THE VETERANS TRANSITIONAL HOUSING

OPPORTUNITIES ACT OF 1997

FIELD HEARING
BEFORE THE

SUBCOMMITTEE ON BENEFITS
OF THE

COMMITTEE ON VETERANS' AFFAIRS

HOUSE OF REPRESENTATIVES
ONE HUNDRED FIFTH CONGRESS
FIRST SESSION

HEARING HELD IN BUFFALO, NY, DECEMBER 18, 1997

Printed for the use of the Committee on Veterans' Affairs

Serial No. 105-26

U.S. GOVERNMENT PRINTING OFFICE

47-767 CC WASHINGTON: 1998

For sale by the U.S. Government Printing Office

Superintendent of Documents. Congressional Sales Office, Washington, DC 20402
ISBN 0-16-056561-8
 COMMITl'EE ON VETERANS' AFFAIRS
BOB STUMP, Arizona, Chairman
CHRISTOPHER H. SMITH, New Jersey LANE EVANS, Illinois
MICHAEL BILIRAKIS, Florida JOSEPH P. KENNEDY II, Massachusetts
FLOYD SPENCE, South Carolina BOB FILNER, California
TERRY EVERETl', Alabama LUIS V. GUTIERREZ, Illinois
STEVE BUYER, Indiana JAMES E. CLYBURN, South Carolina
JACK QUINN, New York CORRINE BROWN, Florida
SPENCER BACHUS, Alabama MICHAEL F. DOYLE, Pennsylvania
CLIFF STEARNS, Florida FRANK MASCARA, Pennsylvania
DAN SCHAEFER, Colorado COLLIN C. PETERSON, Minnesota
JERRY MORAN, Kansas JULIA CARSON, Indiana
JOHN COOKSEY, Louisiana SILVESTRE REYES, Texas
ABA HUTCHINSON, Arkansas VIC SNYDER, Arkansas
J .D. HAYWORTH, Arizona CIRO D. RODRIGUEZ, Texas
HELEN CHENOWETH, Idaho
RAY LAHOOD, Illinois
CARL D. COMMENATOR, ChiAef Counsel and Staff Director

SUBCOMMITl'EE ON BENEFITS
JACK QUINN, New York, Chairman
DAN SCHAEFER, Colorado BOB FILNER, California
J.D. HAYWORTH, Arizona FRANK MASCARA, Pennsylvania
RAY LAHOOD, Illinois SILVESTRE REYES, Teus
CIRO D. RODRIGUEZ, TelUl8

(II)
 CONTENTS
Page

OPENING STATEMENTS
Chairman Quinn ...................................................................................................... 1
Hon. John J . LaFalce, a Representative in Congress from the Stae of New
York ....................................................................................................................... 3
Hon. Lane Evans, ranking democratic member, Full Committee on VeteranS'
Affairs ... ......... ... .......... .......... ..... .... ....... .... .... ...... .... .................. .......... ..... .............. 3,4
WITNESSES
Angrisano, Paul, Vietnam Veterans of America ................................................... 26
Prepared statement of Mr. Angrisano ............................................................ 72
Boone, Linda, Executive Director, National Coalition for Homeless Veterans.. 18
Prepared statement of Ms. Boone ................................................................... 61
Bugaj, Martin, AMVETS First Vice Commander, Department of New York ..... 30
Prepared statement of Mr. Bugaj ........................ ............................................ 86
Dollner, David, New York State Department of Labor Veterans Programs
Administrator ....... ......... ................. .... .... ..... ... ... ................. .................................. 8
Prepared statement of Mr. Dollner ................................................................. 44
Dougherty, Peter, VA Central Office, Homeless Veterans Programs .................. 35
Prepared statement of Mr. Dougherty ............................................................ 100
Falkowski, Frank, COO, Western New York Veterans Housing Coalition,
Inc. ......................................................................................................................... 15
Prepared statement of Mr. Falkowski ..................................................:......... 51
Fink, Dennis, Executive Director, Friends of Cazenovia Manor, Inc. ................. 28
Prepared statement of Friends of Cazenovia Manor, Inc. ............................. 82
Flaherty, Command Sgt. Maj. Gary, Non Commissioned Officers Association .. 33
Prepared statement of Sergeant Major Flaherty........ .................. .... ............. 94
Gallagher, Richard, Executive Director, Western New York Alcohol and Drug
Dependency Services ............................................................................................ 14
Prepared statement of Mr. Gallagher ............................................................. 105
Hart~~ , James H., State Director, New York Veterans Employment and
Tr8.1nmg ....... ............. ... .... ........ ......... ............... ....... ... .................... ...... ............... .. 39
Prepared statement of Mr. Hartman .............................................................. 102
Lyons, William, Vice President, First National Bank .......................................... 12
Prepared statement of Mr. Lyons ................................................................... 47
Mazzarella, Peter G., VFW Past State Commander, Department of New York 25
Prepared statement of Mr. Mazzarella ........................................................... 69
Sampson, John B., Chairman, Rehabilitation Commission, The American Le
gion ........................................................................................................................ 31
Prepared statement of Mr. Sampson .............................................................. 90
Sulewski, Dr. Joan, representative of Chairman Jack Quinn's Veterans Advi
sory Committee .... .................. .... ..... ................ ... ....... ........ ........ ................. ..... ..... 7
Sulkowski, Mary Lee, Director, Buffalo VA Vets Center ..................................... 9
MATERIAL SUBMITTED FOR THE RECORD
Letter from VVA National President George Duggins to Full Committee
Chairman Bob Stump re views in support H.R. 3039, July 30, 1997 .............. 76
Statement of Maryland Homeless Veterans, I~c. ................................................. 106

