House Report 119-310 - SERVICE DOGS ASSISTING VETERANS ACT

[House Report 119-310]
[From the U.S. Government Publishing Office]

119th Congress } { Report
HOUSE OF REPRESENTATIVES
1st Session } { 119-310

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

SERVICE DOGS ASSISTING VETERANS ACT

_______

September 26, 2025.--Committed to the Committee of the Whole House on
the State of the Union and ordered to be printed

_______

Mr. Bost, from the Committee on Veterans' Affairs, submitted the
following

R E P O R T

[To accompany H.R. 2605]

[Including cost estimate of the Congressional Budget Office]

The Committee on Veterans' Affairs, to whom was referred
the bill (H.R. 2605) to require the Secretary of Veterans
Affairs to award grants to nonprofit organizations to assist
such organizations in carrying out programs to provide service
dogs to eligible veterans, and for other purposes, having
considered the same, reports favorably thereon with an
amendment and recommends that the bill as amended do pass.

CONTENTS

Page
Amendment........................................................ 2
Purpose and Summary.............................................. 3
Background and Need for Legislation.............................. 4
Hearings......................................................... 5
Subcommittee Consideration....................................... 6
Committee Consideration.......................................... 6
Committee Votes.................................................. 6
Committee Oversight Findings..................................... 6
Statement of General Performance Goals and Objectives............ 6
Earmarks and Tax and Tariff Benefits............................. 7
Committee Cost Estimate.......................................... 7
Budget Authority and Congressional Budget Office Estimate........ 7
Federal Mandates Statement....................................... 10
Advisory Committee Statement..................................... 10
Applicability to Legislative Branch.............................. 10
Statement on Duplication of Federal Programs..................... 10
Section-by-Section Analysis of the Legislation................... 10
Changes in Existing Law Made By the Bill as Reported............. 11

The amendment is as follows:
Strike out all after the enacting clause and insert the
following:

SECTION 1. SHORT TITLE.

This Act may be cited as the ``Service Dogs Assisting Veterans Act''
or the ``SAVES Act''.

SEC. 2. DEPARTMENT OF VETERANS AFFAIRS PILOT PROGRAM TO AWARD GRANTS
FOR THE PROVISION OF SERVICE DOGS TO VETERANS.

