Introduction

The National Coalition for Homeless Veterans (NCHV), established in 1990, is a nonprofit organization with the mission of ending homelessness among veterans by shaping public policy, promoting collaboration, and building the capacity of service providers.  NCHV’s membership of nearly 250 organizations in 41 states and the District of Columbia provides housing and supportive services to homeless veterans and their families, such as street outreach, drop-in centers, emergency shelter, transitional housing, permanent housing, recuperative care, hospice care, food and clothing, primary health care, addiction and mental health services, employment supports, educational assistance, legal aid and veteran and public benefit advocacy.

The U.S. Department of Veterans Affairs (VA) estimates that more than 299,000 veterans are homeless on any given night; more than 500,000 experience homelessness over the course of a year.  Conservatively, one out of every three homeless adult males sleeping in a doorway, alley, box, car, barn or other location not fit for human habitation in our urban, suburban and rural communities has served our nation in the Armed Forces.

Preventing and ending homelessness among veterans requires public commitment and action to ensure their access to housing, income, and health security.  This must be accomplished both through general responses of benefit to homeless persons and persons at high-risk for homelessness and through specialized responses targeted to homeless veterans.  Toward this end, NCHV calls on Congress and the Administration to take the following legislative actions in 2004.

Homelessness Prevention

Ensure Successful Transition of Separating Service Members—Individuals leaving the military are at high risk of homelessness due to a lack of job skills transferable to the civilian sector, disrupted or dissolved family and social support networks, and other risk factors that preceded their military service.  Separating service members must be made aware of the factors that contribute to homelessness and receive information about sources of preventive assistance before they exit the military.

Congress has established the Transition Assistance Program (TAP) to ease the transition of separating service members to the civilian sector.  Regrettably, unit commanders, rather than the service member himself/herself, make the determination as to whether the service member may participate in TAP.  Further, the TAP curriculum does not currently include a component on homelessness.  H.R. 1906 addresses these serious weaknesses.  NCHV urges Congress and the Administration to enact H.R. 1906, either as stand-alone legislation or by incorporating it into FY 2005 Department of Defense authorization legislation.

Increase Appropriations for Emergency Food and Shelter Program—The Emergency Food and Shelter Program (EFSP), within the Department of Homeland Security’s Federal Emergency Management Agency, provides funds to community-based, faith-based, and public organizations to enable them to offer food, lodging, and mortgage, rental or utility assistance to persons who are homeless or at risk of homelessness.  EFSP is critical to homelessness prevention, reaching people at imminent risk of homelessness and averting their loss of housing through short-term financial assistance.  Congress appropriated $153 million for EFSP in FY 2004.

Homelessness is on the rise, especially among people experiencing disruptions in income due to job loss, public benefit termination, or rising housing and health care costs.  These people need only temporary assistance to stabilize their housing arrangement.  NCHV urges Congress and the Administration to appropriate $200 million for EFSP in FY 2005 Department of Homeland Security appropriations legislation.

Diversify Representation on Emergency Food and Shelter Boards—The Emergency Shelter Program (EFSP) is governed nationally by a board of directors comprised of representatives of six national organizations, and at the local level by the local affiliates of these six national organizations.  (Some local EFSP boards may have additional representatives.)  The composition of the boards is dictated by statute, and has resulted in the exclusion of homeless veteran service providers and other groups not aligned with one of the six authorized members from participating in program decision-making, particularly regarding the distribution of funds among service providers.  NCHV urges Congress and the Administration to amend the EFSP statute by adding a homeless veteran service provider representative to the national and local EFSP boards. 

Coordinate HUD Homeless Assistance and EFSP Planning Activities—Jurisdictions eligible for funding through HUD McKinney-Vento homeless assistance (HMV) programs prepare their applications via “continuum of care” planning groups.  Emergency Food and Shelter Program (EFSP) local boards make decisions about the distribution of emergency food and shelter funds among local service providers.  There is currently no expectation that these decision-making bodies integrate their respective efforts.  NCHV urges Congress and the Administration to amend the EFSP statute by requiring collaboration between continua of care established for the purpose of competing for HMV funds and EFSP local boards established for the purpose of administering the local EFSP program.

