Section 2021(a) of such title is amended by 
striking ``reintegration of homeless veterans into the labor force.'' 
and inserting the following: ``reintegration into the labor force of--
          ``(1) homeless veterans (including veterans who were homeless 
        but found housing during the 60-day period preceding the date 
        on which the veteran begins to participate in a program under 
        this section);
          ``(2) veterans participating in the Department of Veterans 
        Affairs supported housing program for which rental assistance 
        is provided pursuant to section 8(o)(19) of the United States 
        Housing Act of 1937 (42 U.S.C. 1437f(o)(19)) or the Tribal HUD-
        VA Supportive Housing (Tribal HUD-VASH) program;
          ``(3) Indians who are veterans and receiving assistance under 
        the Native American Housing Assistance and Self Determination 
        Act of 1996 (25 U.S.C. 4101 et seq.);
          ``(4) veterans described in section 2023(e) of this title or 
        any other veterans who are transitioning from being 
        incarcerated; and
          ``(5) veterans participating in the Department of Veterans 
        Affairs rapid rehousing and prevention program authorized in 
        section 2044 of this title.''.

                          Purpose and Summary

    H.R. 4451, as amended, the ``Homeless Veterans' 
Reintegration Programs Reauthorization Act of 2017,'' would 
reauthorize the Homeless Veterans' Reintegration Program (HVRP) 
and Homeless Women Veterans and Homeless Veterans with Children 
Reintegration Grant Program (HVRP-W) through fiscal year 2022. 
In addition, the bill would expand the definition of homeless 
veterans thereby making more veterans eligible for training 
under these programs. Representative Brad Wenstrup of Ohio 
introduced H.R. 4451 on November 16, 2017.

                  Background and Need for Legislation

    Sections 2021 and 2021A of title 38, United States Code 
(U.S.C.) authorizes HVRP and HVRP-W. These are grant programs 
managed by the U.S. Department of Labor's (DOL) Veterans 
Employment and Training Service (VETS). Grants are made 
generally to non-profit, community-based organizations to fund 
efforts to train and place homeless veterans in jobs. According 
to testimony provided by Mr. Matt Miller, the Deputy Assistant 
Secretary for VETS at DOL, the performance of this program has 
been positive:

          In FY 2017, the HVRP program received an 
        appropriation of $45 million with which the Department 
        awarded 74 new HVRP grants, 81 option year HVRP grants. 
        These grantees will provide services to over 16,230 
        homeless veterans, with a placement rate of 67 percent, 
        who earned an average hourly wage at placement of 
        $12.88 an hour.\1\
---------------------------------------------------------------------------
    \1\Testimony of Mr. Matt Miller, Deputy Assistant Secretary, 
Veterans Employment and Training Service, U.S. Department of Labor 
before the Subcommittee on Economic Opportunity and Subcommittee on 
Health of the House Committee on Veterans' Affairs, January 18, 2018. 
https://docs.house.gov/meetings/VR/VR03/20180118/106743/HHRG-115-VR03-
Wstate-MillerM-20180118.pdf.

    The Committee believes the program's success justifies its 
continuation as a part of the overall effort to reduce 
homelessness among veterans of all ages. At the legislative 
hearing on this bill held on March 20, 2018, the Subcommittee 
on Economic Opportunity received unanimous support for the 
extension of this program as it continues to provide homeless 
veterans with the job training necessary to break the cycle of 
homelessness.
    Therefore, this bill would extend the annual authorization 
of $50 million in appropriations for HVRP until September 30, 
2022, and would also reauthorize the HVRP-W until September 30, 
2022. HVRP-W provides specific funding to grantees that help 
homeless women veterans and homeless veterans with children. 
Finally, this bill would also clarify and expand the definition 
of homeless veterans who are eligible for assistance under HVRP 
and HVRP-W. This change would ensure that all recently homeless 
veterans and participants in other Department of Veterans 
Affairs (VA) and Department of Housing and Urban Development 
(HUD) homeless prevention and grant programs would be eligible 
for HVRP and HVRP-W. These programs would include: the U.S. 
Department of Housing and Urban Development-VA Supportive 
Housing (HUD-VASH); Supportive Services for Veteran Families 
(SSVF); the HUD-VASH program for Native American veterans; 
veterans who are transitioning from incarceration; and other 
recently homeless veterans. This change in eligibility was a 
specific recommendation from the written testimony of Ms. 
Angela Williamson, the Chief Executive Officer of Easter Seals, 
which is also an HVRP grantee, at an oversight hearing the 
Subcommittee on Economic Opportunity and Subcommittee on Health 
held on January 18, 2018.\2\
---------------------------------------------------------------------------
    \2\Testimony of Ms. Angela F. Williams, President and Chief 
Executive Officer, Easterseals Inc. before the Subcommittee on Economic 
Opportunity and Subcommittee on Health of the House Committee on 
Veterans' Affairs, January 18, 2018. https://docs.house.gov/meetings/
VR/VR03/20180118/106743/HHRG-115-VR03-Wstate-WilliamsA-20180118.pdf.
---------------------------------------------------------------------------
    The Committee believes that expanding eligibility for HVRP 
and HVRP-W will provide participants in these programs better 
access to job training programs that can help homeless veterans 
on their path to sustainable employment and positive outcomes. 
This expansion would also occur without impacting current 
authorization levels for this program.

