[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\
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\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.
* * * * * * *
[all]