(a) In General.--Not later than 24 months after the date of the
enactment of this Act, the Secretary of Veterans Affairs shall
establish a pilot program under which the Secretary shall award grants,
on a competitive basis, to nonprofit entities to provide service dogs
to eligible veterans.
(b) Applications.--
(1) In general.--To be eligible to receive a grant under this
section, a nonprofit entity shall submit an application to the
Secretary at such time, in such manner, and containing such
commitments and information as the Secretary may require.
(2) Elements.--An application submitted under paragraph (1)
shall include the following:
(A) A proposal for the provision of service dogs to
eligible veterans, including how the nonprofit entity
will communicate with the Secretary to ensure that the
use of the grant funds results in an increased number
of eligible veterans who are provided with service
dogs.
(B) A description of the following services or
commitments to be provided by the nonprofit entity:
(i) The training that will be provided to
eligible veterans who receive service dogs
under the pilot program.
(ii) The training of dogs that will serve as
service dogs provided to eligible veterans
under the program.
(iii) Any support or services other than
training under clauses (i) and (ii) that will
be provided for such dogs and eligible
veterans.
(iv) The plan for publicizing the
availability of such service dogs through a
marketing campaign that targets eligible
veterans.
(v) The commitment to humane treatment
standards for service dogs.
(C) Documentation that demonstrates that the
nonprofit entity has experience in training dogs as
service dogs.
(D) The demonstrated experience of the nonprofit
entity in training service dogs in compliance with the
requirements of the Americans with Disabilities Act of
1990 (42 U.S.C. 12101 et seq.).
(c) Agreement Required.--If the Secretary approves an application
submitted by a nonprofit entity under subsection (b)(1), the Secretary
shall require the entity, as a condition of the receipt of a grant
under the pilot program to enter into an agreement under which the
entity agrees to--
(1) notify each veteran who receives a service dog provided
using grant funds that the service dog is being paid for, in
whole or in part, by the Department of Veterans Affairs;
(2) inform each such veteran of the benefits and services
available from the Secretary for the veteran and the service
dog;
(3) not charge a fee to a veteran receiving a service dog
provided using grant funds; and
(4) adhere to such other terms, conditions, and limitations
as the Secretary determines appropriate.
(d) Amount of Grants.--The Secretary shall make a grant in an amount
that does not exceed $2,000,000 to each entity that enters into an
agreement with the Secretary under subsection (c). The Secretary shall
establish intervals of payment for the administration of each such
grant.
(e) Use of Funds.--
(1) In general.--A recipient of a grant under this section
shall use the grant to plan, develop, implement, and manage one
or more programs that provide service dogs to eligible
veterans.
(2) Limitations.--The Secretary may establish--
(A) a maximum amount that can be used by a grant
recipient to cover administrative expenses for each
grant awarded under this section; and
(B) other conditions or limitations on the use of
grant amounts under this section.
(f) Veterinary Insurance.--
(1) In general.--Except as provided in paragraph (3), the
Secretary may provide to each veteran who receives a service
dog through a grant under this section a commercially available
veterinary insurance policy for the service dog.
(2) Continuation.--If the Secretary provides a veterinary
insurance policy to a veteran under paragraph (1), the
Secretary shall continue to provide the policy to the veteran
without regard to the continuation or termination of the pilot
program, except as provided in paragraph (3).
(3) Discontinuation.--The Secretary shall discontinue the
provision of a veterinary insurance policy under paragraph (1)
if the Secretary determines doing so would be in the best
interest of the veteran, the service dog, or the Federal
Government.
(g) Training and Technical Assistance.--The Secretary may provide
training and technical assistance related to grant application and
administration to applicants for and recipients of grants under this
section.
(h) Oversight and Monitoring.--
(1) In general.--The Secretary--
(A) shall establish such oversight and monitoring
requirements as the Secretary determines appropriate to
ensure that grant amounts awarded under this section
are used appropriately; and
(B) may take such actions as the Secretary determines
necessary to address any issues identified through the
enforcement of such requirements.
(2) Reports and answers.--The Secretary may require each
recipient of a grant under this section to provide, in such
form as may be prescribed by the Secretary, such reports or
answers in writing to specific questions, surveys, or
questionnaires as the Secretary determines necessary to carry
out the pilot program.
(i) Definitions.--In this section:
(1) The term ``eligible veteran'' means a veteran who--
(A) is enrolled in the system of annual patient
enrollment of the Department of Veterans Affairs
established and operated under section 1705(a) of title
38, United States Code, or is otherwise entitled to
receive such care and services under subsection (c)(2)
of such section;
(B) has been prescribed a service dog by the
Secretary; and
(C) has one or more covered conditions.
(2) The term ``covered condition'' means any of the following
disabilities, conditions, or diagnoses for which the Secretary
determines, based upon medical judgment, that it is optimal for
the veteran to manage the disability, condition, or diagnosis
and live independently through the assistance of a trained
service dog:
(A) Blindness or visual impairment.
(B) Loss of use of a limb, paralysis, or other
significant mobility issue, including mental health
mobility.
(C) Loss of hearing.
(D) Post-traumatic stress disorder.
(E) Traumatic brain injury.
(F) Any other disability, condition, or diagnosis for
which the Secretary determines, based on medical
judgment, that it is optimal for the veteran to manage
the disability, condition, or diagnosis, and live
independently through the assistance of a service dog.
(3) The term ``service dog'' means a dog that is individually
trained to do work or perform tasks for the benefit of an
individual with a disability, including a physical, sensory,
psychiatric, intellectual, or other mental disability.
(j) Authorization of Appropriations.--There is authorized to be
appropriated to carry out this section $10,000,000 for each of fiscal
years 2027 through 2031.
(k) Termination.--The authority to carry out a pilot program under
this section shall terminate on September 30, 2031.

SEC. 3. EXTENSION OF CERTAIN LIMITS ON PAYMENTS OF PENSION.

Section 5503(d)(7) of title 38, United States Code, is amended by
striking ``November 30, 2031'' and inserting ``February 28, 2033''.