                                Hearings

    On March 20, 2018, the Subcommittee on Economic Opportunity 
held a legislative hearing on several bills pending before the 
Subcommittee including H.R. 4451.
    The following witnesses testified:
          The Honorable Gus Bilirakis, U.S. House of 
        Representatives, 12th District, Florida; The Honorable 
        Brad Wenstrup, U.S. House of Representatives, 2nd 
        District, Ohio; The Honorable Ted Poe, U.S. House of 
        Representatives, 2nd District, Texas; The Honorable 
        Luke Messer, U.S. House of Representatives, 6th 
        District, Indiana; The Honorable Steve Russell, U.S. 
        House of Representatives, 5th District, Oklahoma; MG 
        Robert M. Worley II USAF (Ret.), Director, Education 
        Service, Veterans Benefit Administration, U.S. 
        Department of Veterans Affairs who was accompanied by 
        Mr. Jeffrey London, Director, Loan Guaranty Service, 
        Veterans Benefits Administration, U.S. Department of 
        Veterans Affairs; Mr. John J. Kamin, Assistant 
        Director, Veterans Employment and Education Division, 
        The American Legion; Ms. Ashlynne Haycock, Manager, 
        Education Services, Tragedy Assistance Program for 
        Survivors; and Mr. William Hubbard, Vice President of 
        Government Affairs, Student Veterans of America.
    Statements for the record were submitted by:
          The Honorable Steve Chabot, U.S. House of 
        Representatives, 1st District, Ohio; the U.S. 
        Department of Labor; the National Association of State 
        Approving Agencies; and the National Association of 
        Veterans' Programs Administrators

                       Subcommittee Consideration

    On April 11, 2018, the Subcommittee on Economic Opportunity 
met in open markup session, a quorum being present and 
favorably forwarded H.R. 4451, as amended, to the Full 
Committee. During consideration of the bills, the following 
amendment was considered and agreed to by voice vote:
          An amendment in the nature of a substitute offered by 
        Rep. Wenstrup of Ohio, which expanded the definition of 
        which homeless veterans would be eligible for HVRP and 
        HVRP-W to all recently homeless veterans.

                        Committee Consideration

    On May 8, 2018, the full Committee met in open markup 
session, a quorum being present, and ordered H.R. 4451, as 
amended, be reported favorably to the House of Representatives 
by voice vote.

                            Committee Votes

    In compliance with clause 3(b) of rule XIII of the Rules of 
the House of Representatives, no recorded votes were taken on 
amendments or in connection with ordering H.R. 4451, as 
amended, reported to the House.

                      Committee Oversight Findings

    In compliance with clause 3(c)(1) of rule XIII and clause 
(2)(b)(1) of rule X of the Rules of the House of 
Representatives, the Committee's oversight findings and 
recommendations are reflected in the descriptive portions of 
this report.

         Statement of General Performance Goals and Objectives

    In accordance with clause 3(c)(4) of rule XIII of the Rules 
of the House of Representatives, the Committee's performance 
goals and objectives of H.R. 4451, as amended, are to 
reauthorize and expand eligibility for HVRP and HVRP-W to 
provide job training opportunities to homeless and recently 
homeless or incarcerated veterans.