(III)
 THE VETERANS TRANSITIONAL HOUSING
OPPORTUNITIES ACT OF 1997

THURSDA~DECEMBERI8, 1"7
HOUSE OF REPRESENTATIVES,
SUBCOMMITTEE ON BENEFITS,
COMMITTEE ON VETERANS' AFFAIRS,
Washington, DC.
The subcommittee met, pursuant to call, at 10 a.m., in Thaddeus
J . Dulski Federal Building, 111 West Huron Street, room 1520,
15th floor, Buffalo, NY, Hon. Jack Quinn (chairman of the sub-
committee) presiding.
Present: Representatives Quinn and Evans.
Also Present: Representative LaFalce.
Mr. QUINN. Good morning, everybody, and welcome to sunny,
tropical Buffalo, NY. Most all of us are residents and are very used
to this kind of weather here, in the 1950's and 1960's. And we had
Congressmen Lane Evans and John LaFalce out for a quick nine
holes this morning, before we came over.
Mr. LAFALCE. It was very quick. .
Mr. QUINN. Thank you all for being here, and I want to begin
the hearing this morning by, first of all, thanking my friend and
colleague and partner here in Buffalo, John LaFalce, for being with
us again this morning. We had a fact-finding session last week, a
couple weeks ago, and we're back again 'in his building here, Buf-
falo, and John has an appointment to be leaving to attend in a few
minutes. So John, thanks for joining us today. .
And I also want to thank Congressman Lane Evans on my left,
and your right, who joins us from Illinois this morning as the rank-
ing member of our VA Committee in Washington, DC. That's the
number one Democrat on our full bipartisan committee. A friend of
mine now for the 5 years I've been in Congress, and he was kind
enough to interrupt his holiday plans in the week or so before
Christmas, leave family and a lot of business in his own District
to come here and join us this morning at a site visit, and then to
ioin us and all of you here this morning hour, to help me and John
LaFalce conduct this hearing on a very, very important issue as it
relates to homelessness and veterans in the Buffalo area and all
across the country. So Lane, we really appreciate your time and ef-
fort to join us here today.
I want to mention also that, a completely different matter, but
one that's close to our hearts. Lane Evans and I recently returned
from Ottawa, Canada, and I'm very, very proud to say that Mr.
Evans and I have co-sponsored the Land Mine Removal Bill in the
U.S. Congress, in the House of Representatives. Lane as the Demo-
(1)
 2
crat and myself as the Republican, two .co-sponsors, and we work
on that in Washington and all across the country whenever we get
a chance to put a plug in for it. We're working on both sides of the
aisle to make sure that we can help our President get himself to
a position where he can sign what we think is a necessary piece
of legislation. But Lane, thanks for your help and leadership on
that, too. You were involved in that long before I came to the
Congress.
With that as a background, we're here today to discuss H.R.
3039, the Veterans Transitional Housing Opportunities Act of 1997,
and how it will help increase services to homeless veterans in the
Buffalo area and, of course, across the Nation.
A nation can commit no greater sin than to turn its back on
those who have and will defend her. This nation, our United
States, has a long and proud history of providing benefits for its
veterans, and we continue to do that today. In a most recent appro-
priation, the VA received almost $40.5 billion .dollars to fund its
benefits and health care programs. Of that amount, about $96.6
million is dedicated to programs exclusively for homeless veterans.
In addition, the Veterans Employment and Training Services has
received about $193 million dollars for fiscal year 1998 of which
about $3 million is to fund it's homeless veterans reintegration
project and over $7 million for veterans job training programs.
These are some significant resources, but unfortunately, it's not
enough, as the record will show, in statements this morning and
from the testimony that we will receive here in Buffalo.
According to the National Coalition for Homeless Veterans, there
are nearly 19,000 homeless veterans in New York State, and of
those, an estimated 7,500 reside here in Erie County alone. Maybe
it would be more accurate to say 7,500 veterans live in the Buffalo
area because the word ''reside'' implies that someone has a home.
That's why we're here today, to determine the housing needs of
homeless veterans in the Buffalo area and to discuss what we be-
lieve to be an innovative way to meet at least some of that need.
The VA currently operates five programs for homeless veterans.
The Health Care for Homeless Veterans Program coordinates the
VA and community based providers, and focuses on veterans with
mental illness, as does the VA's in-house domiciled Care for Home-
less Veterans Program. The Compensated Work Therapy Program
uses work as a therapy and features transitional homes. Thirdly,
the Hun VASH Program is a cooperative effort between the VA
and HUn to provide Section 8 housing vouchers for permanent
housing. And finally, the VA makes its foreclosed properties avail-
able for lease or purchase by homeless providers at nominal rates.
We're all looking forward to VA witnesses later this morning to
give testimony and the picture about those programs and how
they're doing here, at least in the Buffalo area.
I want to mention, before I ask both Congressman LaFalce and
Congressman Evans for opening remarks, to remind all of our wit-
nesses and those who are attending today as observers, that we
have received the full written testimony of all of our witnesses on
all three panels today, so that will become part of the record, obvi-
ously keeping the record here for us to share with our colleagues
in Washington and all across the country. So we would ask that
 3
our witnesses limit their verbal comments to about 5 minutes or
so.
With that as background, I'd like to ask my colleague here from
Buffalo, John LaFalce, if he might have opening remarks. John?
Mr. LAFALCE. Thank you very, very much, Jack. I'm very, very
pleased that the Veterans' Affairs Committee, that you're chairing
here in Buffalo today, invited me to join with you on this very im-
portant subject.
I'm not on the Veterans' Committee, so I'm here as a very inter-
ested observer. But I am on the Housing Committee in Congress.
And of course, when it comes to housing, the largest problem we
have is homelessness, of all our citizenry, and most especially vet-
erans. So this is a very important subject to me.
Secondly, I'd like to give a special welcome to Lane Evans. Lane
has achieved a great reputation in the Congress. And I remember
one of the very first things that Lane and I did together, and this
was shortly after he came to Congress in the 1970's, is, we helped
form the Vietnam Era Veterans Caucus. Up until that time, there
had not been a special caucus devoted to the needs of individuals
who had served during the Vietnam era. And I had served from
1965 to 1967. I think Lane served a bit later than that because he's
a little bit younger. What years did you serve, Lane?
Mr. EVANS. In the Marine Corps, sir?
Mr. LAFALCE. In the Marine Corps, yes.
Mr. EVANS. 1969 through 1971, the Marine Corps, and then not
until 1982 for the VVIC.
Mr. LAFALCE. Okay. Good. So he has done great work on behalf
of veterans, especially in his position now as the ranking Democrat
on the Veterans' Committee, an I hope in the next Congress the
chairman of the committee, although Jack and I - -
Mr. QUINN. Easy, now. Easy, now.
Mr. EVANS. Jack and I cannot come to closure on that issue.
Mr. QUINN. Gentleman is out of order.
Mr. LAFALCE. I also want to explain to you, I had every intention
of being with you for the entirety of the hearing, and then last
night while I was eating spaghetti at home with my wife, I broke
a tooth, about three-quarters of it is gone. So I have an 11 o'clock
dental appointment this morning. And it was not even al dente, it
was soft. So I don't, I do not understand that.
One more thing I want to do, too. Bill Paxon wanted to be here
this morning, but he couldn't. He had previous engagements in Ba-
tavia. But his staff assistant is here. Would you please stand,
please. So Bill Paxon is also represented here this morning. We're
delighted to have you.
Let me just make a few introductory remarks. The National Coa-
lition for Homeless Veterans estimates that an astounding 40 per-
cent of all homeless men nationwide are veterans. That's a rather
astounding statistic. The International Union of Gospel Missions
found that 34 percent of men and 7 percent of women who seek ref-
uge at America's rescue missions are veterans. And a national
year-end survey by the Department of Veterans Affairs shows that
23 percent of veterans treated at VA medical facilities were home-
less at the time of their admission.
 4
Now, that's a national shame that so many of our men and
women who served our country now live on the sidewalks of our
cities. These veterans are without shelter, without adequate food,
without adequate clothing. All year long. We must do much more
to meet their basic human needs, every day of the year.
Sunday is the first day of winter. And in Western New York, de-
spite the fact that Jack and I got in nine rounds this morning,
being homeless during the winter is dangerous. Indeed, it can be
life-threatening. Unfortunately, Erie County has a large homeless
population. Approximately 7,500 men, women and children were
without housing last year. And a large number of these are veter-
ans. We're advised by the City Mission in Buffalo that of the 106
homeless men interviewed last month, 21 were veterans.
Homelessness is caused by a number of underlying, unmet soci-
etal needs. As many as 85 percent of homeless individuals suffer
from mental illness, substance abuse or chronic illness that contrib-
ute to and often cause their homelessness. It's absolutely essential
that we undertake a comprehensive effort to address the special
needs of all our homeless, especially our veterans, and find a long-
term solution to these problems.
These individuals have served selflessly and honorably in the de-
fense of our country, and many bear the scars of service, scars both
physical and emotional. We must do much more to provide support
for their housing needs.
I look forward to working with Congressman Jack Quinn locally
and in Washington, with the entire Veterans' Affairs Committee,
especially Congressman Lane Evans, and all others, as we redouble
our efforts to meet the needs of homeless veterans, and all home-
less, when Congress reconvenes. Jack, thank you very much.
Mr. QUINN. Thank you, John. And thanks for your mention ofthe
Housing Committee. [Applause.]
Lane Evans.
Mr. EVANS. Well, thank you, Jack, and I want to thank you first
for holding this hearin~. This is a very important issue that we'll
be addressing in Washington. These hearings are very important.
They're the way we put the nuts and bolts of legislation together.
We've already introduced a bill that Jack talked about in great de-
tail, that has strong bipartisan support. I am the leading Democrat
on the committee, the number one Democrat by seniority. I would
be chairman if we would get the committee back. We won't get into
that any further today.
Mr. LAFALCE. Not this January, next January.
Mr. EVANS. But it is important for people to know, particularly
in the veterans community, that Democrats and Republicans are
working together on some of their most pressing problems. Some-
times that doesn't come across in the media and so forth, so we
hope that you know that we're working for the best interests of vet-
erans throughout the country on a bipartisan basis. And you know,
there are other topics and other meetings that these two gentlemen
could be going to this morning. I'm very pleased they've taken time,
as we get close to the holidays, to actually focus on one of the worst
problems we have within the Department of Veterans Affairs.
I must tell you, recently I had the honor as a former Marine en-
listed man, to take an Army general from my District to lunch at
 5
the Members Dining Room. And if you're ever out in Washington,
make sure John or Jack takes you to the Members Dining Room
for lunch sometime.
But once we got seated over there, he sat down and looked at
this huge portrait that we have in the Members Dining Room, and
he sat there for a minute or two, and then he said, Congressman,
doesn't this portrait capture the surrender of General Cornwallis at
the end of the RevolutIonary War, handing over his sword to Gen-
eral Washington. I said, that's what it's depicting. He says, if you
look at it, General Cornwallis has about half a dozen British Army
officers backing him up and General Washington has about the
same number of U.S. Army officers backing him up. Can you tell
me why, at this most historic moment in our Nation's history, there
wasn't a single Marine present. [Laughter.]
And I had to think for a moment. Then it came to me. That's
easy, General. When it comes time for the surrender, you don't
need the Marines anymore. [Laughter.]
But I think all of us have seen that sometimes when the wars
have ended, our Government has acted like it doesn't need the vet-
erans anymore. And that's occurred under Democratic and Repub-
lican administrations. And all of us who have served in our coun-
try's defense know that the very first lesson we were taught in
basic training or in boot camp was that we should never leave an-
other veteran behind.
And that's why you're all here today, to tell us how we can help
so many of the 250,000 veterans across our country who last night
slept on grates, heating grates, around the country, to tell us what
we can be doing better in Washington to help those veterans out.
Jack, that's why I'm pleased you're showing leadership in this ef-
fort, and I look forward to working with/ou to get this legislation
passed. And John, we'll be asking you an the other Vietnam veter-
ans in Congress for your help on this legislation as well. Thank you
all for being here today as well.
Mr. QUINN. Thank you, Lane. [Applause.]
Before we go to our first panel, I want to, besides mentioning
that Congressman Bill Paxon's staff is here. Also mention Con-
gressman Bob Filner from California. Bob serves as the ranking
member on our subcommittee on benefits, had tried to get here, all
the way from California. Bob and I-our offices happen to be riJilit
across from each other in the Canon Building, and we're together
on the subcommittee on benefits, and have to say publicly, even
though Bob isn't here, what a delight it is to work with him. We're
forging a bipartisan effort that Lane talks about, that all of us
talked about, particularly on the Veterans' Committee, and I can't
think of anybody better than Bob Filner to work with me on the
committee. So in his absence, he's been a big supporter of the bill,
and in most everything that we take up in Washington. Bob's been
very, very helpful. John?
Mr. LAFALCE. 30 seconds. Jack has been doing some ~eat work,
along with Lane Evans, on the issue of landmines and I ve co-spon-
sored i~d anybody see the magnificent articles that were in the
New York Times about 2 days or so ago, two full pages on land
mines. I just point it out to you. It's, you know, something that you
should put in your library.
 6
Mr. QUINN. Thank you, John. Our first panel is here, and been
waiting for us for some time now to begin. And 111 introduce all of
you once through, and then we11 take your testimony. I remind ev-
erybody that we have copies of the full testimony, and see if we
can't ask you to sort of summarize your statements in about 5 min-
utes or so, and then, John and Lane, if it's okay with both of you,
I'd like to let all of our witnesses testify first, and then we can go
back to the whole group with any questions we might have, instead
of doing them individually. If you're still with us at that point.
Mr. David Dollner is from the New York State Department of
Labor and the State Veterans Program administrator.
We understand that Miss Mary Lee Sulkowski is the director
here in Buffalo of our VA Vet Center. Bill Lyons, of course, is a
friend of many of us, we were with him earlier this morning, is the
Vice President of the First National Bank and a big veterans sup-
porter and worked for a long time with the homeless here.
Mr. Richard Gallagher, the Executive Director of Western New
York Alcohol and Drug Dependency Services. .
We were with Frank Falkowski this morning, who is the Western
New York Veterans Housing Coalition. And also on the panel is
Miss Linda Boone, the Executive Director of the National Coalition
for Homeless Veterans from DC and we appreciate you making the
trip here.
And last but not least, I have saved Dr. Joan Sulewski, who will
begin your testimony this morning, and mention that one of the
first things I did when I was elected here 5 years ago, on advice
of a lot of people, and probably Lane Evans was one of those, was
to set up a Veterans Advisory Committee here in Buffalo. And
many of our members are here this morning in the room. But we
have about a dozen or so members who advise me all during the
year on veterans issues, whether it's homelessness or budget issues
or hospital issues.
Dr. Sulewski in her own right is very much involved at the VA
Hospital and other places with women's health issues and others.
And as chairman of my local Veterans Advisory Committee, it's a
pleasure, after having you testify in Washington once or twice be-
fore, to have you join us here in Buffalo this morning. Dr.
Sulewski, if you'd begin, we're thrilled to have you start our
testimony.
 7
STATEMENTS OF DR. JOAN SULEWSKI, REPRESENTATIVE OF
CHAIRMAN JACK QUINN'S VETERANS ADVISORY COMMIT
TEE; DAVID DOLLNER, NEW YORK STATE DEPARTMENT OF
LABOR VETERANS PROGRAMS ADMINISTRATOR; MARY LEE
SULKOWSKI, DmECTOR, BUFFALO VA VETS CENTER; WIL-
LIAM LYONS, VICE PRESIDENT, FIRST NATIONAL BANK;
RICHARD GALLAGHER, EXECUTIVE DmECTOR, WESTERN
NEW YORK ALCOHOL AND DRUG DEPENDENCY SERVICES;
FRANK FALKOWSKI, COO, WESTERN NEW YORK VETERANS
HOUSING COALITION, INC.; AND LINDA BOONE, EXECUTIVE
DIRECTOR, NATIONAL COALITION FOR HOMELESS VETER-
ANS
STATEMENT OF JOAN SULEWSKI
Ms. SULEWSKI. Chairman Quinn, Ranking Member Evans and
Representative LaFalce, on behalf of Chairman Quinn's Veterans
Advisory Committee, I'd like to welcome you to Buffalo and thank
you for bringing this warm weather.
We have been asked on the Veterans Advisory Board to review
H.R. 3039 and provide some comments. You have a lot of witnesses
so I will be brief.
Let me begin by saying that whatever the reason there is that
a veteran is homeless, that is no reason to tum your back on him
or her. Right here in Buffalo, there are estimated up to 2,500
homeless veterans. Let me also add that at least 5 percent of these
are women veterans. They come with additional needs, usually
children. Oftentimes the children have to be placed in foster homes
for homeless women.
Despite the efforts of the VA, the Department of Labor and social
agencies, the number of homelessness, of homeless veterans, is not
decreasing. So we must find new ways in which to solve this prob-
lem, to put a roof over their head, to help these people get back
on their feet.
H.R. 3039 is a bold attempt to leverage all the sources of funds
with very little risk to the Federal Government. It is in the
leveraging of resources that ultimate success lies. Each resource
standing alone cannot hope to meet the challenge of homelessness.
But by bringing public and private capital together and managing
them in a way that focuses on an integrated treatment model that
stresses personal responsibility, the chances of success must im-
prove.
Mr. Chairman, the important thing is that we try. Your bill puts
the burden of proof where it should be-the local experts in serving
the homeless. The flexibility H.R. 3039 provides will allow local
people to design programs in a manner best suited to the needs
and resources of the local homeless veteran population. By provid-
ing a cap on the number of programs, the bill will force potential
providers to compete for VA's guarantee. I know that Bill Lyons,
next to me, will be testifying as a banker and will provide you with
some insights on the business aspect of the bill.
We commend the focus on using free market forces to add to the
services available to our homeless veterans, and the concept of self-
sustaining operations or even those that make a reasonable profit
is novel and we support that concept. If the motivation of a small
 8
profit helps take our veterans off the street and addresses the
cause of their homelessness, like alcoholism or addiction, where is
the problem? Would we rather see them wandering the streets be-
cause there are not sufficient resources through appropriations?
Mr. Chairman, this is a good bill. It promises to serve our veter-
ans in an innovative way, and we thank you for bringing it to our
attention and for helping our homeless veterans.
Mr. QUINN. Thank you, Joan. Thanks very much. We're going to
begin, if it's okay with the panel, this panel, with David Dollner's
testimony, our left and your right, and work our way down the
table. David, thanks for being with us.
STATEMENT OF DAVID H. DOLLNER
Mr. DOLLNER. Thank you, Congressman Quinn, Ranking Member
Evans and Congressman LaFalce for inviting me here today. On
behalf of Governor George Pataki and Acting Commissioner James
Dillon, I commend you for holding this hearing that focuses on
Transitional Housing for Veterans. My name is David Dollner, and
I am the State Veterans Program Administrator for the New York
State Department of Labor.
While homelessness in America has become fairly well docu-
mented in the 1990's and the statistics vary greatly, there is a gen-
eral consensus that the problem is growing. Over a third of all
homeless are veterans and most of the studies show the over-
whelming preponderance of these are combat veterans.
Here in New York we just completed a Summit on Services to
Veterans with the particular emphasis on Vietnam Theater veter-
ans. The summit was sponsored jointly by the U.S. Department of
Labor Veterans Employment and Training Service and the New
York State Department of Labor. This summit was prompted by a
startling 14 percent increase over the past 3 years m the number
of Vietnam theater veterans applying for employment services at
New York State Department of Labor Community Service Centers.
The VA reported a similar increase in Vietnam vets applying for
services at their Vet Centers. The summit focused on four main
areas of concern: Employment, homelessness, incarceration and pa-
role, medical and mental health.
Several issues were identified by the homeless work group. One
of the more significant involves the need for more transitional
housing, which this bill addresses. The New York State Depart-
ment of Labor certainly supports the requirement that residents
seek and obtain employment and maintain sobriety.
Passage of H.R. 3039 will lead to veterans earning their own in-
come, employers utilizing available work force skills and local
economies receiving increased benefits from veteran spending.
The New York State Department of Labor supports placing veter-
ans into jobs to reduce unemployment and VA inpatient rolls which
may be related to homelessness. It is also recommended, however,
that a stronger linkage to VA Health Care Administration be incor-
porated by requiring veteran applicants to enroll in Veterans Ad-
ministration Health care as well as with employment services in-
cluding the U.S. Department of Labor, Veterans Employment and
Training Service, with either the Disabled Outreach Program Spe-
cialist or Local Veterans Employment Representative in a State
 9
Employment Office, more commonly referred to as the DVOPILVER
programs within the Department of Labor. Also the Homeless Vet-
eran Reintegration Program, the Job Training Partnership, Act and
others.
Cost savings appreciated by the VA could be invested in its Na-
tional Servicemans Life Insurance policy reserves to build trust
funds via the GNMA mortgage backed securities. The bottom line
benefit would help protect against private investors defaulting on
loans used to undertake the construction of the multiple family vet-
erans housing projects.
Allow me to comment for a moment on the issue of transpor-
tation availability as it relates to commuting to and from the work
site. Veterans and the community of non veterans alike, who are
otherwise job ready, face some significant challenges in obtaining
inexpensive public transportation. Good jobs are not always located
on the bus routes, and bussing is virtually unavailable in most of
our rural areas around the country. Developing a reliable, inexpen-
sive means of public transportation is a critical need in this coun-
try that must be addressed on a national level. Securing private
means of transportation, i.e. a car, with the rising costs of vehicle
purchase, insurance premiums and maintenance, is almost cost
prohibitive to the unemployed or homeless veteran.
The Department of Labor can provide job counselling and assist
with the Job placement process while the veteran receives VA out-
patient services, if required. However, veterans need transitional or
temporary housing within commuting distance to their work site
and reliable transportation to get there.
Therefore, all of these services must be integrated. Housing, em-
ployment and training and transportation.
Given the access to affordable stable living conditions in partner-
ship with State job services and reliable, affordable transportation,
veterans can be expected to successfully transition from a state of
homelessness to achieving responsible self-supporting lives.
If we fail to closely integrate anyone of these, I'm afraid the re-
sult will only be a band-aid approach. Thank you very much for
your attention and consideration.
[The prepared statement of Mr. Dollner appears on p. 44.]
Mr. QUINN. Thank you, David. Thanks very much. Mary Lee
Sulkowski is here from our Buffalo VA Vet Center, and you have
the floor. Thanks for coming.
STATEMENT OF MARY LEE SULKOWSKI
Ms. SULKOWSKI. Thank you, Congressman Quinn. The Buffalo
Vet Center appreciates the opportunity to present testimony to this
committee. I am Mary Lee Sulkowski, Team Leader of the Vet Cen-
ter, and a Vietnam veteran.
As a Navy nurse, I cared for both members of the Marine Corps
and also some of the Army. .