Housing Security

Increase Appropriations for Homeless Provider Grant and Per Diem Program—The Homeless Providers Grant and Per Diem Program (GPD), within the Department of Veterans Affairs (VA) Veterans Health Administration (VHA), provides competitive grants to community-based, faith-based and public organizations to offer transitional housing or service centers for homeless veterans.  Under the grant component, VA may fund up to 65 percent of the project for the construction, acquisition or renovation of facilities, or to purchase vans to provide outreach and services to homeless veterans. Under the per diem component, funding is available to grantees to help off-set operational expenses.  The GPD program is an essential component of the VA’s continuum of care for homeless veterans, assuring the availability of social services, employment supports and direct treatment or referral to medical treatment. 

GPD is currently authorized at the $75 million level.  Congress has granted the VA Secretary discretion at allocating the VHA appropriation among its numerous component programs.  In FY 2004, the Secretary was expected to allocate $69.4 million of the VHA appropriation to GPD.

VA reports that in FY 2002, GPD grantees provided 11,013 “episodes of care” at an average 85 days length of stay per episode—and at an average cost of only $1,674 per episode.  Using this figure, an increase of the GPD allocation to its full authorized level would enable VA to provide a bridge from homelessness to long-term rehabilitation or permanent housing for 3,345 more homeless veterans.  NCHV urges Congress, in the report that accompanies FY 2005 VA-HUD appropriations legislation, to instruct the Secretary of Veterans Affairs to allocate $75 million from the VHA appropriation to GPD.

Streamline Reimbursement for Grant and Per Diem Providers—The Homeless Veterans Comprehensive Assistance Act of 2001 includes a provision requiring the VA to reimburse grantees under the Homeless Provider Grant and Per Diem Program (GPD) for services to homeless veterans at the same rate VA pays states for domiciliary care services provided in State Veterans Homes.  The provision is intended to establish fairness in payments among different types of domiciliary care providers and to simplify reimbursement of GPD grantees.  The VA has implemented the provision in a manner that requires GPD grantees to submit extensive documentation on their services costs, rather than simply reimbursing them at the State Veterans Home rate.  NCHV urges Congress and the Administration to amend 20 U.S.C. Sec. 2012 to clarify that GPD grantees should be reimbursed at the State Veterans Home rate, without requiring documentation.

Reauthorize the Grant and Per Diem Program—The Homeless Provider Grant and Per Diem Program is authorized at the $75 million level annually through FY 2005.  NCHV urges Congress and the Administration to reauthorize GPD at a $200 million level in each of FY 2006 through FY 2011.

Appropriate Funds for Additional Domiciliary Care—Domiciliaries are a distinct component of the VA’s continuum of care for homeless veterans, assuring the availability of biopsychosocial treatment and rehabilitation to homeless veterans in residential settings.  The Homeless Veterans Comprehensive Assistance Act of 2001 authorized appropriations of $5 million in each of FY 2003 and FY 2004 for the VA to open 10 new domiciliaries for homeless veterans.  Regrettably, the Department did not request and Congress did not appropriate these funds.  NCHV urges Congress, in the report that accompanies FY 2005 VA-HUD appropriations legislation, to instruct the Secretary of Veterans Affairs to allocate $10 million from the VHA appropriation to establish 10 additional domiciliaries for homeless veterans, either within the VA system or via contractual agreements with community-based providers.

Establish Minimal Charges for Use of VA Space for Homeless Veterans—The VA enters into space agreements with nonprofit organizations to utilize VA capital assets to offer services to homeless veterans.  Rates for use of the space fluctuate greatly.  NCHV urges Congress and the Administration to enact legislation requiring VA to ensure that space agreements with homeless service providers are negotiated without charge or at the lowest charge possible, and certainly at a rate not to exceed 30 percent of their tenants’ aggregate adjusted monthly incomes.

Increase Appropriations for HUD-Veterans Affairs Supportive Housing Program—The HUD-Veterans Affairs Supportive Housing (HUD-VASH) Program provides permanent housing subsidies and case management services to homeless veterans with mental and addictive disorders.  VA screens homeless veterans for program eligibility and provides case management services to enrollees.  HUD allocates rental subsidies from its Housing Choice Voucher program to the VA, which then distributes them to the enrollees.  Rigorous evaluation of the program indicates that it significantly reduces days of homelessness for veterans plagued by mental and addictive disorders.  HUD currently allocates 1,780 housing choice vouchers under this program at a cost of $44.5 million.