   New Budget Authority, Entitlement Authority, and Tax Expenditures

    In compliance with clause 3(c)(2) of rule XIII of the Rules 
of the House of Representatives, the Committee adopts as its 
own the estimate of new budget authority, entitlement 
authority, or tax expenditures or revenues contained in the 
cost estimate prepared by the Director of the Congressional 
Budget Office pursuant to section 402 of the Congressional 
Budget Act of 1974.

                  Earmarks and Tax and Tariff Benefits

    H.R. 4451, as amended, does not contain any Congressional 
earmarks, limited tax benefits, or limited tariff benefits as 
defined in clause 9 of rule XXI of the Rules of the House of 
Representatives.

                        Committee Cost Estimate

    The Committee adopts as its own the cost estimate on H.R. 
4451, as amended, prepared by the Director of the Congressional 
Budget Office pursuant to section 402 of the Congressional 
Budget Act of 1974.

               Congressional Budget Office Cost Estimate

    Pursuant to clause 3(c)(3) of rule XIII of the Rules of the 
House of Representatives, the following is the cost estimate 
for H.R. 4451, as amended, as provided by the Director of the 
Congressional Budget Office. Pursuant to section 402 of the 
Congressional Budget Act of 1974:

                                     U.S. Congress,
                               Congressional Budget Office,
                                       Washington, DC, May 9, 2018.
Hon. Phil Roe, M.D.,
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. 4451, the Homeless 
Veterans' Reintegration Programs Reauthorization Act of 2017.
    If you wish further details on this estimate, we will be 
pleased to provide them. The CBO staff contact is Ann E. 
Futrell.
            Sincerely,
                                                Keith Hall,
                                                          Director.
    Enclosure.

H.R. 4451--Homeless Veterans' Reintegration Programs Reauthorization 
        Act of 2017

    Summary: H.R. 4451 would authorize appropriations for two 
grant programs for homeless veterans through 2022. CBO 
estimates that implementing the bill would cost $188 million 
over the 2019-2023 period, assuming appropriation of the 
specified amounts.
    Enacting the bill would not affect direct spending or 
revenues; therefore, pay-as-you-go procedures do not apply.
    CBO estimates that enacting H.R. 4451 would not increase 
net direct spending or on-budget deficits in any of the four 
consecutive 10-year periods beginning in 2029.
    H.R. 4451 contains no intergovernmental or private-sector 
mandates as defined in the Unfunded Mandates Reform Act (UMRA).
    Estimated cost to the Federal Government: The estimated 
budgetary effect of H.R. 4451 is shown in the following table. 
The costs of the legislation fall within budget function 700 
(veterans benefits and services).

----------------------------------------------------------------------------------------------------------------
                                                             By fiscal year, in millions of dollars--
                                                ----------------------------------------------------------------
                                                   2018     2019     2020     2021     2022     2023   2019-2023
----------------------------------------------------------------------------------------------------------------
                                 INCREASES IN SPENDING SUBJECT TO APPROPRIATION
 
Authorization Level............................        0       51       51       51       51        0       204
Estimated Outlays..............................        0        4       35       50       51       48       188
----------------------------------------------------------------------------------------------------------------

    Basis of estimate: For this estimate, CBO assumes that H.R. 
4451 will be enacted near the beginning of fiscal year 2019 and 
that the specified amounts will be appropriated each year. 
Estimated outlays are based on historical spending patterns for 
the affected programs.
    The bill would authorize appropriations of $50 million each 
year over the 2019-2022 period for the homeless veterans 
reintegration program (HVRP). The bill also would authorize 
appropriations of $1 million a year over that same period for 
the reintegration grant program for homeless women veterans and 
homeless veterans with children. HVRP provides grants to 
agencies and organizations that provide job placement, 
training, and vocational counseling to homeless veterans. In 
addition to those services offered under HVRP, the 
reintegration program for homeless women veterans and homeless 
veterans with children also provides child care services. In 
2018, approximately $50 million was appropriated for those 
reintegration programs. Assuming appropriation of the 
authorized amounts, CBO estimates that implementing this bill 
would cost $188 million over the 2019-2023 period.
    Pay-As-You-Go considerations: None.
    Increase in long-term direct spending and deficits: CBO 
estimates that enacting H.R. 4451 would not increase net direct 
spending or on-budget deficits in any of the four consecutive 
10-year periods beginning in 2029.
    Mandates: H.R. 4451 contains no intergovernmental or 
private-sector mandates as defined in UMRA.
    Estimate prepared by: Federal Costs: Ann E. Futrell; 
Mandates: Andrew Laughlin.
    Estimate reviewed by: Sarah Jennings, Chief, Defense and 
International Affairs Cost Estimates Unit; Leo Lex, Deputy 
Assistant Director for Budget Analysis.
    The Committee has requested but not received from the 
Director of the Congressional Budget Office a statement as to 
whether this bill contains any new budget authority, spending 
authority, credit authority, or an increase or decrease in 
revenues or tax expenditures.