The Buffalo Vet Center is one of 206 in the Veterans Health Ad-
ministration Readjustment Counselling Service, and one of four in
Veterans Integrated Service Network 2. We :provide a wide range
of readjustment counselling services, includmg individual group
and family, case management and brokering of services, employ-
ment and benefits counselling, to a wide range of veterans.
 10
The Vet Center program with 18 years in the business of out-
reach to veterans have staff who are specially skilled to do the com-
munity outreach essential for making contact with homeless vets
and to provide direct counselling, evaluation and referral to other
VA facilities.
In our work with veterans herein Western New York, I think
we're quite fortunate to be part of an extensive collaborative net-
work of services, such as the VA Western New York Health Care
System and specifically the VA Health Care for Homeless Veterans
program. Numerous community not for profit programs, and spe-
cifically for veterans our State of the art western New York Veter-
ans Housing Coalition, which has some 19 transitional housing
beds. In Niagara County there is the COPIN Foundation, a resi-
dence for veterans with PTSD. And you will hear, and hopefully
we'll hear from most of these representatives today.
The network does work together to the advantage of the home-
less vet who has a variety of needs. But the Buffalo Vet Center
would like to present some information to tell you what we see as
the needs of the Vet Center and what transitional means to our
veterans. .
The reality as I will describe it is that there are only 19 veteran
specific transitional housing beds in Erie County as we know the
situation, not nearly enough. There is no emergency transitional
veterans housing, and there is no emergency family veteran transi-
tional housing. Veterans in need of temporary transitional housing
come from a variety of life situations, and the ones I will describe
are all situations that we have worked with over the past year.
A veteran newly arrived from another city, looking for work and
a place to live. He may be alone or with a family. Transitional
housing provides a stable base from which to reconstruct one's life.
There is no emergency transitional vet shelter for such a vet.
Now, I realize this issue of emergency housing isn't quite the
focus of this bill, but I'm still going to tell you how extreme a need
it is for our veterans. A single bed in Buffalo basically has the op-
tion of a small sectarian shelter which is almost always full, or the
City Mission, which is a large beleaguered city shelter for men with
little screening, and many of the problems with violence and avail-
able drugs that are the dilemma of large city shelters everywhere.
There is no veterans emergency transitional housing for a vet
and his family. The veteran with a family competes for space in the
one small sectarian family shelter, or splits his family up. A vet-
eran evicted from an apartment or living arrangement with a fam-
ily member for various reasons. A veteran recently divorced or
downsized, perhaps downsized from the military, with resulting
loss of residence. Transitional housing prevents further deteriora-
tion and supports outpatient treatment and employment services.
Such a veteran will not meet the criteria for the homeless program
as we understand it, if not homeless for 30 days, and thus not be
a candidate for the limited transitional housing that vets do have
available, until they reach that 30 days of homelessness.
We believe adequate appropriate transitional housing needs to
work on a continuum. A continuum of shelters, sta~es and services.
Otherwise, with breaks in services or lack of sel'Vlces, the vet can
fall through the safety net into a chronic cycle. The first and prob-
 11
ably most vital step on such a continuum is emergency transitional
shelter, from which to screen the veteran, consider further re-
sources and options and develop a plan,.
We have veterans in transition from one kind of treatment pro-
gram awaiting admission to another program who need a period of
transitional housing, as well as veterans who have completed a
structured program and need transitional and supportive services.
For example, a sober vet who has successfully completed treat-
ment, or successfully completed a PI'SD program who has no home
or stable environment to return to. An unstable, unsuitable living
arrangement is invariably destructive to recovery efforts. Transi-
tional housing supports continuing treatment gains initiated in
treatment programs. And the VA has recently opened a new resi-
dential program at the hospital for veterans who are involved in in-
tensive alcohol treatment.
A veteran-and last, and also a very important need, a veteran
released from incarceration with a vocational or educational plan.
In our current situation, such a veteran would probably go to the
City Mission. An unstable and unsuitable living arrangement is in-
variably destructive to vocational and educational plans, designed
to give the veteran a fresh start. And transitional housing would
provide a stable base and avoid the risk of recidivism. By defini-
tion, transitional is change, and change always involves some de-
greeof psychological stress. For the types of vets I have described,
stress associated with not having a home base, a safe, supportive
environment increases the stress level and stress related problems,
and can effectively sabotage the best of goals.
Veterans who suffer from war relatedlroblems are likely to feel
alienated, distressful, unappreciated an hyper vigilant. Living in
a clean, safe environment with clear and understandable rules with
other veterans does much to address these issues.
Transitional housing specifically for veterans helps the demor-
alized person and homelessness is certainly demoralizing, helps
such an individual to have a starting point of pride, for his or her
service in the military. And also provides a ready made sense of
community. And thus is greatly preferable to transitional housing
for the general popUlation.
We are describing homeless men and women, veterans who have
served their country peacetime and wartime. Consider the facts.
While only 10 percent of our population are veterans, 30 to 50 per-
cent of our homeless population consists of veterans. And I have
seen studies which quote the 50 ~rcent figure. Don't we have an
obligation to provide veteran speClfic and veteran focused housing.
It certainly appears that our Vet Center experience in the com-
munity supports the need for a flexible continuum of care which
can address a variety of transitional and other unique needs of the
local veteran community. Thank you.
Mr. QUINN. Thank you, Mary Lee. Yes? John?
Mr. LAFALCE. I have that 11 o'clock dental ap:pointment, so I just
want to apologize. I'm going to have to get gomg. I showed it to
counsel. I broke a tooth, by the way, in case anybody had any
doubts about it.
Two comments. Number one, our next witness is going to be Bill
Lyons, and Bill and I were talking earlier, and we came to a una-
 12
nimity of opinion, that Canisius will kill Sienna this year. [Laugh-
ter.]
Secondly, I saw that Joe Ryan just came into the room, a great
champion of veterans' rights. And I don't know if he received any-
thing in the mail yesterday.
Mr. RYAN. He did, Congressman. Thank you very much.
Mr. LAFALCE. I just had the honor of nominating his great son,
Sean, to the U.S. Military Academy. [Applause.]
Mr. QUINN. Thank you, John. Bill Lyons.
STATEMENT OF WILLIAM LYONS
Mr. LYONS. Thank you, John. Congressman Quinn, Congressman
Evans and my own District Congressman LaFalce, who is on his
way out the door to get more pain than hearing my testimony.
First and foremost, Jack, I have a ticket with your name on it
for Wednesday, February 4, at the Canisius College Koessler Cen-
ter, where we will again prevail over Sienna as we did in Albany
this time, by eight points.
Mr. QUINN. Well, I'm outnumbered here today, but I'll take you
up on the ticket.
Mr. LYONS. I'm going to be commenting on this bill from three
perspectives. First, I've been an active member of the volunteer
community in Buffalo for a long time in a variety of housing issues.
I'm going to share from my direct experiences in that capacity. Sec-
ond, as a member of the local banking community, I will speak to
the frequent use of loan guarantees and how they have a positive
impact for the banking community and the general community.
And finally, I will speak as a Vietnam veteran and the son of a Ma-
rine vet from the Second World War.
I'm going to address how this bill can insure the repayment of
the debt we owe to all those who serve their nation in combat.
First, let me share from my experience in our community as an ac-
tivist in housing rehabilitation. In 1975 I was elected as the first
treasurer of Buffalo Neighborhoods Housing Servi~es . NHS began
in Pittsburgh and has grown into a nationally recognized program.
NHS took a concept that began with the FHA in the 1930's and
expanded by the VA in the 1940's and 1950's. That concept was
partnership.
Both the FHA and the VA were in partnership with the financial
community providing the funding for millions of Americans to own
their own home. NHS built upon that partnership. The private sec-
tor worked with the Federal Government to solve problems. NHS
added the community to that partnership.
H.R. 3039 expands the participation to address another commu-
nity issue. We all know we have homeless veterans in the commu-
nity. We also know we have lots of good quality community based
groups in our community and we have banks that need to meet
their fiduciary responsibilities as well as their responsibilities
under the Community Reinvestment Act. H.R. 3039 facilitates the
formation of those new partnerships.
Two other community groups that I'm familiar with who have
also built partnershirs, the Western New York Veterans Housing
Coalition and Alcoho and Drug Dependency Services. The Housing
Coalition has taken old and new buildings and created affordable
 13
drug and alcohol free quality housing for low income physically
challenged veterans and non-veterans in our community.
I know that Frank Falkowski will speak to the challenges faced
by the coalition and the need for more housing. I will always
remember Frank's disbelief when he moved some of our residents
into our first project. The conditions they came from were
subhuman.
The Housing Coalition is looking to provide more units and H.R.
3039 is a perfect solution. By providing loan guarantees the Hous-
ing Coalition can buy and build additional drug and alcohol free
units to house homeless vets. Since it was founded the coalition has
utilized a variety of city, State and Federal pro~ams. Private sec-
tor financing including tax credit packages, Imes of credit and
equipment loans have been used to finance their projects. H.R.
3039 'i s a workable simple solution that brings together an estab-
lished community group, the financial community and the VA, fo-
cused on getting homeless veterans off the street.
ADDS serves a unique population. For many, the Erie County
Rehabilitation Center IS the last house on the street. It provides
one last Opportunity to tum around a life impaired by drug and al-
cohol abuse. This facility takes the homeless that have been dev-
astated by alcohol and drug abuse arid provides shelter and treat-
ment. Many of the residents are veterans. In addition to the rehab
center, the agency also operates a men's and women's halfway
house. These two community residences provide drug and alcohol
free environments. Again, many of the residents are veterans. Dick
Gallagher, Executive Director of ADDS, will speak about the vet-
eran population that the agency serves and their needs. I know
ADDS recently acquired title to the men's residence, and H.R. 3039
is a perfect solution to fund the acquisition and repairs. ADDS is
a community based agency experienced in serving the population
that H.R. 3039 targets. ADDS, through its Kids Escaping Drugs
program, have demonstrated that local partnerships work. ADDS
built an adolescent community facility and a long term residence
by combining the efforts of State, the agency, the banks in this
community. H.R. 3039 gives the agency the opportunity to continue
in building on that partnership with the local banking community
and the homeless veteran population. H.R. 3039 will provide drug
and alcohol free living conditions to allow the homeless veteran the
opportunity to recover and to return as an active contributing
member of our society.
From the banking perspective, I've been at this racket 25 years
now. When I got back from Nam in 1972 I began my career, and
I've been very fortunate that my career has allowed me to serve my
community in many capacities. As I noted, I was with NHS in the
beginning and I've been active with the Housing Coalition and
ADDS. In all of those capacities I was able to utilize my skills to
help fund projects. Federal loan guarantee programs, whether it's
the FHA, the VA or the SBA, and many others have been very suc-
cessful as part of nurturing community partnerships. Home owner-
ship, the growth of small business, and for many, our educations
were funded by Federal loan guarantee programs. The potential
with H.R. 3039 for safe, secure, clean and drug and alcohol free
housing for the homeless vet is significant. H.R. 3039 frankly gives
 14
my bank an excellent opportunity to work with community based
non-profit agencies. It meets both my fiduciary responsibilities and
my CRA responsibilities.
I mentioned earlier two community based groups that are looking
to provide quality living conditions for the homeless vets. I can tell
you that with H.R. 3039 I can provide them with the loans that
will allow these non-profits to develop the housing we need. Hous-
ing that is not only safe, clean and affordable, but also drug and
alcohol free. My sincerest hope is that someday a vet will move
from housing created by H.R. 3039, will be in my office looking for
an SBA loan or a loan to grow a business or for a VA loan to buy
his first house.
Let me close by letting you know that I grew up as the son of
a decorated Marine. And I was privileged to serve in Nam myself.
It is my obligation and our obligation to provide opportunities. We
must provide opportunities for hope for a future, in some cases for
a dignified farewell. The partnerships that will be created by H.R.
3039 help fulfill that obligation. Quality living conditions for the
homeless veteran will be a direct result of H.R. 3039. I can tell you
today, if this bill becomes law, I know of two non profit agencies
and one bank that will be in line to get our guarantees.
I want to thank you for this opportunity. I also want to thank
you for your vision. The Veterans Affairs Committee has always
been a wonderful advocate for all veterans, especially for those that
defended our country and for a variety of reasons can't defend
themselves. I congratulate you for your forward thinking. It's been
a real pleasure to be here this morning.
[The prepared statement of Mr. Lyons appears on p. 47.1
Mr. QUINN. Thank you, Bill, and let us also thank you for your
work over the years for veterans and the community at large.
You're a great person to have here, and we're lucky.
Dick Gallagher is the Executive Director of Western New York
Alcohol and Drug Dependency Services, does a lot of great work,
not only with our veterans but with other parts of our community,
and we're happy you've joined us this morning, Dick.
STATEMENT OF RICHARD GALLAGHER
Mr. GALLAGHER. Thank you, Congressman Quinn, Congressman
Evans and Distinguished Guest. My name is Dick Gallagher, Exec-
utive Director of Alcohol and Drug Dependency Services, and it's
an agency that operates seven programs for alcoholics and sub-
stance abusers. And it includes a continuum of care for adolescents
and adults, both boys and girls and men and women.
I support the passage of H.R. 3039. H.R. 3039 will provide home-
less veterans the opportunity to be engaged in treatment for their
addictions.
ADDS has served a homeless population for the past 20 years,
including, providing services to homeless veterans. Overall 31 per-
cent of the veterans we treated in 1996 and 1997 were homeless,
and 63 percent of the homeless veterans were under the age of 45.
We can take a veteran who is homeless, comes into a crisis center,
can go into our inpatient rehabilitation program for 60 days, and
then can go to one of our community residences, Ivy House for
 15
men, Casa Di Vita for women, for 6 to 9 months in the hopes of
their ability to continue their recovery.
What we do need is more services, both in transitional housing
and in residences. When you take a look at the problems that we
encounter in attempting to get these residence; the first is sighting,
the second is operational funding and the third is financing. From
a practical standpoint, this bill would make it much easier to se-
cure loans to operate programs and provide transitional housing
and services for homeless veterans.
For example, sites may be identified by providers such as an
agency like ADDS, but attempting to secure loans can be extremely
frustrating because the lenders many times are hesitant to loan
monies, particularly to non-profit agencies who have no track
record as far as being able to repay those loans. Offering VA loans
guarantees will help immensely to increase the number of veterans
served and to assist them in their recovery.
I appreciate the opportunity of providing this testimony, your
commitment to veterans and I believe and support Bill Lyons'
statement that, should this become law and funds be available,
that we would partner with the government, partner with the lend-
ing institutions, to continue our efforts to service homeless
veterans.
[The prepared statement of Mr. Gallagher appears on p. 105.1
Mr. QUINN. Thank you, Dick. Thanks very much. And I think
that's one of the things we're trying to flush out here today, some-
thing we already knew was going on in the community, but I think
we need to give you the tools to do it better and to do more of it,
and to maybe let people know what's already going on and do some
more of it. Thanks for all the work you do here.
Frank Falkowski, thanks for joining us early, early this morning
and having your facility over at the Stratford Arms ready and will-
ing tv have some strangers show up early in the morning, and your
residents and other staff worker today for treating us like royalty
this morning. We deeply appreciate it the same way that you treat
the folks who live there. And you may begin your testimony, Frank.
STATEMENT OF FRANK FALKOWSKI
Mr. FALKOWSKI. Thank you, Congressman. Dear Mr. Chairman
and Members of the Subcommittee on Benefits:
I am Frank J. Falkowski, Chief Operating Officer of the Western
New York Veterans' Housing Coalition, Inc. Thank you for the op-
portunity to speak on behalf of our veteran population here in
Western New York and to express my views regarding the Veter-
ans Transitional Housing Opportunities Act of 1997.
On a personal note, I want to point out that I am not just an
advocate for veterans, but a disabled veteran of the Vietnam War,
who for the past 10 years has worked in the housing development
arena.
In May of 1990, our agency provided testimony before the Veter-
ans' Affairs Subcommittee on Oversight and Investigations regard-
ing homelessness among our veteran population. It is most unfortu-
nate that we must continue to address this staple issue area that
still impacts those who served when their country called.
 16
Since that testimony, our Board of Directors have focused on the
need for "Special Needs" housing and housing related services for
low income, physically challenged and disadvantaged veterans.
Through innovative partnerships with community resources and
a major private sector developer, the Western New York Veterans
Housing Coalition now provides housing and case management pro-
gram services to veterans who might otherwise face homelessness
or prolonged hospital stays and nursing home stays because they
are unable to find accessible and affordable housing.
The Coalition has completed $7.2 million in new development
since 1993 and is currently in discussion with our local Veterans
Administration Medical Center to develop and operate transitional
housing, using underutilized space at VA facilities.
Before commenting on H.R. 3039 I believe it is important to un-
derstand some of the common denominators that influence our
agency's approach to permanent and transitional housing in West-
ern New York.
First of all, we believe the term "transitional housing" no longer
is associated with only homeless veterans who have drug and alco-
hol problems. There must be an intentional focus of and special at-
tention on and consideration for veteran transitional housing of
special populations such as veterans' families with children, the el-
derly and the mentally and physically challenged.
Also, New York has approximately 1.5 million veterans of which
36.6 percent are over 65 years of age. Also, the Department of Vet-
erans Affairs estimates that approximately 20 percent of their in-
patients are homeless or facing homelessness due to the lack of af-
fordable and accessible housing.
Cuts made in the New York State budget for mental health serv-
ices continue to impact our region. The problem is exacerbated
when combined with reductions in preventive homelessness pro-
grams and housing. You combine these factors with the lack of cap-
ital and private sector financial commitment to develop transitional
housing, and you will find a formula that creates added stress on
the community system.
The Veterans Administration's Homeless and Drug/Alcohol Pro-
gram per diem contracts have reduced the lengths of stay for veter-
ans from 6 months to 2 months. Other programs provide only shel-
ter and are available on a limited short term basis. The amount of
time allotted to bring a veteran from homelessness to independent
living is woefully deficient. A need does exist to provide step 1 and
step 2 approaches to a transitional housing concept that would ab-
sorb the reduction in contract stay and lower the "revolving door
syndrome".
Emergency shelters provide an immediate need, but long and
short term transitional housing provides the continuum of care
needed to return a veteran to mainstream society by providing
them transitional housing and linking them to relevant community
resources.
In theory, H.R. 3039 could be an excellent conduit for developing
and maximizing resources for innovative partnerships and new
ventures which would increase housing and employment opportuni-
ties to underserved veterans. It certainly would be cost effective al-
 17
temative to housing hold over inpatients who cannot find afford-
able and accessible housing.
I see this bill not as a panacea to the challenge of providing this
housing, but as a tool that could ensure that the needs of our
homeless veterans continue to be served while providing the need-
ed housing at significantly lower costs.
First and foremost, this bill must be deployed to accommodate
new veteran housing initiatives now and in the future.
Secondly, it must demonstrate that new strategic initiatives in
veteran housing will better position the VA to increase their shar-
ing agreements with their local communities. We all know that cur-
rently the Department of Veterans Affairs is going through major
strategic planning initiatives and cost cutting reductions that are
attempting to meet the needs of its veterans at reduced funding
levels.
H.R. 3039 could be an excellent way to open doors in the lending
community. It is my opinion that financial lending institutions
could do more relative to their CRA mandate in assisting veterans
or veteran service agencies. The NIMBY experience, "not in my
back yard", is not limited just to our community and neighborhood
associations. H.R. 3039 could impact on this barrier.
The authorization of this bill to provide ~aranteed commercial
loans for homeless housing and investing eXlsting reserves in high-
er yielding securities is a sound one, provided we do not slip to the
junk bond status from 20 years ago. For this demonstration to be
successful, we must be very careful about the potential risks of
partnerships that do not exercise discipline and do not give real es-
tate risk as much consideration as social policy.
The bill looks for local and State assistance at a time when re-
sources are scarce and special interest competition in preferred re-
gions is extremely high. A proper balance m the financing compo-
nent will be necessary to cover this. It may be worth considermg
a set-aside of the proposed VA fund for use in operations. There is
still some money, both Federal and State, to build or rehabilitate
housing, including tax credits. Operating money really is the most
difficult to obtain now for those of us who are service providers.
I remain behind the curve on a couple things on the bill, and I
hope that today's testimony will flush out the cloudiness that
exists.
We need to ask ourselves, will priority be given to those develop-
ments whose parameters include utilization of under-used VA fa-
cilities and Department of Defense real estate from military base
closings? Development of transitional housin~ in the vicinity of our
VAMC's would prove valuable and cost effectIve. It would strength-
en linkages between veterans currently in our programs.
We must ask ourselves, will veterans who are eligible for this
housing and who have never participated in the VA Health Care
System have full and complete access and be able to participate in
eligibility screening at theIr local VA?
I believe that in time the VA will be 100 percent Medicare ap-
proved, thus increasing new income streams and new partnerships,
which can and could be utilized for operations and thus free up ad-
ditional monies for new constructions or the rehabilitation of exist-
ing facilities for transitional housing.
 18
Though questions have been raised, I believe that H.R. 3039 will
go a long way in leveraging funds that will not only fulfill the basic
needs for shelter but also play a vital role in the reintegration of
our veteran homeless population.
It will serve the commitment to maintaining the capacity of vet-
erans special needs programs. It will provide better utilization of