Purpose and Summary

H.R. 2605, the ``Service Dogs Assisting Veterans Act,'' or
the ``SAVES Act,'' was introduced by Representative Morgan
Luttrell of Texas on April 02, 2025. H.R. 2605, as amended,
would create a pilot to award grants to nonprofit entities to
provide service dogs to eligible veterans.

Background and Need for Legislation

Section 1: Short title

This act would be cited as the ``Service Dogs Assisting
Veterans Act'' or the ``SAVES Act.''

Section 2: Department of Veterans Affairs pilot program to award grants
for the provision of service dogs to veterans

The Department of Veterans Affairs (VA) currently provides
benefits for guide dogs or service dogs for eligible veterans
who have been diagnosed with a visual, hearing, or substantial
mobility impairment when VA determines, based upon medical
judgment, that the veteran could live independently through the
assistance of a trained guide or service dog.\1\ These benefits
include a commercially available veterinary insurance policy;
hardware, or repairs or replacements for hardware, to perform
the tasks necessary for a dog to assist the veteran; and
reimbursement for travel expenses to obtain a dog.\2\ However,
while the statute permits VA to provide guide or service dogs,
VA currently does not do so. Veterans must obtain these dogs
through other means.\3\
---------------------------------------------------------------------------
\1\38 C.F.R. Section 17.148.
\2\38 C.F.R. Section 17.148.
\3\Sometimes, nonprofits cover the expense of purchasing a trained
service dog.
---------------------------------------------------------------------------
Under this section, VA would be required to create a 5-year
pilot program for grants to nonprofits to provide service dogs
to eligible veterans. Grant recipients who are approved would
receive up to $2 million in funding. A veteran would be
eligible for a service dog provided through the pilot program
if the veteran is enrolled in VA hospital care and medical
services or is otherwise entitled to receive such care and
services under the statute. Conditions covered would include
blindness or visual impairment, a significant mobility issue,
loss of hearing, post-traumatic stress disorder (PTSD),
traumatic brain injury (TBI), and any other condition the VA
Secretary determines to be eligible.
The section continues the legacy of the Puppies Assisting
Wounded Servicemembers (PAWS) for Veterans Therapy Act [P.L.
117-37]. The PAWS for Veterans Therapy Act removed a previous
requirement that veterans with a mental illness, including
PTSD, also have mobility impairment before being referred for a
service dog to manage mental illness. It also extended VA's
veterinary insurance benefit to include service dogs provided
for mental illness.\4\
---------------------------------------------------------------------------
\4\The PAWS for Veterans Therapy Act also included a pilot to
increase the availability of an adjunctive treatment for PTSD.
---------------------------------------------------------------------------
The Committee notes VA's concern related to including PTSD
and TBI as covered conditions based on a study showing that
emotional support dogs and service dogs were similarly
effective in mitigating PTSD symptoms of veterans. The
Committee believes the nature of a pilot program is to
determine the operational feasibility and potential
effectiveness of a program to solve the problem at issue. The
Committee encourages VA to use the pilot program to build on
the body of evidence for effective PTSD treatments. VA opposed
including TBI as a qualifying condition on the ground that
service dogs are already recognized as aiding veterans'
mobility issues. The Committee believes that the pilot program
is an important opportunity to better understand whether and
how service dogs can be used to mitigate the detrimental impact
that TBI has on a veteran's functioning and quality of life.
The Committee has heard from veterans who have better
functioning and quality of life because of their service dogs.
Unfortunately, there may be delays from the time VA prescribes
a service dog to the time a veteran is fully paired with a
service dog that has graduated training. The Committee believes
this pilot is an opportunity to help reduce delays by
increasing the number of dogs available for veterans.

Section 3: Extension of certain limits on payments of pension

Under current law (38 U.S.C. Sec. 5503(d)), the amount of
VA pension paid to a veteran with no spouse or child, a
veteran's surviving spouse with no child, and a veteran's'
child who is admitted to a VA or Medicaid sponsored nursing
facility is capped at $90 a month. This section would cover the
costs of the other sections of this bill by extending this
pension limitation by fifteen months to February 28, 2033.
Because they receive government sponsored care in a nursing
home, these pension beneficiaries do not require the full
amount of pension to cover their cost of living. The Committee
believes this short-term extension of the current limit on
pension payments is a reasonable way to cover the costs
associated with the other sections of this bill.