In the Homeless Veterans Comprehensive Assistance Act of 2001, Congress authorized HUD to allocate additional vouchers to this program (500 in FY 2003; 1000 in FY 2004; 1500 in FY 2005; 2,000 in FY 2006).  Regrettably, HUD has not requested additional funding for this purpose in any of these fiscal years.  NCHV urges Congress and the Administration to appropriate at least $119.5 million for HUD-VASH in FY 2005 VA-HUD appropriations legislation, a $75 million increase over FY 2004.  This level of funding would sustain current HUD-VASH vouchers in circulation, fill the backlog of additional authorized vouchers that HUD did not request in FY 2003 and FY 2004, and fund additional HUD-VASH vouchers authorized for FY 2005.

Strengthen VA Implementation of McKinney-Vento Title V Program—Title V of the McKinney-Vento Homeless Assistance Act makes vacant federal properties available at no cost to nonprofit organizations, including state and local government agencies, for use as facilities to assist people experiencing homelessness.  VA compliance with the Title V law is spotty.  NCHV urges Congress, in report language to accompany FY 2005 VA-HUD appropriations legislation, to urge the Secretary of Veterans Affairs to do the following: issue a Department-wide directive that articulates that surplus, excess, unutilized or underutilized VA properties shall first be made available on a no-cost or lowest-cost basis to nonprofit or public organizations responding to the human needs of veterans (and low-income persons in general secondarily), with a primary preference for organizations experienced in serving homeless veterans; establishes as a Departmental goal the establishment of at least 50,000 additional supportive housing units for homeless veterans on VA property and to instruct VISNs to develop concrete action plans for reaching this goal; instruct VISNs to identify and advertise properties currently or potentially suitable and available for disposition under the McKinney-Vento Title V program; instruct VISNs to use the Title V criteria for determining suitability for homeless uses when conducting these property assessments; take action to ensure the Department’s full compliance with the Title V Program; prepare an analysis of VA property acquisition and disposition statutes, regulations and policy guidance and their intersection with the Title V program; and to recommend or adopt any changes needed in order for the VA to fully participate in the Title V program.

Increase Appropriations for HUD McKinney-Vento Homeless Assistance Programs—HUD McKinney-Vento (HMV) programs (Emergency Shelter Grant, Supportive Housing, Shelter Plus Care, and Section 8 Moderate Rehabilitation Single Room Occupancy for Homeless Individuals) provide access to emergency shelter, transitional and permanent housing, and support services for homeless people.  NCHV urges Congress and the Administration to appropriate at least $1.8 billion for HUD McKinney-Vento programs in FY 2005 VA-HUD appropriations legislation.  NCHV also urges Congress and the Administration to appropriate sufficient funding to a separate account to finance the cost of renewing subsidies for permanent housing units initiated through HMV programs.

Reauthorize HUD McKinney-Vento Homeless Assistance Programs—Formal authorization of HUD McKinney-Vento (HMV) programs expired in 1994, with annual authorizations every year since through the appropriations process.  NCHV urges Congress and the Administration to reauthorize HMV at a $2.0 billion level in each of FY 2006 through FY 2011.  Further, Congress and the Administration should strengthen HMV programs as follows: codify current practice regarding consumer, service provider and community representative participation in the identification of regional and local housing and services gaps, funding priorities, and in the preparation of applications for HUD homeless assistance funding; continue to distribute funds competitively rather than by formula-allocation to eligible jurisdictions; restore flexibility in the use of funds for a broad range of homeless assistance purposes by eliminating the requirement that 30 percent of appropriated funds be spent on permanent housing; require organizations receiving HMV funds to screen participants for military service and make referrals as appropriate to VA and homeless veteran service providers; require applicants for HMV funds to develop specific plans for housing and services to homeless veterans; require applicants to coordinate their planning efforts with the Community Homelessness Assessment, Local Education, and Networking Groups (CHALENGs) established by VA medical centers for the purpose of identifying and addressing unique needs of homeless veterans in their catchment areas.  In addition, Congress and the Administration should authorize funding to finance the cost of renewing subsidies for permanent housing units initiated through HMV programs through a separate account.

Establish a National Housing Trust Fund—Homelessness is the direct result of the absence of housing at prices that are affordable for low-income people.  Development of affordable housing stock is the most obvious remedy to homelessness.  We urge Congress and the Administration to enact H.R. 1102, which establishes a National Housing Trust Fund.  Trust funds would be used to produce, rehabilitate, and preserve 1.5 million units of permanent affordable housing.