resources and foster closer working and therapeutic relationships
with our respective communities.
In closing, the right service could be provided in a most appro-
priate setting without compromising the quality of care to those
who served and sacrificed for their country.
Thank you, Mr. Chairman.
[The prepared statement of Mr. Falkowski appears on p. 51.1
Mr. QUINN. Thank you, Frank. We appreciate your testimony
and your input over the years. And I just said to Michael Brink
here, our staff from Washington, DC, this probably goes for all of
our witnesses today, not only this panel, but panels that follow. I
have a feeling we may be calling on some of you for some advice
once we get back into session and Lane and I sort of struggle with
where we get our votes and how we put this together. But your ad-
vice will be very, very important to us, all of you.
Linda, thanks again for coming from Washington and for being
with us this morning. You may begin.
STATEMENT OF LINDA BOONE
Ms. BOONE. Mr. Chairman, on behalf of the National Coalition
for Homeless Veterans, NCHV, I thank for you for the opportunity
to present our views here today. NCHV salutes your vision and
leadership in joining with The Honorable Bob Stump, Chairman of
the Committee on Veterans' Affairs, to introduce H.R. 3039. This
legislation, when enacted, will expand the vitally needed supply of
transitional housing for homeless veterans. Moreover, it will do so
without reliance on appropriated funds by means of investing exist-
ing reserves of the National Life Insurance Trust Fund with vir-
tually no increased risk to the fund.
NCHV enthusiastically supports H.R. 3039 as a creative and yet
thoroughly prudent approach that will help meet the increasing
needs for transitional housing for veterans.
In order for transitional housing for homeless veterans to be suc-
cessful, NCHV believes that there must be five key elements
present in the community.
First, there must be one or more real estate assets suitable and
potentially available at a cost effective rate for this purpose.
Two, there must be available adequate clinical support from the
Veterans Administration medical system and the community.
Three, there must be access to entry level jobs and proper sup-
port to assist veterans to sustain such employment.
Four, in a given community there must be a strong community
commitment and resources to support an organization with a good
record of performance to create transitional housing for veterans.
And five, there must be adequate long term permanent and af-
fordable financin~ available.
Many communIties have the first four of the key elements, but
lack the crucial fifth element, affordable capital financing. H.R.
 19
3039 would help provide such financing in some communities that
lack access to the capital funds at an affordable rate.
NCHV believes that the mechanism created by this act woUld
create an additional 5,000 beds in long term transitional housing
for homeless veterans in the next 5 years. This estimate of 5,000
beds is based on the experience of LA VETS in the renovation and
construction of this type of housing units that woUld be created by
this proposed authority.
The provisions of If.R. 3039 in regard to requiring that projects
finance pursuant to this new authority require veteran residents to
maintain sobriety, charge a reasonable rental fee, provide support-
ive services and counselling, and requirin~ the veteran resident to
obtain and keep employment or engage m education or training
program designed to lead to employment, are all requirements that
NCHV supports.
NCHV believes that forcing veterans to pay rent and keep active
helps those residents reestablish personal responsibility, pride and
self-esteem necessary to successfully recover-and their successful
recovel'Y_ and reintegration into mainstream society.
NCHV does, however, support adding a provision that would
allow each facility to grant a waiver on the requirement for em-
ployment in a limited number of cases for veterans who are perma-
nently and totally disabled.
NCHV members and others express the need for safe, clean,
sober housing for veterans as being one of the most pressing needs
in their efforts to assist veterans, if indeed not the most pressing
need. NCHV believes that the need for such housing is accelerating
as a result of both the shift of the delivery of health care service
by the Veterans Administration from inpatient to outpatient mod-
els of service delivery, as well as the system-wide pressures on the
VA to save money. '
The outpatient delivery of neuro-psychiatric care, including sub-
stance abuse treatment, treatment for Post Traumatic Stress Dis-
order, and other psychiatric services becomes a real problem for
veterans who do not have safe, clean, sober housing.
NCHV has much antidotal evidence to indicate that the dimin-
ishment or virtual elimination of adequate quality substance abuse
treatment and other neuro-psychiatric treatment services is a sig-
nificant problem in virtually every major city. In some cases, the
inpatient resources devoted to these purposes have not been shifted
to the delivery of similar services on an outpatient basis. In other
cases, the lack of safe, clean, sober housing for veterans while in
outpatient treatment or participating in partial hospitalization pro-
grams destroys any effectiveness that treatment might provide to-
ward rehabilitation and recovery of the homeless veterans affected.
In regard to the pressure of each VA Medical Center to save
money and more carefully husband their resources, NCHV draws
your attention to data collected and analyzed by Dr. Jeffrey Wil-
kins, M.D., the Medical Director of the Comprehensive Homeless
Center at the West Los Angeles VA Medical Center. This data
shows that over the course of one year, the Westside Residence
Hall project of LA VETS demonstrates $14 to $16 million dollars
cost avoidance savings to the West Los Angeles VA Medical Center.
This has been accomplished through decreased inpatient stays in
 20
the medical center. These are dollars not being spent on hospital
care for the year after leaving Westside.
NCHV would contend that the availability of capital funds was
the key ingredient in achieving this success story given that the
other four ingredients for a successful project were present in this
community. There are many other cities that have a concentration
of homeless veterans and very low income veterans at risk of being
homeless who are in vital need of transitional housing. Many of
these cities will be able to achieve positive results similar to that
of Los Angeles when capital financing at an affordable rate is lever-
aged by virtue of the authority created by H.R. 3039 and where
HUD continuum of care funds will provide supporting services for
veterans in that community.
NCHV thanks you for your leadership on this issue as well as
your strong leadership in general toward better meeting the vital
needs of America's veterans. Thank you.
[The prepared statement of Ms. Boone appears on p. 61.]
Mr. QUINN. Thank you, Linda. Thanks very much. Thank you all
for your testimony. If you can stay for a few minutes, I know I have
a couple of questions. And Lane has a few, just technical kinds of
things, I think, and more advice, counsel and comments and sug-
gestions from you all.
Just before I start out with my first question, I want to take a
commercial break for just a second. You all know these hearings
are, happen without a flaw, but that's because a lot of people put
a lot of work into them. And our staff from Washington is here. But
my staff, who Y.JU might or might not know, many of you here are
from Buffalo. I just want you to get to know who they are and that
they work for me. In case you have some serious questions, you can
ask them. And if you have some serious complaints, Sandy, you can
go to them, or Mr. LaFalce, if you have to.
Mark Dunford is with my staff. Mark has been here for probably
a little bit over a year with us. Sean O'Neil is here, and John
Gossel from my staff. The three of them did a fabulous job putting
the thing together, and we thank you, gentlemen, for doing a good
job. [Applause.]
Mary Lee, you talked about-I always learn something when we
have these things. I learned an awful lot just from the first panel.
I think you said in your testimony, and I have it written in front
of me somewhere, but just, help me out here, that there are 19 fa-
cilities-beds now, and in terms of emergency situations, none. Can
you talk about that a little bit.
Ms. SULKOWSKI. Well, none specifically focused for veterans.
Now, that's my understanding of the situation, that there just are
19 available through the Western New York Veterans Housing Co-
alition, and that these beds are tied in with two VA programs, the
substance abuse program and t~e homeless program, which gives
them a good access, but on the other hand restricts other access for
other kinds of veterans who aren't specifically in those programs.
Mr. QUINN. Sure.
Ms. SULKOWSKI. But 19 simply isn't enough.
Mr. QUINN. Sure. Right.
Ms. SULKOWSKI. It simply isn't enough. And I think the emer-
gency situation is what we're frequently confronted with at the
 21
Vets Center, when people call us and they're on the verge of home-
lessness--
Mr. QUINN. Right.
Ms. SULKOWSKI (continuing). Or in some kind of transition.
Mr. QUINN. Talk about-I mean, we visited with a family this
morning. Gentleman found himself homeless and his wife was
pregnant with their first baby. Frank, can you help us with those
numbers? Is it 19?
Mr . FALKOWSKI. Well, we have had a homeless contract arrange-
ment in relationship with the VA since 1990. We were up to 15
beds and just recently increased our bed capacity to 19. But that's
with solely veterans that are referred from the contract programs.
We do have a couple units set aside. Of course, I wouldn't want my
funding sources to know about this.
Mr. QUINN. Then don't say it.
Mr. FALKOWSKI. But, but that is a problem. Mary Lee makes a
really great point. We on many occasions house veterans on an
emergency situation at our own expense until we can get them into
the system. And that is one of the flaws, especially the one that
she pointed out about having to be homeless for 30 days. We're also
aware of-before you can get into the program.
We're also aware that at the PTSD program in Batavia, which
is a fine, fine program, that they are also having problems refer-
ring the veterans to housing, and that in some cases, that I have
observed myself personally, veterans after going through an inten-
sive case management and PTSD rehab graduate, accomplish so
much and then find themselves going home with other veterans to
stay because they cannot find accessible housing. And this is some-
thing that we're trying to address with our local VA officials rel-
ative to utilizing the unutilized space. But emergency housing,
that's a very big issue.
Mr. QUINN. And our job, as Lane and I said this morning, at
least from Washington's point of view, is to give you all the experts
here in the local municipalities, places, the tools to do your job as
best you can. Thank you. Lane.
Mr. EVANS. Thank you, Mr. Chairman. First I'd like to start out
by commenting that I don't know of any community that has such
strong private sector support for these programs. Maybe we need
more Vietnam veterans as vice presidents of banks. [Applause.]
Mr. QUINN. Good idea.
Mr. EVANS. I appreciate that. At least it makes you wonder how
we might be able to duplicate these pro~ams. Do we have that-
is it something particular to Buffalo that s occurred? I mean, I just
haven't seen such a coalition come together.
Mr. LYONS. Well, actually my involvement started when I worked
for a Marine Corps vet from the Second World War, Ray
Manuszewski at Manufacturers Hanover, and he said, you go out
and to this Neighborhood Housing Services thing, and I said, yes,
sir. And that's where it started.
Mr. EVANS. But while we have the benefit of this coalition here
together, could you all tell us what we might need in the legislation
that might help us more specifically with yroviding services. Mary
Lee you talked about using the VA Medica Centers. We know that
there has been a real problem for indigent veterans who need
 22
emergency care. Are those services available here locally through
the hospital?
Ms. SULKOWSKI. In terms of the vet being able to access medical
care at the hospital?
Mr. EVANS. For emergency care.
Ms. SULKOWSKI. Yes, yes, they are. And I think you will hear
about the homeless program the VA runs. And also that homeless
program sends outreach workers into the shelters regularly to ac-
cess these veterans and help them make that link, as does the Vet
Center help them make this link. But yes, that seems to work more
smoother with time, I think.
Mr. EVANS. Are there any other services that you could add to
this legislation that might be helpful here locally?
Ms. SULKOWSKI. Well, I think we'd be doing great to get what we
presented here today, particularly the whole idea of a continuum
of services I think is really crucial. I think there's a lot of pieces
in place, and there is a collaborative effort to share and work to-
gether. But when you have a continuum set up shelter, those serv-
ices can come together more readily, I think.
Mr. EVANS. Have you tried standdowns here and if you have
what successes have you had with that?
Ms. SULKOWSKI. I don't know of one in the time that I've been
back in Buffalo.
Mr. FALKOWSKI. Congressman, there has been a standdown held
by the Rochester area. In fact, one of the representatives from
Rochester, Jeannie Mulford is here. She can maybe answer that
question. But we're looking to do a standdown here, hopefully next
year.
Mr. EVANS. I'd be interested in knowing how that progresses.
Mr. FALKOWSKI. Sure.
Mr. EVANS. Maybe come back, if at all possible.
Mr. FALKOWSKI. Well, we have the luxury of having Robert
VanCuren, who you well know, from the San Diego vets who start-
ed the standdown, working at the Canandaigua VA Health Care
System, and working with our VISN 2 network very closely. An
outstanding individual. And we are having conversations about
putting the standdown together.
Mr. EVANS. You might say, for people who aren't familiar with
the concept, this attempts in a day or a weekend to provide with
a variety of services, from legal services that a veteran might need,
to getting a haircut or dental appointment, things of that nature.
Mr. FALKOWSKI. Well, if you're talking continuum of care, that's
a great example of a total continuum of care process.
Mr. EVANS. All right. Thank you, Mr. Chairman.
Mr. QUINN. Thank you, Lane. Frank, while you have the micro-
phone, I was interested, if you couldn't comment a little further on
the point that you made in terms of the six month stay as opposed
to the two month stay. Now, certainly after what we saw firsthand
this morning, and what we know to be a fact and what we know
to be necessary in terms of services, we were at 6 months, we're
at 2 months. How did it get there, what do we need, why is it not
long enough, what can we do to change all that? Can you help us
a little?
 23
Mr. FALKOWSKI. Well, the 6 months program that we've been uti-
lizing with the VA's per diem contracts over the last 7 years has
been working very well. I think that is in part because while we
were doing this contract with the VA and servicing homeless veter-
ans, we were building buildings. So as fast as we were building
them, we were getting these individuals put into permanent
housing.
Another key that has worked for us is the coalition won--{)r not
won, but received a grant from the Shelter Plus Care Program,
which is a HUD program, for $600,000 and some odd thousand dol-
lars, giving us 36 shelter plus care Section 8's for homeless. And
we've been able to utilize those and leverage those in our commu-
nity. And that runs out in the year 2000.
Given those formulas, we've been able to extend and work with
the veteran beyond the 6 months. Now because of the Federal
budget cuts and the VA cuts coming down from Washington, the
contract programs have now been reduced to 2 months. We have
taken action as an agency to, given the fact and the reality of that,
to expand. And we're in the process of trying to open up an addi-
tional 10 units of housing called Patriot House, which is kind of the
Oxford House concept of independent living, with intensive case
management assigned to it.
Mr. QUINN. Here in Buffalo?
Mr. FALKOWSKI. Here in Buffalo, yes. We're working on that
project right now. In fact, we just submitted a grant at a 4 o'clock
deadline yesterday with the City of Buffalo for emergency shelter
funds.
But if we did not have those things available to us, after the 2
months, unless these people are given a Section 8 from our local
Rental Assistance Center or the County, or provided a BOSH,
which is a great tool that the VA has for Section 8, or they utilize
our Shelter Plus Care vouchers, they really do not have the means
or have not had the time to save money to put their money down
for a security deposit and buy furniture, and things of that nature.
Mr. QUINN. Well, excuse me, Frank. Not only that, but I mean,
to ask somebody in 2 months to maybe tum their life around, not
only is it to save money for down payments, for security deposits,
for furniture, but if there are other circumstances, whether it's, you
know, Dick Gallagher, you talked about it this morning, the alco-
hol, any number of things, 2 months is, doesn't seem to me to-
you're the experts in this, not me. But I mean, I guess my question,
I don't want to take all of your time here this morning, but is there
anything, and I'll ask our staff, maybe we can't answer it today, is
there anything that we can do in H.R. 3039 to address this two
month versus six month situation? Frank?
Mr. FALKOWSKI. My feeling, Congressman, is that it does. If we
can provide the additional transitional housing without putting
time limits.
Mr. QUINN. Right.
Mr. FALKOWSKI. And of course, it's a case by case situation. Then
I think we will impact the veteran's life, as far as turning it around
and preventing the revolving door syndrome.
 24
Mr. QUINN. Yes. Well, we're going to take all the information and
do some-that would concern me. Lane, I'm sorry. Thank you,
Frank and Mary Lee. .
Mr. EVANS. I may have some other questions I'll just submit in
writing, and ask the witness to answer and then put those in the
record as well. Okay?
Mr. QUINN. I'm sure everybody would. Okay. Listen, from Lane
and I, John LaFalce and everybody else, you've given us a lot of
time this morning. We appreciate all your input. We'll be back to
you for some questions later. And I know Lane and I both want to
wish you a happy holiday season and a Merry Christmas.
Well take about a 5 minute break and change panels. Thank
you.
[Recess.J
Mr. QUINN. Mr. Gil Solly, S-O-L-L-Y, is he here this morning?
Mr. ANGRISANO. I'm looking for him, but I haven't seen him.
Mr. QUINN. You haven't seen him. Well, I'll tell you what, Paul.
If you're looking for him, youll find him. If he's going to be found,
you'll be the one to find him. It's good to see you again, Paul.
Our second panel, which we'll begin, deals with our veterans' or-
ganizations and representatives of them. And we started from the
left the last time. We're probably all set now. You all ran to that
side of the table. So well probably start from the other end of the
table today and mention everybody who's here.
Peter Mazzarella, of course, from the VFW and also a member
of my local Veterans Advisory Panel here today, since day one,
Pete. Thanks for your help locally, and the work that you do na-
tionally. Paul Agrisano, from the Vietnam Veterans of America. We
saw you last time I was here in the building, couple of, couple of
months ago.
Dennis Fink is from the Friends of Cazenovia Manor, and asked
to join us this morning, and he's here.
Martin Bugaj, the AMVETS First Vice Commander, Department
of New York. Whereabouts from New York?
Mr. BUGAJ. Buffalo.
Mr. QUINN. Oh, really. That's even better. So you know all about
this beef on weck I've been telling Lane Evans about, right?
Mr. BUGAJ. If he hasn't gone out and got some, we'll get him
some.
Mr. QUINN. Thanks a million. John Sampson, the Chairman of
the Rehab Commission of the American Legion. Welcome.
Mr. SAMPSON. Thank you.
Mr. QUINN. And Commander Sergeant Major Gary Flaherty, Non
Commissioned Officers Association. Thanks for being with us this
morning.
We just want to quickly repeat, so we don't hold anybody here
past the lunch hour, of course, we want to sort of finish up in time
for that. If you could limit your verbal comments to about 5 min-
utes or so. We of course have your written testimony, it becomes
part of the record, and then it will save some time for questions
maybe from Congressman Evans and myself. Peter, why don't you
start us off.
 25
STATEMENTS OF PETER G. MAZZARELLA. VFW PAST STATE
COMMANDER, DEPARTMENT OF NEW YORK; PAUL
ANGRISANO, VIETNAM VETERANS OF AMERICA; DENNIS
FINK, EXECUTIVE DIRECTOR, FRIENDS OF CAZENOVIA
MANOR, INC.; MARTIN BUGAJ, AMVETS FIRST VICE COM
MANDER, DEPARTMENT OF NEW YORK; JOHN B. SAMPSON,
CHAIRMAN, REHABILITATION COMMISSION, THE AMERICAN
LEGION; AND COMMAND SERGEANT MAJOR GARY
FLAHERTY, NON COMMISSIONED OFFICERS ASSOCIATION
STATEMENT OF PETER G. MAZZARELLA
Mr. MAzZARELLA. Congressman Quinn, with your kind permis
sion, I'd like to extend a cordial welcome to all former Marines and
those who wish they were.
Mr. QUINN. Does that include Dennis Cullinan, too? He's here in
the back, from Washington, DC.
Mr. MAzZARELLA. Well, he was our ferrying branch of the service.
Mr. QUINN. Okay. Thanks, Pete.
Mr. MAzZARELLA. On behalf of the over 100,000 members of the
VFW Department of New York, and indeed all of this nation's vet-
erans, I thank. you for inviting our participation in today's most im
portant legislative hearing. The legislation under discussion today,
H.R. 3039, introduced by Chairman Stump together with yourself
and Representatives Evans and Filner, addresses an issue that
both defies ready solution while posing a most serious ethical prob
lem-homelessness among this nation's veterans.
It has been estimated that somewhere around a third of our
homeless population is comprised of veterans. Many of these indi-
viduals served in combat theaters. These are the men and women
who bore great hardship and risked their very lives in defense of
our freedom. There may be no doubt that the very rigor of their
service and horrors that they witnessed pushed many of them to
the bottom of the economic ladder and into the plight of homeless-
ness. They are often homeless as a direct consequence of their mili-
tary experience. Even so, this great nation has yet to answer the
need ofthose.who served her so valiantly.
As we all know, the solution to this problem is far from easy.
Along with other problems too numerous to mention, the sheer cost
associated with properly addressing the tragedy of homelessness is
staggering. The fact that H.R. 3039 will provide essential multi-
family transitional housing-by authorizing VA guaranteed loans
to appropriate non-profit organizations, for homeless veterans with-
out reliance on appropriated dollars is truly advantageous in light
of the VA:s frugal funding levels. Traditional housing is essential
towards allowing homeless individuals to bridge the emotional,
educational and psychological chasm that separates the streets
from civil society.
I would emphasize here, however, that while we generally sup-
port using alternative funding streams to bolster VA, these dollars
must be used to enhance veterans' programs and entitlements and
not serve as a substitute for full aperopriations support. It is the
Federal Government that is responslble for fulfilling our national
debt of gratitude to our former defenders in their time of need, not
the private sector. The bill under discussion today is a strong and
 26
innovative step in addressing the tragedy of homeless veterans but
does not represent the sole course to be pursued in reaching a com-
plete solution.
With respect to rehabilitation, the VFW applauds the language
in H.R. 3039 requiring participating residents in the program to
maintain sobriety and seek employment. It is only in this way that
such individuals may recapture a sense of self-worth while render-
ing themselves economically viable. We also support this bill's pro-
vision that requires participating non-profit housing providers to
work closely with VA as well as State and local authorities in this
enterprise. It only makes sense to share knowledge and expertise
while avoiding wasting precious resources on overlapping or dupli-
cative services. In the end, homelessness is a national problem, a
problem that may only be resolved by all elements of this great so-
ciety working together as a whole.
Mr. Chairman, in closing, I'll cite that famous Italian patriot,
Abraham Linguini, stand up and be seen, speak out and be heard,
and sit down and be appreciated. This concludes my statement.
Once again, I think you on behalf of the men and women of the
Veterans of Foreign Wars for today's hearing, and your strong and
proactive position in addressing this most difficult and compelling
issue. Thank you.
[The prepared statement of Mr. Mazzarella appears on p. 69.]
Mr. QUINN. Thank you, Peter. Thanks very much. Paul.
STATEMENT OF PAUL ANGRISANO
Mr. ANGRISANO. Thank you, Mr. Chairman. Mr. Chairman and
members of the subcommittee, Vietnam Veterans of America is
pleased to present our views and recommendations on H.R. 3039,
the Veterans Transitional Housing Opportunities Act of 1997. On
behalf of our more than 50,000 Vietnam War veterans whom we
represent, we are pleased to offer our strong support for this inno-
vative and needed legislation. We congratulate subcommittee chair-
man Quinn for holding this important hearing in Buffalo And we
wish to recognize and commend Chairman Bob Stump for his out-
standing leadership as the original sponsor of the Veterans Transi-
tional Housing Opportunities Act of 1997.
This authorization, when enacted into law, will meet the unmet
need to provide cost effective fully repayable loans for qualified
non-profit sponsors such as Veteran Service Organizations in Buf-
falo and other Western New York communities, to obtain mortgage
and construction financing, to develop, renovate or lease housing
with supportive services for homeless veterans. While VA already