                       Federal Mandates Statement

    The Committee adopts as its own the estimate of Federal 
mandates regarding H.R. 4451, as amended, prepared by the 
Director of the Congressional Budget Office. Pursuant to 
section 423 of the Unfunded Mandated Reform Act:
    With respect to the requirements of Section 423 of the 
Congressional Budget and Impoundment Control Act (as amended by 
Section 101(a)(2) of the Unfunded Mandate Reform Act, P.L. 104-
4), the Committee has requested but not received from the 
Director of the Congressional Budget Office a statement as to 
whether the provisions of the reported bill include unfunded 
mandates.

                      Advisory Committee Statement

    No advisory committees within the meaning of section 5(b) 
of the Federal Advisory Committee Act would be created by H.R. 
4451, as amended.

                   Constitutional Authority Statement

    Pursuant to Article I, section 8 of the United States 
Constitution, H.R. 4451, as amended, is authorized by Congress' 
power to ``provide for the common Defense and general Welfare 
of the United States.''

                  Applicability to Legislative Branch

    The Committee finds that H.R. 4451, as amended, does not 
relate to the terms and conditions of employment or access to 
public services or accommodations within the meaning of section 
102(b)(3) of the Congressional Accountability Act.

              Statement on Duplication of Federal Programs

    Pursuant to clause 3(c)(5) of rule XIII of the Rules of the 
House of Representatives, the Committee finds that no provision 
of H.R. 4451, as amended, establishes or reauthorizes a program 
of the Federal Government known to be duplicative of another 
Federal program, a program that was included in any report from 
the Government Accountability Office to Congress pursuant to 
section 21 of Public Law 111-139, or a program related to a 
program identified in the most recent Catalog of Federal 
Domestic Assistance.

                   Disclosure of Directed Rulemaking

    Pursuant to section 3(i) of H. Res. 5, 115th Cong. (2017), 
H.R. 4451, as amended, would not require the Secretary to 
publish new regulations for carrying out this bill.

             Section-by-Section Analysis of the Legislation


Sec. 1. Short title

    This section that the short title of the bill is, 
``Homeless Veterans' Reintegration Programs Reauthorization Act 
of 2017.''

Sec. 2. Reauthorization of Department of Labor Homeless Veterans 
        Reintegration Programs

    Section 2(a) would amend section 2021(e)(F) of title 38, 
U.S.C., to reauthorize HVRP through fiscal year 2022.
    Section 2(b) would amend section 2021A(f)(1) of title 38, 
U.S.C., to reauthorize HVRP-W through fiscal year 2022.
    Section 2(c) would amend section 2021(a) of title 38, 
U.S.C. to clarify that any homeless veteran including those 
participating in the HUD-VASH program, the HUD-VASH program for 
Native Americans, the SSVF program, veterans who are 
transitioning from being incarcerated, and recently homeless 
veterans are eligible for HVRP.

         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 italic, existing law in which no change is 
proposed is shown in roman):

         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 italic, and existing law in which no 
change is proposed is shown in roman):