Hearings

On June 12, 2025, the Subcommittee on Health held a
legislative hearing on H.R. 2605 and other bills pending before
the subcommittee. The following witnesses testified:
The Honorable Gregory F. Murphy, U.S. House of
Representatives, 3rd Congressional District, North Carolina;
The Honorable Morgan Luttrell, U.S. House of Representatives,
8th Congressional District, Texas; The Honorable Jennifer A.
Kiggans, U.S. House of Representatives, 2nd Congressional
District, Virginia; The Honorable Abraham J. Hamadeh, U.S.
House of Representatives, 8th Congressional District, Arizona;
The Honorable Kimberlyn King-Hinds, U.S. House of
Representatives, District At Large, Northern Mariana Islands;
The Honorable John J. McGuire, U.S. House of Representatives,
5th Congressional District, Virginia; The Honorable Joseph D.
Morelle, U.S. House of Representatives, 25th Congressional
District, New York; The Honorable Nikki Budzinski, U.S. House
of Representatives, 13th Congressional District, Illinois; Dr.
Antoinette V. Shappell, Deputy Assistant Under Secretary for
Health for Patient Care Services, Veterans Health
Administration, U.S. Department of Veterans Affairs; Dr. Ilse
Wiechers, Deputy Executive Director, Office of Mental Health,
Veterans Health Administration, U.S. Department of Veterans
Affairs; Randy Johnson, Constituent, District At Large,
Northern Mariana Islands; Cole T. Lyle, Director, Veterans
Affairs & Rehabilitation Division, The American Legion; David
Coker, President, Fisher House Foundation; John Schmitt, Chief
Executive Officer, iXpressGenes, Inc.; Caira Benson, Caregiver
Fellow, Elizabeth Dole Foundation.
The following individuals and organizations submitted
statements for the record:
K9s for Warriors, Quality of Life Foundation, National
Association of State Veterans Homes, Military Officers
Association of America, National Association of Veterans'
Research and Education Foundations, iXpressGenes, Inc.,
Paralyzed Veterans of America, The Honorable Joseph D. Morelle,
Concerned Veterans for America, USAA, Student Veterans of
America, American Academy of Physician Associates, Veterans of
Foreign Wars of the United States.

Subcommittee Consideration

On July 23, 2025, the Subcommittee on Health was discharged
from further consideration of H.R. 2605.

Committee Consideration

On July 23, 2025, the full Committee met in open markup
session, a quorum being present, to consider H.R. 2605. During
consideration of the bill, the following amendments were
considered:
An amendment in the nature of a substitute offered by
Representative Morgan Luttrell of Texas would make several
technical and conforming changes to section two of the
underlying bill that would make the pilot available only to
credible nonprofits; give the Secretary the authority to
minimize the expense of the program as necessary; make clear
that a prescription for a service dog is based on a VA
provider's best medical judgment; and offset the anticipated
$60 million cost of section two of the SAVES Act using the
pension program under 38 U.S.C. Sec. 5503. The amendment in the
nature of a substitute, as amended, was agreed to by voice
vote.
An amendment to the amendment in the nature of a substitute
offered by Chairman Mike Bost of Illinois would require that a
grant applicant have demonstrated experience training service
dogs in compliance with the requirements of the Americans with
Disabilities Act of 1990 (42 U.S.C. 12101 et seq). The
amendment to the amendment in the nature of a substitute was
agreed to by voice vote.
A motion by Ranking Member Mark Takano of California to
report H.R. 2605, as amended, favorably to the House of
Representatives was agreed to 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. 2605, 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. 2605, as amended, are to create a
pilot program to provide service dogs for veterans to improve
their mental health and independence.

Earmarks and Tax and Tariff Benefits

H.R. 2605, 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.
2605, as amended, prepared by the Director of the Congressional
Budget.