has a program to provide home loan guarantees for veterans it
lacks the legal authority to help veterans who are homeless with
housing needs. That gap would be closed by making it possible for
VA to also guarantee such loans.
Veterans, especially male veterans, make up the largest percent-
age of the homeless population in America today. Yet they receive
less than 5 percent of the available McKinney Act funds directly
through VA related service programs annually.
The Department of Housing and Urban Development administers
more than $1 billion for McKinney Act homeless appropriated
funds each year. Admitting by its own computations that veterans
 27
approximate 30 to 50 percent of the entire homeless population in
America, HUD approves less than 3 percent of its dollars for veter-
ans specific homeless housing and services. We think that fair
minded Americans will strongly agree that it is past time to assure
that a minimum, a fair and proportional one-third share, should be
made available to meet this need.
Recent surveys conducted by the VA and the International Union
Gospel Missions and other organizations conclude that between
270,000 to as high as 300,00 men and women military service vet-
erans are poor and homeless in any given day or night nationwide.
Compounding matters, Social Security disability and SSI payments
for 135,000 substance abusers have been ordered. A point of infor-
mation, I believe that after the word ordered, there should be in-
serted the word terminated. This has already contributed to the in-
crease in homelessness among veterans.
The legislative proposal being considered by this subcommittee
and the subject of today's hearing, when incorporated with other
positive changes made by the inclusion of much stronger pro-vet-
eran requirements to the HUDlMcKinney Act reauthorization bill,
will help to assure a fair share of funding for homeless veterans
programs and services in New York and Western New York.
Mr. Chairman, in our part of New York State, including the 30th
Congressional District, over 4 million veterans reside.
In Erie County we have more than 103,000 men and women vet-
erans in our population count.
We also want to make sure that Niagara Falls, the community
in Niagara Falls and Copin House are included in any decisions
that are going to be made on this bill.
Of this total 63,286 veterans live in the 30th Congressional Dis-
trict. Based on estimated need, at least one third or 20,000 are now
or will end up on the streets without homes or jobs.
It is important to make the point that while VA spends over
$229 million dollars per year for all veterans programs and serv-
ices, in Erie County almost none of these VA expenditures are
made available for any housing or services needed for veterans in
the area who are homeless.
The VA is not, nor was it ever intended to be able to meet the
specialized needs of homelessness. And the Housing and Urban De-
velopment program as the lead agency also does not reach this
need. It is essential to make, now make it possible for VA to meet
their obligations to help veterans who find themselves homeless. As
we believe that H.R. 3039 is modest and prudent step in giving VA
some most needed authority to help on a national and local level.
Mr. Chairman, I respectfully ask for permission to include a let-
ter from VVA National President George Duggins to the Honorable
Bob Stump, dated July 30, 1997, to be made part of my written
statement. Our letter contains our formal endorsement and support
of the Veterans Transitional Housing Opportunities Act of 1997.
The letter reflects our views and belief that this approach is a very
safe and budget neutral method to assure that the most appro-
priate and effective housing and supportive services will be tested
by VA.
(See p. 76.)
 28
Mr. ANORISANO. We are also pleased that sound protections are
provided by this bill to assure that the safety and availability for
the Veterans Life Insurance funds, when it is to be pledged as loan
guarantees for the purposes of this Act.
We urge the committee and the Congress to move favorably and
expeditiously to make this bill become law prior to the end of the
session of the 105th Congress.
And in closing, we would also like to make note that Copin
House has not been included in any of the statements today, and
we believe that that should have been done. Copin House is the
only homeless veterans program in Niagara County and needs sup-
port. They've been active since 1984. Hopefully we can continue to
operate, and with the approval of these laws, we can gain assist-
ance for the veterans in Niagara County.
Mr. Chairman, VVA very much appreciates the opportunity to
present our views in support of H.R. 3039 and I will be pleased to
answer any questions you or the committee may have. Thank you
for allowing me to be of service to you.
Mr. QUINN. Paul, thanks for your help this morning.
Mr. ANORISANO. You're welcome, sir.
Mr. QUINN. And without objection, your request to have your let-
ter submitted as part of the record is approved. And we're not
going to take questions now but just-or, ask questions. When we
get finished, my first question will be to you, and I'm going to ask
for just a 2 or 3 minute summary of Copin House for Lane's bene-
fit. They are not here today. We will ask them to submit written
testimony, and we'll conduct a meeting with our staff here after-
wards.
Mr. ANORISANO. Mr. Chairman, point of information.
Mr. QUINN. Sure.
Mr. ANORISANO. The Director and the Administrative Advisor of
Copin House are present this morning.
Mr. QUINN. That's great. Terrific. Okay. Dennis Fink is with us,
the Executive Director of Friends of Cazenovia Manor, Inc. And
you may proceed.
STATEMENT OF DENNIS FINK
Ms. FINK. Good morning, Chairman Quinn and colleagues. My
name is Dennis Fink. I'm the Executive Director of Friends of
Cazenovia Manor, Inc. I am also a Vietnam veteran, decorated and
disabled combat veteran. How I arrived at this position, I won't go
into it.
I'm very familiar with Post Traumatic Stress Disorder, but more
importantly, let me talk about my agency. My agency currently op-
erates 127 beds in the Western New York region. Back in 1989, we
began a program of treatment, to shelter houseless Vietnam veter-
ans and other populations, and also offered specialized group thera-
pies of the Post Traumatic Stress Disorder.
I initially brought to Erie County's Medical Center and developed
the first, which I am very proud of, the first Post Traumatic Stress
Disorder group for all veterans. We found Korean War veterans
and many of the other veterans suffered from the same symptoma-
tology.
 29
We currently have in residence five staff who have gone through
our system, and currently have degrees, and were of the homeless
veteran variety.
Your bill H.R. 3039 fits exactly in the direction we're headed be-
cause we may be obtaining approval for a women's and children's
program, and also a program on Sycamore Street in Buffalo, which
could be used as housing for homeless veterans that have sub-
stance abuse anellor other mental health disorders. I think the key
piece is, we are also licensed to do business through the Office of
Alcoholism and Substance Abuse so we may provide services.
I believe at this point, the most important thing to bring to your
attention is, I've heard many people talk about the continuum of
care. We have a true continuum of care. In our system, we have
what is known as an intensive rehabilitation program, halfway
houses, and supportive living. There was a question earlier about
time, 2 months, 3 months, 4 months.
Well, our system, the way it operates and how we found it espe-
cially beneficial for the Vietnam combat vets, was simply this. We
would send them to the highest structure of care, which would be
our intensive rehabilitation program out in Eden, NY, and as they
progressed, case by case, we would then move them in closer to
Buffalo into our halfway house, which is a less intensive environ-
ment, and then after that, into sober apartment living, which we
still have control over and call it our supportive living. At all levels
there is counselling, abstinence from all chemicals, and then from
there they graduate, with jobs hopefully, into independent living so
they can go on and be productive members of society.
So this is what I have to offer today. Sean and I got kind of con-
fused. I'm happy to be here. This something that is a dream for me.
I can't say enough about people who are helping the Vietnam veter-
ans. It's a very difficult population because of the Post Traumatic
Stress Disorder that's involved, which exacerbates the alcoholism
and the substance abuse and things of that nature. It's the revolv-
ing door type thing. But in our particular system, we can almost
keep them for about 2 years. And it really does, in most cases, it's
very productive. It's very productive.
A gentleman yesterday at the Christmas party I was at, sought
me out. He's a Vietnam veteran. It didn't seem that he was going
to do real well, but he finally made it. He went through our inten-
sive level of care, halfway house, and supportive living. He's living
in supportive living. He's now going to college. He'd like to be a
counsellor. And at 47 years old, he brought me his test examina-
tions for my Christmas present, from college.
Mr. QUINN. Great. Nice Christmas present.
Mr. FINK. So thank you for your time. We can offer the contin-
uum of care, and we may even be able to help out in the women's
and children's arena.
[The prepared statement of Friends of Cazenovia Manor, Inc. ap-
pears on p. 82.]
Mr. QUINN. Thank you, Dennis. Thank you very much. We ap-
preciate it. Martin.
 30
STATEMENT OF MARTIN BUGAJ
Mr. BUGAJ. Chairman, members of the House Veterans Affairs
Subcommittee on Benefits. AMVETS thanks you for ~ving us the
opportunity to share our views on the Veterans Transltional Hous-
ing Opportunities Act of 1997. AMVETS applauds this innovative
idea to help our homeless veterans. While we support the idea and
approve of the demonstration project, we caution that the program
must be monitored closely. We would like to see clear goals and ob-
jectives set, so that the program can be properly assessed and ad-
justments made at the end of the demonstration. To have adequate
goals set, we must first understand some characteristics of the
homeless veterans.
About a third of the adult homeless population has served their
country in the armed services. On any given day, as many as
250,000 veterans are livin~ on the streets or in shelters, and per-
haps twice as many expenencehomelessness over the course of a
year. According to the VA, although veterans who served in combat
do not appear to face any higher risk of homelessness than those
without combat experience, the number of homeless veterans, most
of whom are Vietnam veterans todaYJ.is greater than the number
of U.S. soldiers who died during the vietnam War. The number of
the Desert Storm veterans is also increasing. Almost all homeless
veterans are male. About 2 percent are female. And the vast major-
ity are single. Homeless veterans tend to be older and more edu-
cated than homeless non-veterans. Only about 10 percent suffer
from Post Traumatic Stress Disorder, and roughly 40 percent are
African-American or Hispanic.
As you !IlllY_ know, when this idea was first broufht up for dis-
cussion, AMVETS opposed the funding mechanism 0 the bill. Since
then, changes have been made to make us more confident of the
project. We were a little apprehensive of the 100 percent guarantee
of the loans by the Department of Veterans Affairs. Now, the bill
states that the VA will only guarantee 90 percent of the loan. We
believe this amount will help dissuade organizations from trying to
take advantage of the program for their own profit.
Another of our concerns with the original idea was that VA is not
in the multi-family housing business. VA has no experience in
making loans to multi-family transitional housing projects, and we
were worried this program would be compromised. The current bill
directs the VA to obtain advice from a non-profit corporation with
experience in underwriting loans for transitional housing projects
in administering the program.
We are also supportive of the fact that the Secretary of the
Treasury will be the decision maker on how the National Service
Life Insurance Fund is invested. We believe that if the World War
II and Korean veterans were pr9perly informed on the facts of this
bill, they should not have a problem with the funding mechanisms.
It has been our experience that veterans helping veterans go a long
way with these older veterans. We see ourselves as stakeholders in
this demonstration project, and we would like to be kept apprised
of its progress or aI!ypossible problems that may surface.
In summary, AMVETS supports H.R. 3039, the Veterans Transi-
tional Housing Opportunities Act of 1997 demonstration project
under the following conditions:
 31
We set clear goals and objectives for this program.
Keep the VSO's apprised of any progress or problems.
After the three year demonstration, the project should be evalu-
ated and a clear decision made on whether this is a viable program
or not. We don't want to see it take on a life of its own and go on
for 10 years with no decisions or evaluations.
If done right, this program can be a winIwin situation for every-
one. I think it is very interesting that when writing this report I
,ran a spellcheck. Homelessness kept coming up and the computer
suggested the word, hopelessness and a replacement. This is very
telling. We need to help provide opportunities for our homeless so
they don't remain hopeless. We believe this program is a huge step
in the right direction.
Thank you for the opportunity to express our views on this bill.
[The 'prepared statement of Mr. Bugaj appears on p. 86.]
Mr. QUINN. Thank you, Martin, and the AMVETS view on all of
our work in Washington is always encouraged and appreciated all
the way through. I have a question about assessment when we fin-
ish.
From the American Legion, John Sampson. Would you like to
begin, John.
STATEMENT OF JOHN SAMPSON
Mr. SAMPSON. Mr. Chairman, the American Legion Department
of New York appreciates the opportunity to share its views on H.R.
3039. If enacted, the bill would authorize private sector develop-
ment of transitional housing for homeless veterans by offering VA
loan guarantees for these projects.
While some homeless veterans actively seek,VA's assistance and
enroll in VA inpatient recovery care programs to overcome their
problems, most veterans who have received care suffer a relapse
and remain homeless.
The American Le~on believes one of the major reasons for the
high rate, of relapse IS the lack of veteran-specific programs offering
both a safe residential environment and the appropriate support
services to allow them to continue therapy on an outpatient basis,
once their inpatient care is completed. Continued ouwatient care
is critical because it provides homeless veterans incentive to main-
tain sobriety, complete necessary job training and counselling, and
to find suitable employment.
Positive features of the bill include a continuum of care, which
re~uires residents to remain abstinent of alcohol and drugs. In ad-
dition, residents will be required to take responsibility for them-
selves by obtaining and holding employment and paying for a por-
tion of their care. This is a necessary and appropriate approach.
The American Legion Department of Pennsylvania runs three
homeless veterans transition homes for homeless veterans based on
these same principals and is currently in the process of acquiring
a fourth.
The American Legion Department of Pennsylvania and the local
VA Homeless Veterans Coordinator entered into a Memorandum of
Understanding. Under the guidelines of the Memorandum, the VA
refers veterans to the transition homes and is responsible for out-
patient medical care, alcohol and substance abuse counselling, as
 32
well as employment counselling and job training and placement. If
veterans VIOlate the rules of the program, they're asked to leave.
The program has a proven track record. Since the program's incep-
tion in 1987, 87 percent of the veterans who participated are no
longer homeless.
H.R. 3039 is necessary because until 1994 VA policy advocated
the fencing of funds for specialized outreach programs. VA policy
no longer advocates set-asides for these programs. In fact, many
VA staff for specialized outreach care are in the process of being
reassigned to primary care and other areas. This is especially true
in VISN 2, which includes the Greater Buffalo Metropolitan Area.
According to VA's 1997 Annual Report, Health Care for Homeless
Veterans Programs, data shows that in VISN 2, the number of new
homeless veterans evaluated dropped by 5.9 percent and the num-
ber of staff in specialized homeless programs dropped 7 percent. -
The American Legion has reason to believe the downward trend .
in VISN 2 will continue and we anxiously await next year's data.
The American Legion Department of New York would therefore
encourage the subcommittee to consider amending Section
3772(b)(1)(B) of the bill to actually mandate the providing of sup-
portive services and counselling services by the local VA Medical
Centers, Vets Centers and Employment and Training Service.
In addition, the subcommittee should consider expanding the bill
or inserting language that would make this program available for
homeless veterans with a spouse and/or dependents. In many in-
stances, these veterans and their families are homeless because of
downsizing of some type and only need temporary assistance until
they can secure decent employment and a new residence.
Lastly, more specific language should be used to address the fi-
nancial well being of the monies from the Life Insurance Trust
Fund. These funds should be invested in bonds rated no less than
investment grade by Standard and Poor's, Moody's Investors Serv-
ice and Fitch's Investment Service. Interest received should be
placed in a separate interest bearing trust fund after the amount
equal to the rate of return from investments in the U.S. Govern-
ment Securities has been returned to the Life Insurance Trust
Fund. Only revenue over and above that generated by the invest-
ments in the U.S. Government Securities should be used to guaran-
tee loans. These funds should be invested for at least 12 months
to generate the necessary funds for guarantees prior to any money
being loaned to support the program.
In conclusion, Mr. Chairman, the American Legion salutes you
and the subcommittee for your ongoing concern for America's veter-
ans, particularly homeless veterans. Again, thank you for offering
the opportunity to share the American Legion's views on H.R. 3039,
and the American Legion Department of New York fully supports
this important legislation. Thank you.
[The "prepared statement of Mr. Sampson appears on p. 90.)
Mr. QUINN. Thank you, John. Thanks for the advice and sugges-
tions. And I just talked with our staff here. In some cases, some
of the changes you suggest and others have suggested have been
made, and I think our best bet would be, after we return to Wash-
ington, to maybe respond to you in writing to point out what some
of those are. Those are great suggestions. Thank you.
 33
Mr. SAMPSON. Thank you.
Mr. QUINN. You're very welcome. From the Non Commissioned
Officers Association, Sergeant Major Flaherty.
Mr. FLAHERTY. Good morning, Mr. Chairman.
Mr. QUINN. Good morning. Thanks for coming.
STATEMENT OF CSM GARY FLAHERTY, USA (RET)
Mr. FLAHERTY. In consideration of time, I will highlight our testi-
mony because it's pretty extensive.
The Non Commissioned Officers Association of the United States
appreciates this opportunity to appear and present testimony at to-
day's hearing. We would like to thank the distinguished Chairman
for the invitation and salute you for holding this hearing on such
an important issue. NCOA is also grateful to Chairman Stump,
Representative Evans, and Filner and you, Mr. Quinn, for this
initiative.
We find it particularly important that you would take this time
of year, when most people are looking toward next Wednesday and
the holiday season to hold hearings on such an important issue.
As a professional non-commissioned officer, I always told my sol-
diers that a soldier is a soldier, and it doesn't make any difference
what color you are or what sex you are, that we all bleed the same
OD blood. And I feel the same about a veteran. A veteran is a vet-
eran no matter what their plight is, and we must take care of each
other.
H.R. 3039 is a good piece of legislation and we support the expe-
dition, consideration and passage of this bill. It is a responsible bill
that requires accountability, both from the borrower and the home-
less veteran participant. In this respect, Mr. Chairman, H.R. 3039
encompasses a great deal of common sense. Unlike too many other
government programs that throw federal appropriations at the
problem without affixing responsibility and accountability, H.R.
3039 does none of this. It's no secret the Non Commissioned Offi-
cers Association did not endorse the original draft of this measure.
In the beginning the Association had strong reservations about the
potential for liability and harm that could accrue to the NSLI fund
and thereby predominantly the World War II and Korean era vet-
erans that hold these policies. As a matter of longstanding prin-
ciple, the Association does not believe that any veteran program
should be used as a resource to fund other veterans programs.
As a result of continuous dialogue with you and your committee
staff since the initial discussion draft of the bill was circulated,
NCOA is now satisfied that H.R. 3039 as introduced minimizes the
potential harm to NSLI. In its current form, H.R. 3039 removes the
basis of our earlier objections, and to the maximum extent possible,
the Association now believes that the fund and policy holders are
protected.
The Association also believes that the parameters of the program
have been appropriately defined. In many respects, the Veterans
Transitional Housing Opportunities Act of 1997 is a demonstration
project that must prove itself.
As the AssociatIon understands the legislation, the goal of H.R.
3039 is not to provide moneymaking avenues for private sector en-
tities, although that opportunity exists. And it must be attractive
 34
enough to induce risk-takers. Rather, the aim of this legislation is
to help the homeless veteran with a goal of facilitating their return
to productive citizenship.
Mr. Chairman, NCOA fervently requests that we demand that
results and not lose sight of that objective. The other details of the
required annual audits notwithstanding, the bottom line must be
the program's success or failure in helping homeless veterans as-
sume and maintain personal independent responsibility for their
lives. If evidence is not persuasive during the first 3 years, this re-
sult is being achieved, the Non Commissioned Officers Association
asks that a serious evaluation be undertaken before further expan-
sion of the program.
Although private sector involvement will be substantial, the Vet-
erans Transitional Housing Opportunities is really a program of
veterans helping veterans.
Before I close, I would like to give you an example of how this
program can help someone on a personal nature. Back in October
in Albany we held a standdown program and we had nearly 200
people from the Capital District attend the stand down that were
homeless veterans or veterans in need.
We, my wife and I, were volunteers in doing an intake for the
program and one of the first people to come through was a gen-
tleman who had two teenaged children, no wife, and was living in
a car for 6 months. These are the kinds of people that can benefit
from such a program.
In closing, the Non Commissioned Officers Association again
thanks the distinguished Chairman for holding this hearing and
providing the Association the opportunity to express our views. We
strongly support the legislation and urge the subcommittee for a fa-
vorable report the bill to the House Committee on Veterans' M-
fairs. Thank you, sir.
[The prepared statement of Sergeant Major Flaherty appears on
p.94.]
Mr. QUINN. Thank you, Sergeant Major. Thank you all for your
suggestions and also, for the benefit of those here in the audience
or the next panel that have not been involved, it's typically, when-
ever a bill is offered in the House or the Senate, it's a work in mo-
tion. And we start with one bit of information and work through
it make some changes and amendments and with your input, hope-
. fully end up with a document that's hopeful, not hopeless, for ev-
erybody. We'll check that through spell check as well.
Just, I got to make a comment rather than a question to start
things off. I think one of the things that AMVETS mentioned, and
I've heard it, and it's a recurring concern throughout this, is that
we're not about trying to invent another bureaucracy, that we're
not out there trying to make matters worse. And I think that's a
legitimate concern. And I just want to assure everybody that that's
not what we're about here, as the last witness mentioned.
So I hope, and think, we're headed in the right direction in that
regard, but your comments are well-founded, and we ought to be
paying attention to that. Lane?
Mr. EVANS. This is just how we go about enacting legislation. So
I want to work with the Chairman as this proceeds. I don't know
what timetable you think we may be on, Jack, at this point.
 35
Mr. QUINN. In spring time.
Mr. EVANS So this is still an ongoing process and if other things
pop up that are concerns to, not only the individual VSO's that are
here, but to individual agencies and private citizens here, they
should let us know during this process.
A lot of you have mentioned the need for an audit. What we will
also do in the committee is conduct oversight once the legislation
is passed, to make sure it's been implemented in the ways that we
intended, and that you agreed to help support. So this is an ongo-
ing process.
Mr. QUINN. Good point.
Mr. EVANS. And we'1l be working with you.
Mr. QUINN. Good point.
Mr. EVANS. I just wanted to make sure everybody knows how
that works as well.
Mr. QUINN. Sure. Thanks, Lane, I appreciate that. We're told
that we're close on time here, and I'm going to sort of finish off our
