Cheryl Beversdorf, RN MHS MA
President and CEO
representing
National Coalition for Homeless Veterans
Washington, DC
Subcommittee on Labor, Health and Human Services, Education, and Related Agencies
Committee on Appropriations
Hearing
Wednesday, March 28, 2007
2:00 P.M.
Recommended FY 2008 Appropriations for U.S. Department of Labor
Veterans’ Employment and Training Service programs--
Homeless Veteran Reintegration Program
Veterans Workforce Investment Program
Introduction
The National Coalition for Homeless Veterans (NCHV) appreciates the opportunity to submit testimony to the House Appropriations Subcommittee on Labor, Health and Human Services, Education & Related Agencies regarding the Homeless Veteran Reintegration (HVRP) and Veteran Workforce Investment Programs (VWIP), administered by the U.S. Department of Labor (DOL) Veterans’ Employment and Training Service (VETS).
Established in 1990, NCHV is a not for profit organization with the mission of ending homelessness among veterans by shaping public policy, promoting collaboration, and building the capacity of service providers. NCHV is the only national organization wholly dedicated to helping end homelessness among America’s veterans.
NCHV was founded by a group of community-based homeless veteran service providers who sought to educate the public about the extraordinarily high percentage of veterans among the homeless population and to place the needs of homeless veterans on the national public policy agenda. The founders, all former members of the military, were concerned that neither the public nor policy makers understood either the unique reasons for homelessness among veterans or appreciated the reality that so many veterans were overlooked and underserved during their periods of personal crisis.
In the years since its founding, NCHV's membership has grown to over 250 organizations in 48 states and the District of Columbia. As a network, NCHV members provide the full continuum of care to homeless veterans and their families, including emergency shelter, food and clothing, primary health care, addiction and mental health services, employment supports, educational assistance, legal aid and transitional housing.
Homelessness Among Veterans
The VA reports homeless veterans are mostly males (3 percent are females) and the vast majority are single, although service providers are reporting an increased number of veterans with children seeking their assistance. About half of all homeless veterans have a mental illness and more than two thirds suffer from alcohol or other substance abuse problems. Nearly 40 percent have both psychiatric and substance abuse disorders. The VA reports the majority of women in homeless veteran programs have serious trauma histories, some life-threatening, and many of these women have been raped and reported physical harassment while in the military.
According to the VA Northeast Program Evaluation Center (NEPEC), male veterans are 1.3 times more likely to become homeless than their non-veteran counterparts, and female veterans are 3.6 times more likely to become homeless than their non-veteran counterparts. Like their non-veteran counterparts, veterans are at high risk of homelessness due to extremely low or no livable income, extreme shortage of affordable housing, and lack of access to health care. But these factors combined with their military service put them at even greater risk of homelessness.
Prior to becoming homeless, a large number of veterans at risk of homelessness have struggled with post traumatic stress disorder, also known as PTSD, or have addictions acquired during or after their military service. NEPEC reports nearly 74% of homeless veterans are likely to have medical problems upon admission to either VA or community-based assistance programs. About 70 percent will have alcohol-related problems; 63% will have drug abuse histories; and 69% will have a mental illness diagnosis. These conditions can interrupt their ability to keep a job, establish savings, and in some cases, live with their families. Veterans’ family, social, and professional networks may have been damaged and their lives disrupted due to extensive mobility while in service or lengthy periods away from their hometowns and their civilian jobs. These problems are directly traceable to their experience in military service or to the difficulty of transitioning back into civilian society.
While most Americans believe our nation’s veterans are well-supported, in fact many go without the services they require and are eligible to receive. According to a Congressional staff analysis of 2000 U.S. Census data, 1.5 million veterans have incomes that fall below the federal poverty level, including 634,000 with incomes below 50 percent of poverty. Neither the VA nor state and county veteran service departments are adequately funded to respond to these veterans’ health, housing, and supportive services needs. Moreover, the VA’s role in providing employment services to veterans is limited.
The VA reports its homeless veteran programs serve about 100,000 veterans annually. NCHV member community-based organizations (CBOs) serve 150,000 each year. With an estimated 400,000 veterans experiencing homelessness at some time during the year, and the VA reaching only 25 percent and CBOs reaching 35 percent of those in need, that still leaves almost 40% of the nation’s homeless veterans who do not receive the help they need. It is likely some of these veterans are receiving assistance from other community resources, but there is no way to determine how many or the nature of services being provided.
In testimony presented to Congress in 2006, a U.S. Department of Veterans Affairs (VA) representative reported the number of homeless veterans on the streets of America on any given night decreased by nearly 25 percent during the last five years, from about 250,000 to 190,000. Despite the reported decrease, many veterans still need help. Findings from a survey conducted by NCHV in November 2005 suggest the homeless veteran population in America may be experiencing significant changes. Homeless veterans receiving services today are aging and many are in need of permanent supportive housing. With the increase in the number of women serving in Iraq and Afghanistan, the percentage of women veterans seeking services is growing. According to studies published by the New England Journal of Medicine and the VA, a growing number of combat veterans of Operation Iraqi Freedom, Operation Enduring Freedom and the Global War on Terror are returning home and suffering from war-related conditions that may put them at risk for homelessness.