Budget Authority and 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. 2605, as amended, provided by the
Congressional Budget Office pursuant to section 402 of the
Congressional Budget Act of 1974:

The bill would:
Require the Department of Veterans Affairs
(VA) to establish a pilot program to award grants to
nonprofit entities for the provision of service dogs to
veterans
Direct VA to provide veterinary insurance
for such service dogs
Extend the reduction of pensions that VA
pays to veterans and survivors residing in Medicaid
nursing homes
Estmated budgetary effects would mainly stem from:
Providing grants to nonprofit organizations
Funding veterinary insurance for service
dogs
Reducing pension payments
Bill summary: H.R. 2605 would require the Department of
Veterans Affairs (VA) to establish a pilot program to award
grants to nonprofit entities to provide service dogs to
eligible veterans over the 2027-2031 period. The bill also
would require VA to provide veterinary insurance for those
dogs. Finally, the bill would extend a temporary limitation on
certain pension payments through February 2033.
Estimated Federal cost: The estimated budgetary effects of
H.R. 2605 are shown in Table 1. The costs of the legislation
fall within budget functions 550 (health) and 700 (veterans
benefits and services).

TABLE 1.--ESTIMATED BUDGETARY EFFECTS OF H.R. 2605
--------------------------------------------------------------------------------------------------------------------------------------------------------
By fiscal year, millions of dollars--
----------------------------------------------------------------------------------------------
2025- 2025-
2025 2026 2027 2028 2029 2030 2031 2032 2033 2034 2035 2030 2035
--------------------------------------------------------------------------------------------------------------------------------------------------------
INCREASES OR DECREASES (-) IN DIRECT SPENDING

Estimated Budget Authority............................... 0 * 2 2 2 3 3 -40 -20 * * 9 -48
Estimated Outlays........................................ 0 * 2 2 2 3 3 -40 -20 * * 9 -48

INCREASES IN SPENDING SUBJECT TO APPROPRIATION

Estimated Authorization.................................. 0 * 8 8 8 7 7 1 1 1 1 31 42
Estimated Outlays........................................ 0 * 8 8 8 7 7 1 1 1 1 31 42
--------------------------------------------------------------------------------------------------------------------------------------------------------
* = between zero and $500,000.

Basis of estimate: For this estimate, CBO assumes that H.R.
2605 will be enacted near the beginning of fiscal year 2026 and
that outlays will follow historical spending patterns for
affected programs.
Provisions that affect spending subject to appropriation
and direct spending: Section 2 of H.R. 2605 would require VA to
establish a five-year pilot program to provide grants to
nonprofit entities for the provision of service dogs to
eligible veterans beginning in 2027. The program also would
require VA to provide veterinary insurance for dogs acquired
under the program, including during the period after the pilot
program expires.
The bill authorizes the appropriation of $10 million
annually over the 2027-2031 period. CBO expects that the
authorized amounts would cover the costs of awarding grants to
nonprofit entities and providing veterinary insurance for dogs
acquired through the program. Based on information from VA and
similar programs, CBO estimates that approximately 1,000
veterans would receive dogs under the program. Under the bill,
VA would be required to continue providing veterinary insurance
for those dogs after the pilot ends. CBO estimates that the
cost of providing insurance coverage over the 2032-2035 period
would total $4 million, assuming an average annual cost of
$1,100 per dog. In total, CBO estimates that implementing
section 2 would cost $54 million over the 2025-2035 period.
CBO expects that some of the costs of implementing the bill
would be paid from the Toxic Exposures Fund (TEF) established
by Public Law 117-168, the Honoring our PACT Act. The TEF is a
mandatory appropriation that VA uses to pay for health care,
disability claims processing, medical research, and IT
modernization that benefit veterans who were exposed to
environmental hazards.
Additional spending from the TEF would occur if legislation
increases the costs of similar activities that benefit veterans
with such exposure. Thus, in addition to increasing spending
subject to appropriation, enacting section 2 would increase
amounts paid from the TEF, which are classified as direct
spending. CBO projects that the proportion of costs paid by the
TEF will grow over time based on the amount of formerly
discretionary appropriations that CBO expects will be provided
through the mandatory appropriation as specified in the
Honoring our PACT Act.\1\
---------------------------------------------------------------------------
\1\For additional information about estimated spending from the
TEF, see Congressional Budget Office, ``Toxic Exposures Fund--January
2025 Baseline'' (January 2025), https://tinyurl.com/465ytckb.
---------------------------------------------------------------------------
CBO estimates that over the 2025-2035 period, implementing
section 2 would increase spending subject to appropriation by
$42 million and direct spending by $12 million.
Direct spending: In addition to expanding benefits that
would partly be covered by the TEF, enacting H.R. 2605 would
affect direct spending by extending a statutory limitation on
VA pension payments. In total, enacting the bill would decrease
net direct spending by $48 million over the 2025-2035 period
(see Table 2).
Under current law, VA reduces pension payments to veterans
and survivors who reside in Medicaid nursing homes to $90 per
month. That required reduction expires November 30, 2031.
Section 3 of H.R. 2605 would extend that reduction for 15
months, through February 28, 2033. CBO estimates that extending
that requirement would reduce VA benefits by $10 million per
month. As a result of that reduction in beneficiaries' income,
Medicaid would pay more of the cost of their care, increasing
spending for that program by $6 million per month. Thus,
enacting section 3 would reduce net direct spending by $60
million over the 2025-2035 period.