panel here, and ask if our third panel, the Federal Government
representatives, could come down and thank the panel that's been
here today. Thank you very much.
[Discussion off the record.]
Mr. QUINN. Okay. Let's begin our third panel and thank-men-
tion to the second panel, those who are going to stay for a while,
there may be some written questions that we'1l submit to those
members of the second panel and request some written answers to,
but I think that's a given in most of these situations.
Peter Dougherty from Central Office of the VA has agreed to sort
of be our start-up witness here. I know that our Buffalonians, Bill
Feeley and Greg Mason, are here in this building, for Greg's pur-
poses, and at the VA Hospital for Bill's purposes, are here to an-
swer questions that we might have, more than necessarily testi-
mony. Jim, are you going to plan to make some remarks this morn-
. ?
mgf
Mr. HARTMAN. Yes.
Mr. QUINN. Okay. Peter, why don't we start with you.
Mr. DOUGHERTY. Thank you.
STATEMENTS OF PETER DOUGHERTY, VA CENTRAL OFFICE,
HOMELESS VETERANS PROGRAMS; BU FEELEY, ACTING
DIRECTOR, VA MEDICAL CENTER, BUFFALO; GREGORY
MASON, NEW YORK VETERANS AFFAIRS REGIONAL OFFICE;
AND JAMES H. HARTMAN, STATE DIRECTOR, NEW YORK VET-
ERANS EMPLOYMENT AND TRAINING
STATEMENT OF PETER DOUGHERTY
Mr. DOUGHERTY. Thank you, Mr. Chairman. It's indeed a great
pleasure for me to be here and to see you and Mr. Evans.
The Department of Veterans Affairs, as I believe you've been in-
formed, is not yet in a position to give our formal views regarding
H.R. 3039. We are in the process of making a thorough review of
that legislation. We promise you that we will respond as quickly as
we can and will give it great thoughtful consideration.
Mr. QUINN. We'1l give you about 45 minutes and expect you back
here-no, I'm only kidding.
 36
[Laughter .J
Mr. QUINN. kidding, only kidding.
Mr. DOUGHERTY. The Department of Veterans Affairs, Mr. Chair-
man, as you know, is the largest single provider of services to
homeless persons in the United States of America. We serve about
40,000 veterans annually through our programs.
We also would like to take a few moments with you this morning
to explore other things that the Department has done, other than
the proposed legislation, that we think has helped to enhance the
opportunities for homeless veterans in ways that did not exist a
number of years ago.
One is the Homeless Grant and Per Diem Program legislation
that I know you support and Mr. Evans worked very diligently on.
Even though this is a small program the Department has been
able, under the last 4 years, to award over 100 grants in 36 States
and the District of Columbia. That program has helped to create
over 1,700 transitional beds. It has provided service centers, mobile
medical clinics, with a whole variety of services. I think our formal
testimony, as you have seen, talks about some projects that have
occurred right here in Western New York.
It's a wonderful opportunity for us to come here because what
this program has done, in the three examples we cite here in West-
ern New York, there are three programs in place that are all dif-
ferent. And the reason for that is, the program that Congress au-
thorized gives the Department the opportunity to review competi-
tive proposals that meet the local needs and address it in a variety
of different ways. And it has been very good for us to do that.
The grant program is part of what we do, the per diem part, the
ongoing cost, if you will, helps to maintain those programs. One of
the things that we wanted to mention to you, more and more beds
are coming on line and we inspect the programs and find them per
diem eligible. There are over 500 beds of night care that are avail-
able for per diem reimbursement now. And one of the nice things
that we have found in this program is that up to 15 percent of the
beds that are out there, eligible for per diem, can service women
veterans. And about 5 percent of the beds that are occupied each
night are occupied by women veterans. Those are numbers that are
higher than the regular programs the department has in the num-
ber of women, by percentage, that we are serving, and we're glad
that these community partnerships have been very successful in
also getting women veterans an opportunity to be served.
We also have a program that Congress authorized which we have
labeled Project CHALENG for Veterans, which is really a commu-
nity assessment process, which requires medical center directors
and regional offices to meet with their communities at least annu-
ally, discuss what is going on, what is available for veterans, what
the unmet needs for veterans are, and to help to develop within
that veterans community, action plans. What we have found across
the country is that this has been the catalyst in many places, for
the needs of veterans to be addressed in a comprehensive way, and
for grant proposals, both for VNs own program as well as for HUD
funds. This has been a very good effort. We believe in the
';HALENG process, we ask that VA staff to participate in this, but
~ overwhelming variety of people are community people. They
 37
help to give us what the top unmet needs are. Not surprising to
this committee, long-term and transitional housing for homeless
veterans is always one of the top unmet needs that has been identi-
fied throughout the series of years that we report this information
to the Congress.
We, as I indicated, have two major programs; our Health Care
for Homeless Veterans program, and our Domiciliary Care for
Homeless Veterans program. I want to remind the committee, that
under the Health Care for Homeless Veterans program, which we
have here in Buffalo; we have over a hundred contracts with local
community service providers, as we do have here. We contract with
money that we have to provide local services outside of Medical
Center inpatient beds and programs, as well.
[The prepared statement of Mr. Dougherty appears on p. 100.]
Mr. QUINN. Excuse me for one second. While we're on that point;
with those hundred contracts that are out there, some of which are
here in Buffalo, are you able to point out to the hearing today, any
major problems with those, not necessarily here in Buffalo, but
general themes of how that system with the contracts out there,
isn't working as well, or things that we could do? And I'm not
thinking for us in this bill to overhaul anything, but if the~e is
some areas that we need to pay attention- to, as we continue to
work H.R. 3039, that information will be helpful now rather than
after. Can you do that?
Mr. DOUGHERTY. Right. One thing as you well know, the funds
that we had for these kinds of contracts used to have what we call
fences around them.
Mr. QUINN. Yes.
Mr. DOUGHERTY. And now they don't have fences, in the tradi-
tional sense. Administratively, we still have some fencing of that
funding. One of the concerns, I know, that many of the community
providers we work with is, as these funds become less fenced, are
we going to insure that those programs are going to continue to
have contract funds to serve homeless veterans.
Mr. QUINN. Yes. ' .
Mr. DOUGHERTY. Our experience with the contracts is, they have
been excellent. Across the N atiot:;Ll we have a high standard that we
look at to award contracts to tnose programs. The results have
been very good. The concern that we get from community service
providers is to make sure that funds are still going to be available,
and homeless veterans are not going to be forgotten, as we go
through the major changes in the delivery of health care services.
Mr. QUINN. Very good. Thanks for letting me interrupt. I appre-
ciate it.
Mr. DOUGHERTY. We also, and Congressman Evans had men-
tioned this before, participate in standdowns. The Department of
Veterans AffairS participates in literally hundreds of standdowns
across the country. We, as a department, have been collecting some
information over the last couple of years. It looks at the kinds of
services that standdowns have been able to offer.
As was mentioned by one of the previous witnesses, the concept
really began 10 years ago. It began with a group in San Diego, and
they had their 10th anniversary standdown this past summer. But
since that time, the process has grown, and it's really grown into
 38
a community organizing effort, and San Diego is the example of
how it began. Standdown is a 1 day or up to 3 day Veterans Assist-
ance event. As a result of what's occurred at standdown events, we
have found that communities have galvanized around the needs for
homeless veterans, and it worked on a plan. The Vietnam Veterans
of America at San Diego, for example, run a fairly large transi-
tional housing program. And other communities where this has
happened, they have found both the need to provide this event to
bring people to connect with the services, but then also have found
some roots in the community to provide ongoing services. So
standdowns have been a very positive thing that has occurred. The
Medical Centers and regional office staff and Vet Center people
have participated virtually in all of those.
We have found in a three year review of standdowns that we
could identify over 80,000 veterans and their family members have
participated in standdowns. It's a great community opportunity.
The Congress gave us authority a few years ago, to take fore-
closed properties and to offer them for sale at deep discounts and
to lease to homeless service providers. The information we have is
that there are about 124 properties that have come through that
program that either have been sold at deep discounts, or have been
leased to service providers. Sometimes these are appropriate and
the right kind of housing. This is a good opportunity and in many
communities they are a great opportunity for veterans service pro-
viders to have small programs in smaller communities. Com-
pensated Work Therapy is a great program the department offers.
It operates at over one hundred sites, including here in Buffalo. It's
a therapeutic work experience, but it gives that veteran, who gen-
erally has been homeless, the opportunity to come through a pro-
gram where he's had a bad work history in the past, to show that
he is responsible, can maintain employment, can do the kinds of
things that he needs to do to go back and work.
One of the things that we don't have in our formal testimony and
I don't have the current number, but about once a year the depart-
ment looks to see how many veterans who come through the home-
less programs are employed by the Department of Veterans Affairs.
Now, many of us might suggest that coming to the Department of
Veterans Affairs is not the employer of choice today, but we have
over 700 veterans, by the last count, who have come through the
homeless specific programs, who worked funtime for the Depart-
ment of Veterans Affairs. We're not talking about people who may
be on a therapeutic work assignment in a hospital or in a regional
office, but people who work full time at the VA.
Let me just briefly, if! can, Mr. Chairman; since there was some
discussion earlier about length of stay, I would like to add that as
in all health care services that we have delivered, the length of
stay in virtually all programs has gone down. The question of how
long the length of stay needs to be is one that we constantly try
to examine and scrutinize.
But I do want to indicate that my understanding is that there's
a 30-day sobriety period that one has to have before one goes into
a contract care facility, and then there's a 60-day contract. That
contract can be extended by up to another 30 days. Consequently,
 39
that clean and sober time, if you will, is up to 120 days. It's not
just 60 days and you're out.
The other part I want to make sure we understand is, we case
manage those veterans and there is a plan in place. We are not dis-
charging people and our intent is not to discharge people out onto
the street. We want to keep that continuum of care, link going.
Thank you. My colleagues and I will be happy to answer questions.
Mr. QUINN. Thanks very much. Jim Hartman is a federal rep-
resentative with the Department of Labor and in charge of the
State of New York as it relates to veterans employment and train-
ing. Sir.
STATEMENT OF JAMES R HARTMAN
Mr. HARTMAN. Thank you, Mr. Chairman. Thank you for this
special opportunity to address you and your distinguished col-
leagues regarding the Veterans Transition Housing Opportunities
Act of 1997.
I bring you warm regards from both our Secretary of Labor, Alex-
is Herman, and our recently confirmed Assistant Secretary for Vet-
erans Employment and Training, Espiridon, Al Borrego. And let me
also say, thank you for having this in Buffalo. You might not know
this, Mr. Chairman, but this is my home town also, and I was sorry
to see Congressman LaFalce leave because 26 years ago, boy, now
I know what my parents, when they said how time flies, it does fly,
but 26 years ago, I was Director of Buffalo State Veterans Affairs,
and at that time the war was still going on. And Congressman La-
Falce was perhaps our best champion on the hill in those days for
veterans' .benefits, and I am very happy to see that he's still in-
volved. Please give him my regards.
Mr. QUINN. And I'm very happy he's-I certainly will, and I'm
happy that he's a neighbor of mine here in Buffalo because he's
never once turned us down when we've had veterans' issues, never
once. Thanks.
Mr. HARTMAN. As it was mentioned by Dave DolIner from the
State Labor Department, recently the Veterans Employment and
Training Service sponsored a New York State summit on services
to Vietnam veterans. And just let me quickly stop and publicly
thank you and Congressman Evans for allowing Mike Brink and
Jill Cochran to come to our summit from Washington. They really
added a great deal, and as witness of that, by the time it was their
turn to eat lunch, they only had crumbs left because everybody
wanted to talk to them. So I really owe them a lunch.
Mr. QUINN. That's pretty much what he's getting today.
Mr. HARTMAN. The purpose of the summit was to ascertain why
there has been such a significant increase, 14 percent, in the num-
ber of Vietnam veterans registering for services with the Depart-
ment of Labor Job Service offices and the U.S. Department of Vet-
erans Affairs vet centers over the last 3 years.
The issues that were discussed in work shops were broken down
into four catchment areas; employment, homelessness, incarcer-
ation, parole, medical and mental health. Our complete summit
findings are still in the preparation stage, but there were two is-
sues identified that transcended all others.
 40
Number one, combat veterans appear to have more difficulty
than the general veterans population in the readjustment process,
and the readjustment process for combat veterans appears to be
ongoing, continuing long into their return to the civilian life.
Concerning the summit findings regarding our homeless veterans
population, once again, combat veterans face homelessness at a
greater rate than non-combat veterans. As evidence of this, and
Gary Flaherty touched upon this a bit, a homeless veterans
standdown was held in Albany just prior to the summit and we
found that over 50 percent of the homeless veterans that attended
were Vietnam theater combat veterans. Considering the fact that
non-combat veterans outnumber combat veterans in this State al-
most three to one, this is a very disturbing finding indeed.
The summit participants also addressed the issues regarding
housing for homeless veterans. Their ml\ior findings were: (1) there
is an overall lack of cooperation among local, county and city offi-
cials in acquiring sites for housing, (2) residential communities
balk at having transitional housin~ in their neighborhoods, (3) pro-
grams funded through grant momes are subject to funding cycles
that are often not timely in their appropriation process, resulting
in an on-again, off-again delivery system.
As evidence of the Department of the Labor's concern for home-
less veterans, the department this month awarded 12 bridge grants
to entities assisting homeless veterans, to see these groups through
the next competitive grant cycle. The grants totalled over $343,000.
A grant of $33,000 went to the Salvation Army in New York City.
And if you haven't had an opportunity to visit their Borden Avenue
veterans shelter, I strongly urge you to do so. It's just a tremen-
dous, tremendous program, and one of the things that I think
makes it so great is, as your bill discusses, sobriety. In that place,
if they find that you have alcohol on your breath or you're using
drugs, you're out on the street. The thing is, they have a 5,000
waiting list to get in there. So the veterans listen.
Mr. QUINN. Yes.
Mr. HARTMAN. As further evidence of the Department's concern,
the Department was successful in obtaining Congressional reau-
thorization for the Homeless Veterans Reintegration Project in the
amount of $3 million. Among several recommendations made by
the summit participants was a need for more private sector in-
volvement, both financially and through general support from em-
ployer groups. However, another key finding from our summit was
that many agencies and organizations providing services to veter-
ans need to improve communications, cooperation and coordination.
We believe that providing adequate housing for our homeless veter-
ans is without question the first step that needs to be taken, but
the process cannot end there. We must ensure that relationships
are established and maintained between those providing housing
and those who provide medical care, counselling, employment,
transportation, banking, et al. .
We in the Veterans Employment and Training Service are pre-
pared to play a major role in this process and remain available to
this committee to provide whatever assistance is necessary to help
our homeless veterans become once again productive members of
our society. And like our friends from the VA, I'm sure you're
 41
aware, Mr. Chairman, that the Federal Department of Labor has
not come out with a position statement on this bill as yet, but as
the State Director of Veterans Employment in New York, I will say
that, if it does get passed, I will be available to you to do anything
I possibly can.
Mr. QUINN. Thank you.
Mr. HARTMAN. Thank you very much.
[The prepared statement of Mr. Hartman appears on p. 102.]
Mr. QUINN. Thanks very much. Thank you both for your testi-
mony, and Bill and Greg both for being at the table for the pur-
poses of questions. I just, Mr. Dougherty, more of a general type
situation, we've sat, all of us, through lots of hearings in Washing-
ton about veterans and health care. Earlier on, one of our wit-
nesses talked about VISN 2, which is where we are here in the
Western New York, New York State area, we're VISN number 2 fer
our locality. Dr. Kaiser has met with us and met with me privately
a couple of times in Washington to talk about where all this is
headed, and I have a great aeal of respect for him and the work
that he's doing for us and for our veterans.
But, as we look at all of those changes in the health care field,
nationally, but then limiting it to veterans in the VA Hospitals, one
of which we have here in Buffalo, and it's a great one, I really am
concerned with our treatment of the homeless, knowing, you know,
here we are with H.R. 3039 trying to deal with the homeless, and
you've brought it up in your opening statement, which is maybe
why you're unable yet to commit one way or another. But it's more
of a concern than a question, but I would ask your comment on it.
As we're doing everything we're doing with health care, I mean,
talking about all of those things, is there any way, are we already
doing anything, can we do anything, to help you make certain that
our attention and our treatment of homeless veterans isn't lost in
the shuftle. I mean, we're spending a great 2 days here. Lane has
been great to give up his own time to visit a site this morning and
talk with Frank and his folks and we're having the hearing, you
all came here, you're testifying, it is the right thing to do. We all
agree. In that backdrop, is there anything you can recommend,
comment to make certain that this homeless issue stays where it
should be, and that's the forefront.
Mr. HARTMAN. Mr. Chairman, the-in the legislation you re-
cently passed, you require the Department to respond sort of de-
partment wide on all the efforts that we're making to assist home-
less veterans. We have done a lot to report on the domiciliary care
program, the CWT program, all those things sort of in individual
reports come in in blts and pieces. This is the first time the Depart-
ment is going to be asked to respond in a comprehensive way to
all the tliings that we do for homeless veterans. The one piece, ob-
viously, that is critical for us to monitor, unlike a lot of things that
we do in government, the homeless programs the VA has had, have
been monitored extensively from the very beginning. So we can tell
you pretty much where every dollar has gone and where every staff
position has been and who's doing what kind of work in this pro-
gram, in ways that we probably can't in many other areas in the
past. And so, I guess the-I appreciate the subcommittee's interest
in this, and I guess the vigilance of sort of what we do and making
 42
sure we're continuing to take care of those veterans as Congress
wants us to do, is-will be seen I guess when we report to you in
the spring. I think our intention is to sort of comprehensively re-
port to you probably in about April or by the 1st of May, this year,
on all the Department's efforts, and to sort of review that and
maybe slap this around a little.
Mr. QUINN. Okay. And short of a response right now, it's your
opinion that that kind of focus on homeless as we've asked for the
report and have given you enough time to res~ond, even extra time
to respond to H.R. 3039, in your opinion that s adequate enough to
keep the spotlight on it.
Mr. HARTMAN. Well, I think our reporting, if we don't change our
reporting systems, if we use the same kind of reporting systems
that we have now, our homeless programs on the health care side
have come out of our Northeast Program Evaluation Center out of
West Haven, that's a very detailed report.
Mr. QUINN. Yes.
Mr. HARTMAN. That tells us a lot of information about who the
person is when they come to us, what happens to them in the way
of treatment, the time, the length of stay, the treatment outcomes,
all those things, and the staff. We monitor that because we have
outliers, because we either don't have enough veterans being treat-
ed or we have-or you're doing well in your program given the
number of staff you have.
Mr. QUINN. Excuse me. We talk about a lot of those same kind
of numbers when we talk about employmen~
Mr. HARTMAN. Ri~ht.
Mr. QUINN (contmuing). With veterans. And we've held some
hearings on the Hill. I think Lane even organized one there, so I,
I appreciate your answer. We-some of that responsibility rests
with us, as well, members of the committee, subcommittee chair-
man, full committee ranking members. And I understand that. I
just want to make certain before we leave here today that we're
working together on this rather than at odds with it.
Mr. HARTMAN. Mr. Chairman, I'm pretty sure that we would be
more than happy to meet with the staff as reports first coming up
to you all and certainly would respond to the committee in any
way, once we do--
Mr. QUINN. Super. Super. And there's no reason for me not to
think that would happen. Thank you.
Mr. EVANS. Maybe following up on that same line of inquiry,
you've worked the Hill and you've worked in the Administration
now. You know, when we sent things up from the Hill, it's not al-
ways been implemented the way that we intended, particularly
sometimes in innovative areas, and I think this bill represents a
lot of new, innovative approaches here. I just hope that we'll have
strong central office support for what we do and don't hold up fund-
ing as we've seen in the past. Not when you were on the watch
over there, but in previous times. So if you'd give us that commit-
ment, we would appreciate it.
Mr. DOUGHERTY. Mr. Evans, one of the things I think homeless
programs have done is, long before I got there, is that they have
been an innovator in many things. For example, partnering with
the community, which is now a mainstay of what VA's health care
 43
system is about, in my view came as a result of what the homeless
initiatives. Having people out of the hospital, in the community,
working with non-profit groups and organizations, all that started
10 years ago with the homeless programs. So I'd like to think we've
been a leader within the Department of the things that we've been
able to do with the community. I haven't talked to the Secretary
designate, but I certainly know the deputy secretary's view about
this, and I know that there is at the top leadership level in the VA
a need to continue this program and to continue to serve these
veterans.
Mr. EVANS. All right. Thank you, thank you, Mr. Chairman.
Mr. QUINN. Thank you, Lane. I guess the key to that is, the rea-
son why a hearing today is critically important, is that we, we-
I, in Buffalo, and John LaFalce and Lane in his District, and all
over, make that connection between Washington, DC and locally.
You heard the first panel described as experts in their field, and
they are. When we have a chance to talk with the Frank
Falkowski's and the Mary Lee Sulkowski who know what's going
on, and to hear them say here this morning, they need flexibility,
they need for us to give them the tools to do their job better, or
as good as they possibly can, is the connect. I mean, that's, that's
what it's all about. And to hear those kinds of responses are en-
couraging to me. We stand ready to help you as best we can on the
hill, too, when we get back.
Mr. DOUGHERTY. Thank you, Mr. Chairman.
Mr. QUINN. Mr. Evans.
Mr. EVANS. No other questions, Mr. Chairman.
Mr. QUINN. Okay. Thanks to the third panel and those who are
with us here and stayed through almost the full morning here. We
appreciate all your input, and as Lane said, it's a work in progress
here, I suppose. Are there any other comments from you, Lane,
closing remarks?
Mr. EVANS. No, thank you.
Mr. QUINN. Okay. Then we're adjourned.
[Whereupon, at 12:30 p.m., the subcommittee was adjourned.]
 44