                      TITLE 38, UNITED STATES CODE



           *       *       *       *       *       *       *
PART II--GENERAL BENEFITS

           *       *       *       *       *       *       *


CHAPTER 20--BENEFITS FOR HOMELESS VETERANS

           *       *       *       *       *       *       *


                 SUBCHAPTER III--TRAINING AND OUTREACH

Sec. 2021. Homeless veterans reintegration programs

  (a) In General.--Subject to the availability of 
appropriations provided for such purpose, the Secretary of 
Labor shall conduct, directly or through grant or contract, 
such programs as the Secretary determines appropriate to 
provide job training, counseling, and placement services 
(including job readiness and literacy and skills training) to 
expedite the [reintegration of homeless veterans into the labor 
force.] reintegration into the labor force of--
          (1) homeless veterans (including veterans who were 
        homeless but found housing during the 60-day period 
        preceding the date on which the veteran begins to 
        participate in a program under this section); 
          (2) veterans participating in the Department of 
        Veterans Affairs supported housing program for which 
        rental assistance is provided pursuant to section 
        8(o)(19) of the United States Housing Act of 1937 (42 
        U.S.C. 1437f(o)(19)) or the Tribal HUD-VA Supportive 
        Housing (Tribal HUD-VASH) program; 
          (3) Indians who are veterans and receiving assistance 
        under the Native American Housing Assistance and Self 
        Determination Act of 1996 (25 U.S.C. 4101 et seq.); 
          (4) veterans described in section 2023(e) of this 
        title or any other veterans who are transitioning from 
        being incarcerated; and 
          (5) veterans participating in the Department of 
        Veterans Affairs rapid rehousing and prevention program 
        authorized in section 2044 of this title. 
  (b) Requirement To Monitor Expenditures of Funds.--(1) The 
Secretary of Labor shall collect such information as that 
Secretary considers appropriate to monitor and evaluate the 
distribution and expenditure of funds appropriated to carry out 
this section. The information shall include data with respect 
to the results or outcomes of the services provided to each 
homeless veteran under this section.
  (2) Information under paragraph (1) shall be furnished in 
such form and manner as the Secretary of Labor may specify.
  (c) Administration Through the Assistant Secretary of Labor 
for Veterans' Employment and Training.--The Secretary of Labor 
shall carry out this section through the Assistant Secretary of 
Labor for Veterans' Employment and Training.
  (d) Biennial Report to Congress.--Not less than every two 
years, the Secretary of Labor shall submit to Congress a report 
on the programs conducted under this section. The Secretary of 
Labor shall include in the report an evaluation of services 
furnished to veterans under this section and an analysis of the 
information collected under subsection (b).
  (e) Authorization of Appropriations.--(1) There are 
authorized to be appropriated to carry out this section amounts 
as follows:
          (A) $50,000,000 for fiscal year 2002.
          (B) $50,000,000 for fiscal year 2003.
          (C) $50,000,000 for fiscal year 2004.
          (D) $50,000,000 for fiscal year 2005.
          (E) $50,000,000 for fiscal year 2006.
          (F) $50,000,000 for each of fiscal years 2007 through 
        [2018] 2022.
  (2) Funds appropriated to carry out this section shall remain 
available until expended. Funds obligated in any fiscal year to 
carry out this section may be expended in that fiscal year and 
the succeeding fiscal year.

Sec. 2021A. Homeless women veterans and homeless veterans with children 
                    reintegration grant program

  (a) Grants.--Subject to the availability of appropriations 
provided for such purpose, the Secretary of Labor shall make 
grants to programs and facilities that the Secretary determines 
provide dedicated services for homeless women veterans and 
homeless veterans with children.
  (b) Use of Funds.--Grants under this section shall be used to 
provide job training, counseling, placement services (including 
job readiness and literacy and skills training) and child care 
services to expedite the reintegration of homeless women 
veterans and homeless veterans with children into the labor 
force.
  (c) Requirement To Monitor Expenditures of Funds.--(1) The 
Secretary of Labor shall collect such information as that 
Secretary considers appropriate to monitor and evaluate the 
distribution and expenditure of funds appropriated to carry out 
this section. The information shall include data with respect 
to the results or outcomes of the services provided to each 
homeless veteran under this section.
  (2) Information under paragraph (1) shall be furnished in 
such form and manner as the Secretary of Labor may specify.
  (d) Administration Through the Assistant Secretary of Labor 
for Veterans' Employment and Training.--The Secretary of Labor 
shall carry out this section through the Assistant Secretary of 
Labor for Veterans' Employment and Training.
  (e) Biennial Report to Congress.--The Secretary of Labor 
shall include as part of the report required under section 
2021(d) of this title an evaluation of the grant program under 
this section, which shall include an evaluation of services 
furnished to veterans under this section and an analysis of the 
information collected under subsection (c).
  (f) Authorization of Appropriations.--(1) In addition to any 
amount authorized to be appropriated to carry out section 2021 
of this title, there is authorized to be appropriated to carry 
out this section $1,000,000 for each of fiscal years 2011 
through [2018] 2022.
  (2) Funds appropriated to carry out this section shall remain 
available until expended. Funds obligated in any fiscal year to 
carry out this section may be expended in that fiscal year and 
the succeeding fiscal year.

           *       *       *       *       *       *       *


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