TABLE 2.--ESTIMATED CHANGES IN DIRECT SPENDING UNDER H.R. 2605
--------------------------------------------------------------------------------------------------------------------------------------------------------
By fiscal year, millions of dollars--
----------------------------------------------------------------------------------------------------
2025 2026 2027 2028 2029 2030 2031 2032 2033 2034 2035 2025-2030 2025-2035
--------------------------------------------------------------------------------------------------------------------------------------------------------
Service Dogs:
Estimated Budget Authority..................... 0 * 2 2 2 3 3 * * * * 9 12
Estimated Outlays.............................. 0 * 2 2 2 3 3 * * * * 9 12
Pensions and Medicaid:
Estimated Budget Authority..................... 0 0 0 0 0 0 0 -40 -20 0 0 0 -60
Estimated Outlays.............................. 0 0 0 0 0 0 0 -40 -20 0 0 0 -60
Total Changes:
Estimated Budget Authority..................... 0 * 2 2 2 3 3 -40 -20 * * 9 -48
Estimated Outlays.............................. 0 * 2 2 2 3 3 -40 -20 * * 9 -48
--------------------------------------------------------------------------------------------------------------------------------------------------------
* = between zero and $500,000.

Spending subject to appropriation: The discussion above in
``Provisions that Affect Spending Subject to Appropriation and
Direct Spending'' describes the costs of implementing a program
to provide service dogs to eligible veterans and covering the
cost of veterinary insurance for those dogs. Establishing that
program would increase spending subject to appropriation by $42
million over the 2025-2035 period, CBO estimates.
Pay-As-You-Go considerations: The Statutory Pay-As-You-Go
Act of 2010 establishes budget-reporting and enforcement
procedures for legislation affecting direct spending or
revenues. The net changes in outlays that are subject to those
pay-as-you-go procedures are shown in Table 1.
Increase in long-term net direct spending and deficits: CBO
estimates that enacting H.R. 2605 would not increase net direct
spending by more than $2.5 billion in any of the four
consecutive 10-year periods beginning in 2036.
CBO estimates that enacting H.R. 2605 would not increase
on-budget deficits by more than $5 billion in any of the four
consecutive 10-year periods beginning in 2036.
Mandates: The bill contains no intergovernmental or
private-sector mandates as defined in the Unfunded Mandates
Reform Act.
Estimate prepared by: Federal Costs: Noah Callahan (for
veterans' health care); Logan Smith (for pensions and
Medicaid); Mandates: Lucy Marret.
Estimate reviewed by: David Newman, Chief, Defense,
International Affairs, and Veterans' Affairs Cost Estimates
Unit; Kathleen FitzGerald, Chief, Public and Private Mandates
Unit; Christina Hawley Anthony; Deputy Director of Budget
Analysis.
Estimate approved by: Phillip L. Swagel, Director,
Congressional Budget Office.

Federal Mandates Statement

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 is inapplicable to H.R.2605, as
amended.

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.
2605, as amended.

Applicability to Legislative Branch

The Committee finds that H.R. 2605, 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. 2605, 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.