APPENDIX

TESTIMONY OF

DAVID V.H. DOLLNER

BEFORE THE

HOUSE VETERANS AFFAIRS COMMITTEE

ON BENEFITS

DECEMBER 18, 1997

Thank you Congressman Quinn for inviting me here today. On behalf of

Governor George Pataki and Acting Commissioner James Dillon, I

commend you for holding this hearing that focuses on Transitional Housing

for Veterans. My name is David Dollner, and I am the State Veterans

Program Administrator for the New York State Department of Labor.

Homelessness in America has become fairly well documented in the 90's.

While the statistics vary greatly, there is general consensus that the problem

is growing. Over a third of all homeless are ''veterans'', and most studies

show the overwhelming preponderance of these are "combat" veterans.

Here in New York, we just completed a Summit on Services to Veterans,

with particular emphasis on Vietnam Theater veterans. The summit was

sponsored jointly by the US Department of Labor Veterans' Employment

and Training Service and the New York State Department of Labor. This

summit was prompted by a startling 14% increase over the past three years

in the number of Vietnam Theater veterans applying for employment

services at New York State Department of Labor Community Service

Centers. The Veterans Administration (VA) reported a similar increase in

 45

Vietnam vets applying for services at their Vet Centers. The summit

focused on four main areas of concern:

Employment

Homelessness

IncarcerationIParole

MedicaVMental Health

Several issues were identified by the "Homeless" workgroup. One of the

more significant involves the need for more transitional housing. The New

York State Department of Labor certainly supports the requirement that

residents seek and obtain employment and maintain sobriety.

Passage of H.R. 3839 will lead to veterans earning their own income,

employers utilizing available workforce skills, and local economies

receiving increased benefits from veteran spending.

New York State Department of Labor supports placing veterans into jobs to

reduce unemployment and V.A. inpatient rolls which may be related to

homelessness. It is also recommended that a stronger linkage to V A Health

Care Administration be incorporated by requiring veteran applicants enroll

in Veterans Administration Health care as well as with employment services

including the US Department of Labor, Veterans Employment and Training

Service, in either the Disabled Outreach Program Specialist or Local

Veterans Employment Representative programs (DVOP/LVER), Homeless

Veteran ReIntegration Program, the Job Training Partnership Act, or others.

 46

Cost-savings appreciated by V.A. could be invested in its National

Servicemans Life Insurance policy reserves to build trust funds via

"GNMA" mortgage-backed securities. The bottom-line benefit would help

protect against private investors defaulting on loans to undertake

construction of the multiple-family veterans housing projects.

Allow me to comment on the issue of transportation availability as it relates

to commuting to and from the worlcsite. Veterans [and the community of

non-veterans, as well,) who are otherwise job-ready face significant

challenges in obtaining inexpensive public transportation. Industry is not

always located on the bus routes; and busing is virtually unavailable in

most rural areas. A reliable, inexpensive means of public transportation is a

critical need that must be addressed on a national level. Securing private

means of transportation i.e. - with rising costs of vehicle purchase,

insurance premiums and maintenanc~is almost always cost-prohibitive to

the unemployedlhomeless veteran.

Department of Labor can provide job counseling and assist with the job

placement process, while the veteran receives V.A. out-patient services, if

required. However, veterans need transitional or "temporary" housing

within commuting distance to their worlcsite.

Given access to affordable, stable living conditions in partnership with state

job services, veterans can be expected to successfully.transition from a state

of homelessness to achieving responsible, self-supporting lives .

. .

Thank you for your attention and consideration.

 47

Statement of William Lyons, Vice President, First National Bank

Jack Quinn
Chairman
Subcommittee on Benefits
Committee on Veterans' Affairs
U. S. House of Representatives

December 18, 1997

Dear Congressman Quinn, Members ofthe Committee, staff and to all

concerned with the plight of the homeless veteran.