Income Security

Increase Appropriations for Homeless Veterans Reintegration Program—The Homeless Veterans Reintegration Program (HVRP), within the Department of Labor’s Veterans Employment and Training Service (VETS), provides competitive grants to community-based, faith-based and public organizations to offer outreach, job placement and supportive services to homeless veterans.  HVRP is the primary employment services program accessible by homeless veterans and the only targeted employment program for any homeless subpopulation.  Homeless veterans have many additional barriers to employment than non-homeless veterans due to their lack of housing.  HVRP grantees remove those barriers through specialized supports unavailable through other employment services programs.  Grantees are able to place HVRP participants into employment for $2,100 per placement, a tiny investment for moving a veteran out of homelessness, and off of dependency on public programs.  In addition, DOL is using the HVRP account to finance six veterans incarcerated reentry demonstration projects.  HVRP is authorized in FY 2005 at the $50 million level.

DOL estimates that 16,800 homeless veterans will be served through HVRP at the FY 2004 appropriation level of $19 million.  This figure represents just three percent of the overall homeless veteran population, which the Department of Veterans Affairs estimates numbers more than 500,000 over the course of a year.  Appropriation at the full authorization level would enable HVRP grantees to reach approximately 44,000 homeless veterans.  NCHV urges Congress and the Administration to appropriate $50 million for HVRP in FY 2005 Labor-HHS-Education appropriations legislation.

Increase Appropriations for the Veterans Workforce Investment Program—The Veterans Workforce Investment Program (VWIP), within the Department of Labor’s Veterans Employment and Training Service (VETS), provides competitive grants to states geared toward training and employment opportunities for veterans with service-connected disabilities, those with significant barriers to employment (such as homelessness), and recently separated veterans.  The FY 2004 appropriation for VWIP is $17.5 million.  NCHV urges Congress and the Administration to appropriate at least $33.5 million for VWIP in FY 2005 Labor-HHS-Education appropriations legislation.

Raise the Minimum Wage—In no town, city, or state can an individual or family working full time at minimum wage afford a one- or two-bedroom apartment at the fair market rental rate established by the Department of Housing and Urban Development.  NCHV urges Congress and the Administration to enact S. 224 and H.R. 965, which raise the minimum wage to $6.65 per hour.

Protect Temporary Workers—Many homeless veterans and other homeless persons who are unable to secure full-time employment and are ineligible for public assistance participate in “day labor” to earn some level of income.  Regrettably, some temporary workers are exploited by their employers due to the absence of worker and workplace protections that are standard for permanent employees.  NCHV urges Congress and the Administration to enact H.R.  2870, the Day Labor Fairness and Protection Act.  H.R. 2870 ensures that temporary workers enjoy protections of law in parity with permanent workers.

Health Security

Increase Appropriations for VA Mental Health and Addiction Services—Access to mental health and addiction services is critical to ending homelessness among veterans.  A federally-funded survey of homeless services users published in 1999 found that 76 percent of homeless veterans have a mental health and/or substance abuse issue.  With prevalence of mental and addictive disorders so high among homeless veterans, they can least afford an under-capacitated and ill-equipped VA mental health system.  Regrettably, VA has not requested and Congress has not provided funds at levels sufficient for implementing Congressional mandates regarding the VA’s provision of mental health and addiction services.  NCHV urges Congress and the Administration to increase funding for VA mental health and addiction services by $500 million above the current level in FY 2005 VA-HUD appropriations legislation.
Increase Appropriations for VA Dental Care for Homeless Veterans—Healthy teeth are necessary for homeless veterans to successfully gain or regain employment. The Homeless Veterans Comprehensive Assistance Act includes a provision requiring the VA to provide outpatient dental services to homeless veterans participating in certain VA programs.  Regrettably, VA has not requested and Congress has not provided funds at levels sufficient for implementing Congressional mandates regarding VA provision of dental care services for homeless veterans.  NCHV urges Congress, in the report that accompanies FY 2005 VA-HUD appropriations legislation, to instruct the Secretary of Veterans Affairs to allocate a specific sum from the VHA appropriation to expand dental care services for homeless veterans.

Strengthen VA’s Hepatitis C Treatment and Testing Capacity—Hepatitis C is a major health problem among veterans.  Veterans experiencing homelessness are at particular risk of acquiring the virus.  Testing for and treatment of the disease is costly to VA.  NCHV urges Congress and the Administration to enact HR 73 and S. 1847, the Veterans Comprehensive Hepatitis C Health Care Act.  The legislation would require VA to provide blood tests for the Hepatitis C virus to veterans and treatment for veterans who test positive.  The legislation would also authorize special funding for a VA Hepatitis C detection and treatment program.

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