Section-by-Section Analysis of the Legislation

Section 1: Short title

This section would establish the short title as the
``Service Dogs Assisting Veterans Act'' or the ``SAVES Act.''

Section 2: Department of Veterans Affairs pilot program to award grants
for the provision of service dogs to veterans

This section would require the VA Secretary to create a
pilot program to award grants, on a competitive basis, to
nonprofits to provide service dogs to eligible veterans.
Applicants under this section would be required to submit a
proposal for use of the grant funds to increase the number of
eligible veterans who are provided with service dogs. The
applicant would have to commit to training service dogs and
providing training for veterans prescribed service dogs. The
application would specify plans for publicizing the
availability of service dogs through a marketing campaign that
targets eligible veterans. The applicant would also have to
commit to humane treatment standards for service dogs and
demonstrate its experience training service dogs in compliance
with the Americans with Disabilities Act of 1990 [P.L. 101-
336].
Under this section, a grant recipient would be required to
notify each veteran who receives a service dog that VA funds
were used to pay for the service dog. The recipient would also
have to inform the veteran of the benefits and services
available for the veteran and the service dog. The grant
recipient would not be allowed to charge a fee to a veteran
receiving a service dog under this bill.
A grant under this bill would not exceed $2 million to any
one entity. A grant recipient would have to use the grant to
plan, develop, implement, and manage one or more programs that
provide service dogs to eligible veterans. The Secretary would
have the authority to cap the amount of grant funding a
recipient could use for administrative expenses and establish
any other conditions or limitations on use of the grant funds.
Under this section, the Secretary would have the authority
to provide a commercially available insurance policy for the
service dog, though such insurance policy would not be
required. If the Secretary did provide such policy, the
Secretary would have to continue to provide the policy to the
veteran regardless of pilot continuation or termination.
However, the Secretary would have the authority to discontinue
such policy if the Secretary determines doing so would be in
the best interest of the veteran, the service dog, or the
federal government.
This section would allow VA to provide training and
technical assistance for grant application and administration.
It would also require VA to establish oversight and monitoring
requirements to enforce the appropriate use of grant funds.
Finally, this section would provide definitions for the
relevant terms in the bill and authorize $10 million in
appropriations for each of fiscal years 2027 through 2031. The
authority to carry out the pilot program would terminate on
September 30, 2031.

Section 3: Extension of certain limits on payments of pension

Section 3 would extend the termination date of limitations
on VA pension payments under 38 U.S.C. 5503(d)(1) from November
30, 2021, to February 28, 2033.

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):

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

TITLE 38, UNITED STATES CODE

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PART IV--GENERAL ADMINISTRATIVE PROVISIONS

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CHAPTER 55--MINORS, INCOMPETENTS, AND OTHER WARDS

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Sec. 5503. Hospitalized veterans and estates of incompetent
institutionalized veterans