Homeless Veterans Reintegration Program Appropriations Recommendation
The Homeless Veterans Reintegration Program (HVRP) is the only federal program wholly dedicated to providing employment assistance to homeless veterans. HVRP is funded by DOL Veterans’ Employment and Training Service (VETS) in compliance with the requirements of 38 United States Code, Section 2021, as added by Section 5 of Public Law 107-95, the Homeless Veterans Comprehensive Assistance Act of 2001. Section 2021 requires the Secretary of Labor to conduct, directly or through grant or contract, such programs as the Secretary determines appropriate to expedite the reintegration of homeless veterans into the labor force.
HVRP programs fill a special need because they serve veterans who may be shunned by other programs and services because of problems such as severe post-traumatic stress disorder (PTSD), long histories of substance abuse, serious psychosocial problems, legal issues, and those who are HIV-positive. These veterans require more time-consuming, specialized, intensive assessment, referrals and counseling than is possible in other programs that work with veterans seeking employment.
The employment focus of HVRP distinguishes it from most other programs for the homeless, which concentrate on more immediate needs such as emergency shelter, food and substance abuse treatment. While these are critical components of any homeless program, and grantees are required to demonstrate that their clients' needs in those areas are met, the objective of HVRP programs is to enable homeless veterans to secure and keep jobs that will allow them to re-enter mainstream society as productive citizens.
Grantees are able to place HVRP participants into employment for less than $2,000 per placement, a tiny investment for moving a veteran out of homelessness, and off of dependency on public programs. In Program Year 2006 (the most recent data available), the program’s entered employment rate was 72.8 percent and the 90-day retained employment rate was 61 percent of the 72.8 percent who entered employment.
DOL estimates that 15,100 homeless veterans will be served through HVRP at the FY 2008 appropriation level of $23.62 million. This figure represents less than four percent of the overall homeless veteran population, which the Department of Veterans Affairs estimates at 400,000 over the course of a year.
Additionally, HVRP is being used as the account to fund the Incarcerated Veterans’ Transition Program (IVTP), a joint Department of Labor and Department of Veterans Affairs initiative authorized by Congress to assist veterans incarcerated in their reentry to the community. The seven grants awarded to conduct this pilot program, are to be completed by June 30, 2007. Currently, there are 766 IVTP enrollees, of whom 411 (54%) have entered employment. The IVTP adds a new purpose to the HVRP program and its success warrants both immediate reauthorization and even expansion of the pilot projects. Once authorized, additional funds are needed to continue the work of those who provide these beneficial and much needed services.
The Veterans Housing Opportunity and Benefits Improvement Act of 2006 (P.L. 109-233) authorized HVRP to be appropriated at $50 million for each of fiscal years 2007 through 2009. Based on the program’s success in terms of employment outcomes for one of the most difficult populations to serve and its cost effectiveness as compared to other employment placement programs, NCHV believes the program should be funded in FY 2008 at its full $50 million authorization level. An appropriation at this level would enable HVRP grantees to reach approximately 36,000 homeless veterans.
Veterans Workforce Investment Program Appropriation Recommendation
The Veterans Workforce Investment Program (VWIP) (Section 168 of the Workforce Investment Act), within the DOL-VETS, provides grants to states and community-based, faith-based, and local public organizations to offer workforce services targeted to veterans with service connected disabilities, with active duty experience in a war or campaign, recently separated from the service, or facing significant barriers to employment (including homelessness). At least 80 percent of total VWIP funds are distributed via competition. VETS may reserve 20 percent of total VWIP funds for discretionary grants. VETS use these discretionary funds for studies, demonstration projects, and additional funding to supplement competitive grants. The FY 2008 budget recommendation for VWIP is $7.34 million with plans to target 4,390 participants. This amount represents a 1% decrease in funding for the program
The agencies receiving VWIP funds and those hoping to apply for this program face the problem of resource scarcity. Due to funding limitations, agencies and organizations in less than one-third of states receive VWIP funds. The need for the type of targeted assistance that VWIP offers is clearly needed by veterans in all states. Additionally, caps on the size of grant awards make it difficult for existing grantees to recruit and retain staff, which limits program effectiveness and the collaborative process. Requesting only $7 million for a program that can help our nation’s veterans become more economically independent is a disgrace. NCHV asks Congress to fund this program at a much higher level.
Conclusion
NCHV appreciates the opportunity to submit recommendations to Congress regarding the resources and activities of the U.S. Department of Labor. We look forward to continuing to work with the Appropriations Committee to ensure our federal government does what is necessary to prevent and end homelessness among our nation’s veterans.