(a)(1)(A) Where any veteran having neither spouse nor child
is being furnished domiciliary care by the Department, no
pension in excess of $90 per month shall be paid to or for the
veteran for any period after the end of the third full calendar
month following the month of admission for such care.
(B) Except as provided in subparagraph (D) of this paragraph,
where any veteran having neither spouse nor child is being
furnished nursing home care by the Department, no pension in
excess of $90 per month shall be paid to or for the veteran for
any period after the end of the third full calendar month
following the month of admission for such care. Any amount in
excess of $90 per month to which the veteran would be entitled
but for the application of the preceding sentence shall be
deposited in a revolving fund at the Department medical
facility which furnished the veteran nursing care, and such
amount shall be available for obligation without fiscal year
limitation to help defray operating expenses of that facility.
(C) No pension in excess of $90 per month shall be paid to or
for a veteran having neither spouse nor child for any period
after the month in which such veteran is readmitted for care
described in subparagraph (A) or (B) of this paragraph and
furnished by the Department if such veteran is readmitted
within six months of a period of care in connection with which
pension was reduced pursuant to subparagraph (A) or (B) of this
paragraph.
(D) In the case of a veteran being furnished nursing home
care by the Department and with respect to whom subparagraph
(B) of this paragraph requires a reduction in pension, such
reduction shall not be made for a period of up to three
additional calendar months after the last day of the third
month referred to in such subparagraph if the Secretary
determines that the primary purpose for the furnishing of such
care during such additional period is for the Department to
provide such veteran with a prescribed program of
rehabilitation services, under chapter 17 of this title,
designed to restore such veteran's ability to function within
such veteran's family and community. If the Secretary
determines that it is necessary, after such period, for the
veteran to continue such program of rehabilitation services in
order to achieve the purposes of such program and that the
primary purpose of furnishing nursing home care to the veteran
continues to be the provision of such program to the veteran,
the reduction in pension required by subparagraph (B) of this
paragraph shall not be made for the number of calendar months
that the Secretary determines is necessary for the veteran to
achieve the purposes of such program.
(2) The provisions of paragraph (1) shall also apply to a
veteran being furnished such care who has a spouse but whose
pension is payable under section 1521(b) of this title. In such
a case, the Secretary may apportion and pay to the spouse, upon
an affirmative showing of hardship, all or any part of the
amounts in excess of the amount payable to the veteran while
being furnished such care which would be payable to the veteran
if pension were payable under section 1521(c) of this title.
(b) Notwithstanding any other provision of this section or
any other provision of law, no reduction shall be made in the
pension of any veteran for any part of the period during which
the veteran is furnished hospital treatment, or institutional
or domiciliary care, for Hansen's disease, by the United States
or any political subdivision thereof.
(c) Where any veteran in receipt of an aid and attendance
allowance described in subsection (r) or (t) of section 1114 of
this title is hospitalized at Government expense, such
allowance shall be discontinued from the first day of the
second calendar month which begins after the date of the
veteran's admission for such hospitalization for so long as
such hospitalization continues. Any discontinuance required by
administrative regulation, during hospitalization of a veteran
by the Department, of increased pension based on need of
regular aid and attendance or additional compensation based on
need of regular aid and attendance as described in subsection
(l) or (m) of section 1114 of this title, shall not be
effective earlier than the first day of the second calendar
month which begins after the date of the veteran's admission
for hospitalization. In case a veteran affected by this
subsection leaves a hospital against medical advice and is
thereafter admitted to hospitalization within six months from
the date of such departure, such allowance, increased pension,
or additional compensation, as the case may be, shall be
discontinued from the date of such readmission for so long as
such hospitalization continues.
(d)(1) For the purposes of this subsection--
(A) the term ``Medicaid plan'' means a State plan for
medical assistance referred to in section 1902(a) of
the Social Security Act (42 U.S.C. 1396a(a)); and
(B) the term ``nursing facility'' means a nursing
facility described in section 1919 of such Act (42
U.S.C. 1396r), other than a facility that is a State
home with respect to which the Secretary makes per diem
payments for nursing home care pursuant to section
1741(a) of this title.
(2) If a veteran having neither spouse nor child is covered
by a Medicaid plan for services furnished such veteran by a
nursing facility, no pension in excess of $90 per month shall
be paid to or for the veteran for any period after the month of
admission to such nursing facility.
(3) Notwithstanding any provision of title XIX of the Social
Security Act, the amount of the payment paid a nursing facility
pursuant to a Medicaid plan for services furnished a veteran
may not be reduced by any amount of pension permitted to be
paid such veteran under paragraph (2) of this subsection.
(4) A veteran is not liable to the United States for any
payment of pension in excess of the amount permitted under this
subsection that is paid to or for the veteran by reason of the
inability or failure of the Secretary to reduce the veteran's
pension under this subsection unless such inability or failure
is the result of a willful concealment by the veteran of
information necessary to make a reduction in pension under this
subsection.
(5)(A) The provisions of this subsection shall apply with
respect to a surviving spouse having no child in the same
manner as they apply to a veteran having neither spouse nor
child.
(B) The provisions of this subsection shall apply with
respect to a child entitled to pension under section 1542 of
this title in the same manner as they apply to a veteran having
neither spouse nor child.
(6) The costs of administering this subsection shall be paid
for from amounts available to the Department of Veterans
Affairs for the payment of compensation and pension.
(7) This subsection expires on [November 30, 2031] February
28, 2033.

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