We are here today to discuss H. R. 3039, the Veterans's Transitional Housing

Op'p ortunities Act of 1997. I will be commenting on this bill from three
perspectives. First, as an active member of the volunteer community in
Buffalo, I have been involved in a variety of housing initiatives. I will share
from my direct experiences in that capacity. Second as a member of our local
banking community, I will speak to the frequent use of loan guaranties and
how they have a positive impact for the banking community. Finally I will
speak as a Viet Nam veteran, and the son of a Marine Vet from WW II. I will
address how this bill can insure the repayment of the debt we all owe to those
that served their nation in combat.

COMMUNITY PERSPECTIVE

First let me share my experience in our community as an activist in housing

rehabilitation. In 1975 I was elected as the first treasurer of Buffalo
Neighborhood Housing Services, Inc.(NHS). NHS began in Pittsburgh and
has grown into a nationally recognized program. NHS took a concept that
began with the FHA in the 30's and expanded by the VA in the 40's and 50's.
The concept was partnership. Both the FHA and the VA were in partnership
with the financial community providing the funding for millions of Americans
to own their own bome. NHS built upon that partnership. The private sector
worked with the Federal Government to solve problems. NHS added the
community to that partnership. H. R. 3039 expands the partnership to
address another community issue. We know we have homeless veterans in the
community. We know we have nonprofit community-based groups in the
 48

community and we have banks that need to meet their fiduciary responsibility
as well as their responsibility under the Community Reinvestment Act. H. R.
3039 facilitates the formation of a new partnership.

Two other community groups that I am familiar with have also built
partnerships: The Western New York Veterans Housing Coalition,
Inc.(WNYVHC) and Alcohol and Drug Dependancy Services, Inc.(ADDS).
The housing coalition has taken old and new buildings and created
affordable drug and alcohol free quality housing for low income, physically
challenged veterans and non veterans in our community. I know that Frank
Falkowski will speak to the challenges faced by the coalition and the need for
more housing. I will always remember Frank's disbelief when he moved some
of our residents into our first project. The conditions they came from were
subhuman. The housing coalition is looking to provide more units and HR
3039 is a perfect solution. By providing loan guaranties the housing coalition
can buy or build additional drug and alcohol free units to house homeless
veterans. Since it was founded, the coalition has utilized a variety of city,
state, and federal programs. Private sector financing including tax credit
packages, lines of credit and equipment loans have been used to finance their
projects. HR 3039 is a workable, simple solution that brings together an
established community group, the financial community and the VA focused
on gettingbomeless veterans off the streets.

ADDS serves a unique popUlation. For many the Erie County Rehabilitation
Center is the last house on tbe street. It provides one last opportunity to turn
around a life impaired by drug and alcohol abuse. This facility takes the
bomeless that have been devastated by alcohol and drug abuse and provides
shelter and treatment. Many of the residents are veterans. In addition to the
rehab center tbe agency also operates a men's and women's halfway house.
These two community residences provide drug and alcohol free environments.
Again many oftbe residents are veterans. Dick Gallagher, Executive Director
of ADDS will speak about the veterans population that the agency serves and
their needs. I know ADDS recently acquired title to the men's residence and
HR 3039 is tbe perfect solution to fund the acquisition and repairs. ADDS is a
community-based agency, experienced in serving the population that HR
3039 targets. ADDS througb its Kids Escaping Drugs program has
demonstrated that local partnerships work. ADDS bas built an adolescent
2
 49

community treatment facility and long term residence by combining the

efforts of the state, the agency, the banks and this community. DR 3039 gives
the agency the opportunity to continue on building partnerships with the local
banking community and the homeless veteran population. DR 3039 will
provide drug and alcohol free living conditions and allow the homeless
veteran the opportunity to recover and return as active, contributing
members of our society.

BANKING
My perspective from the banking community comes from more than twenty-
five years in the business. Upon returning from Viet Nam in 1972 I began my
banking career. I have been very fortunate that my career has allowed me to
serve my community in many capacities. As noted I was with NHS in the
beginning and I have also been active with the WNY Veterans Housing
Coalition and ADDS. In all of those capacities I was able to utilize my skills to
fund projects.

The federal loan guaranty programs, the FHA, the VA, the SBA and many
others have been a very successful part of nurturing community partnership.
Home ownership, the growth of small business and for many our educations
were funded by federal loan guaranties. The potential with DR 3039 for safe,
secure, clean, drug and alcohol free housing for the homeless vet is
significant.

HR 3039 gives my bank an excellent opportunity to work with community

based nonprofit agencies. It meets both my fiduciary responsibilities and my
CRA responsibilities. I mentioned earlier two community-based groups that
are looking to provide quality living conditions for the homeless vet. I can tell
you that with DR 3039 I can provide them with the loans that will allow these
non profits to develop the housing we need. Housing that is not only safe and
clean and affordable but also drug and alcohol free. My sincerest hope is that
someday a vet will move from housing created by DR 3039 will be in my
office looking for an SBA loan to start or grow a business or for a VA loan to
buy a home.
3
 50

VETERANS PEBSPECUVE
Let me close by letting you know I grew up as the soli on a decorated Marine
and it was privileged for me to serve with my contemporaries in Viet Nam. It
is my obligation, and our obligation to provide opportunities. We must
provide opportunities for hope, for a future and in some cases for a dignified
farewell. The partnerships that will be created as a result of HR 3039 help
fulfill that obligation. Quality living conditions for the homeless veteran will
be a direct result of HR 3039. I can tell you here today that if HR 3039
becomes law I know of two non profit agencies and one banker that will be
standing in line to get our guaranties.

I want to thank you for this opportunity. I also want to thank you for your
vision. The Veterans' Affairs Committee has always been a wonderful
advocate for all veterans. Especially for those that defended our county and
for a variety of reasons can't defend themselves. I congratulate you on your
forward thinking, and am looking forward to the day when I can close my
first HR 3039 loan. It is a pleasure to speak about a proposed bill that has
taken a successful concept and is looking to apply it to benefit those that have
served their country.

Thank you.

4
 51

WNY Veterans Housing Coalition

IllS Main Street
Buffalo, New York
14209-2307
Phone: 7161882-5935
FAX: 7161885-3073

Statement of Frank J. Falkowski

Chief Operating Officer
Western New York Veterans' Housing Coalition, Inc.

to

Chairman Jack Quinn

and the United States House of Representatives
Veterans' Affairs Subcommittee on Benefits

Regarding:
Veterans' Transitional Housing Opportunities Act of 1997 H.R. 3039
 52

Dear Mr. Chainnan and Members of the Subcommittee on Benefits:

I am Frank J. Falkowski, Chief Operating Officer of the WNY Veterans' Housing

Coalition, Inc. Thank you for the opportunity to speak on behalf of our veteran
population here in Western New York and to express my views regarding the
Veterans' Transitional Housing Opportunities Act of 1997.

On a personal note, I want to point out that I am not just an advocate for veterans,
but a disabled veteran of the Vietnam War, who for the past ten years has worked
in the housing development arena.

In May of 1990, our agency provided testimony before the Veterans Affairs
Subcommittee on Oversight and Investigations regarding homelessness among our
veteran popUlation. It is most unfortunate that we must continue to address this
staple issue area that still impacts those who served when their country called.

Since that testimony, our Board of Directors have focused on the need for "Special
Needs" housing and housing related services for low income, physically
challenged and disadvantaged veterans.

Through innovative partnerships with community resources and a major private

sector developer, the WNY Veterans' Coalition provides housing and case
management program services to veterans who might otherwise face homelessness
or prolonged hospital and nursing home stays because they are unable to find
accessible and affordable housing.

The Coalition has completed $7.2 Million in new development since 1993 and is
currently in discussion with our local Veterans Administration Medical Center to
develop and operate transitional housing, using underutilized space at V A
facilities.

Before commenting on H.R. 3039, I believe that it is important to understand

some of the common denominators that influence our agency's approach to
pennanent and transitional housing here in Western New York.

The "tenn transitional housing" no longer is associated with only homeless

veterans who have drug and alcohol problems. There must be an intentional
focus of special attention on, and consideration for, veteran transitional
housing of special populations such as veteran families with children, the
elderly, and the mentally and physica~j challenged.
 53

New York has approximately 1.5 million veterans of which 36.6% are over 65
years of age. The Department of Veterans Affairs estimates that approximately
27% of their in-patients are homeless or facing homelessness due to a lack of
affordable and accessible housing.

New York State is facing a housing crisis which over 2 million New Yorkers
have a significant problem with their housing. More than one out of every
three households is unable to find a decent and affordable place to call home.

By the year 2000, New York State will have over 114,000 veterans older than
65, who will need access to housing with supportive services. The last step
before long-term nursing care.

Cuts made in the New York State budget for mental health services, continue
to impact our region. The problem is exacerbated when combined with
reductions in preventive homelessness programs and housing. Combine these
factors with the lack of capital and private sector financial commitment to
develop transitional housing, and you will fmd a formula that creates added
stress on the community system.

The Veteran Administrations' Homeless and Drug/Alcohol Program per-diem

contracts have reduced the lengths of stay for veterans from 6 months to 2
months. Other programs provide only shelter and are available on a limited
short term basis. The amount of time allotted to bring a veteran from
homelessness to independent living is woefully deficient. A need exists to
provide Step I and Step II approaches to transitional housing that would
absorb-the reduction in contract stay and lower the "revolving door syndrome".

Emergency shelters provide an immediate need, but long and short term
transitional housing provides the continuum of care needed to return a veteran
to mainstream society by providing them transitional housing and linking them
to relevant community resources.

Cutbacks in support programs, and welfare reform, have immediate

implications for housing across the country. These policy changes undermine
the ability of the service provider to fully integrate the veteran into
employment with an independent and supportive living environment.

In theory, H.R. 3039 could be an excellent conduit for developing and maximizing
resources for innovative partnerships and new ventures which would increase
housing and employment opportunities to underserved veterans. It certainly
would be a cost effective alternative to housing hold over in-patients who cannot
find affordable and accessible housing.
 54

I see t.ltis bill not as a panacea to the challenge of providing this housing, but as a
tool that could ensure that the needs of our homeless veterans continue to be
served while providing the needed housing and case management services at
significantly lower costs.

First and foremost this bill must be deployed to accommodate new veteran
housing initiatives now and in the future.

Secondly, it must demonstrate that new strategic initiatives in veteran housing will
better position the VA to increase sharing agreements with their local
communities. We all know that currently the Department of Veteran Affairs is
going through major strategic planning initiatives and cost-cutting reductions that
are attempting to meet the needs of its veterans at reduced funding levels.

H.R. 3039 could be an excellent way to open doors into the lending community. It
is my opinion that financial lending institutions could do more relative to their
eRA mandate in assisting veterans or veteran service agencies. The NIMBY
experience is not limited to just our local community and neighborhood
associations. H.R. 3039 could impact on this barrier.

The authorization of this bill to provide guaranteed commercial loans for homeless
housing and investing existing reserves in higher-yielding securities is a sound
one, provided we do not slip to junk bond status. For this demonstration to be
successful, we must be very careful about the potential risks of partnerships that
do not exercise discipline and do not give real estate risk as much consideration as
social policy.

A potentiru problem with the loan guarantee is that by itself, it may not be enough
to create transitional housing for low income veterans. Assuming that the loan
covers 100% of the development cost of a project, there is still the need to cover
costs of operation, debt service and services.

The bill looks for local and state assistance at a time when resources are scarce
and special interest competition in preferred regions extremely high. A proper
balance in the financing component will be necessary to cover this overhead; It
may be worth considering a set-aside of the proposed VA fund for use in
operations. There is still some money, both federal and state, to build or
rehabilitate housing, including tax credits. Operating money is the most difficult
to obtain.
 55

Perhaps the money available through extra earnings generated from higher
yielding investments of the reserve fund could be increased, with some set aside
for operating support to be matched by other federal, state or local funds which
might well be used for new construction.

Also, instead of restricting the match of the VA guaranteed loan to state and local,
we may want to consider allowing the V A per diem programs and other federal
funds to be used as a match as well.

I remain behind the curve on some parts of this bill, and hope that today's
testimony will flush out any cloudiness that exists.

Is this additional money or does this mean that monies will be pulled from other
VA programs as part of a cost-reduction strategy?

Who and how does a CBO become one of those non-profit advisors? Do they get
paid? Is there a possibility, as in the VERNVISN scheme of things, that the VA
will have the opportunity to create a non-profit entity that will pay themselves for
their own advice? Can this entity steer the contract in a manner that creates no
conflict of interest?

The bill points to relying on lenders for decisions. Who will advise them? What
do they know about veterans? Does their decision making power include program
operations?

Will priority be given to those developments whose parameters include utilization

of under-used VA facilities and DOD real estate from military base closings?
Development of transitional housing in the vicinity of V AMC's would prove
valuable and cost effective. It would strengthen linkages between veterans
currently in V A programs.

Will veterans who are eligible for this housing and who have never participated in
the VA Health Care System have full and complete access and participate in
eligibility screening at their local VA?

I believe that in time the VA will be 100% Medicare approved, thus increasing
new income streams which could be utilized for operations and thus free up
additional monies for new construction and/or rehabilitation of existing facilities
for transitional housing.
 56

Will the employment component be fully engaged with current and proposed DOL
programs induding Title IV-C, II, III, as well as Welfare Reform Employment
Initiatives, CWT and local PIC employment and training programs? Will DOL be
on board in terms of coordination?

Though questions have been raised, I believe that H.R. 3039 will go a long way in
leveraging funds that will not only fulfill the basic needs for shelter, but also play
a vital role in the re-integration of our veteran homeless population.

It will serve the commitment to maintaining the capacity of veterans special needs
programs, provide better utilization of resources and foster closer working and
therapeutic relationships within our respective communities.

The right service could be provided in the most appropriate setting without
compromising the quality of care to those who served and sacrificed for their
country.
 57

WNY Veterans Housing Coalition, Inc.

FEDERAL GRANT AWARDS - TRANSITIONAL HOUSING
1996-97

Revenue Recognized
June 30
!221 1996

Veterans Administration HCMI $146,597 $171,236

Veterans Administration Drug!Alcohol 72,890 70,853
Shelter Plus Care 38,535 38,866
Emergency Shelter Grant 1,654
Community Development Block Grant 12,600
Homeless Housing Assistance Program 25,000 16,667
Dept. of Social Services 15,284 29,746

The Veterans Administration awarded the Coalition a grant to provide community-based

residential care and rehabilitative services for homeless veterans and other special needs
individuals. The original contract period from 1990 was extended through September 30, 1998.
The rate of reimbursement is $45 per day for each resident.

The Veterans Administration also awarded a grant to fund community-based residential care and
services to homeless veterans and other special-needs individuals with drug and alcohol
addictions. The original contract began in 1993, but was extended through September 1998 and
provides a reimbursement rate of $45 per day per participant.

The Coalition entered into an agreement with The Buffalo Urban Renewal Agency to receive
grant funds under the Shelter Plus Care grant program in the amount of $641 ,640 from March I,
1995 through February 28, 2000. This subsidy enables the Coalition to provide 28 units of
assisted-housing with supportive services for homeless persons with disabilities at three of its
housing projects and one related project managed by the Coalition.

The Buffalo Urban Renewal Agency also awarded an Emergency Shelter Grant to the Coalition
for the provision of emergency and transitional housing for homeless individuals at their Howard
Street apartments in the amount of$15,OOO from May 1997 through April 1998.

Grant funding was received for the rehabilitation of the Engine # 16 Firehouse from the Buffalo
Urban Renewal Agency in the amount oUI15,OOO and requires the Coalition to provide nine
units of accessible housing for tenants who are severely physically disabled.

The Homeless Housing Assistance Program awarded a grant in the annual amount of $25,000 in
1995 and was renewed through October 1997. The funding provided assistance for salary and
fringe benefits of the Case Manager position.

The Department of Social Services provided (I) an award in the amount of $20,000 from July
1995-1996 providing funding to establish a Homeless Prevention Coordinator position and (2) an
award in the amount of $16,000 from December 1995-1996, and renewed effective February
1997-1998, to provide funding for an Intake Specialist position.
 58

CIRRICULUM VITAE

FRANK J. FALKOWSKI
12667 Roll Road
Akron. NY 14001
(716)5421096

SUMMARY: 17 years experience in Program Administration, Project management. with I proven track record in
grant development including housing and Small Business Development

EMPLOYMENT HISTORY

11/89 to P......t WNY VETERANS HOUSING COALmON, INC. - BUFFALO, NY

Chief Oper.tiDe Omcer/Direc:tor of Development

Responsible to the Board of Directors for preparing and monitoring projects during development
and operational phases. Work with various funding sources to ensure compliance with procedures and
reporting requirements. Supervise renovation plans for compliance with the general development
passed by the BoanI of Directors.

Work with accountants, fman<::ial institutions and project comultants in preparation of project budgets,
AlA Request for Payments and Management Plans. Direct staff and residential care providers to ensure
compliance with Federal Contracts for Transitional Housin& Programs. Perfonn other appropriate tasks
at the dilution of me Corporation's Board of DirectOfS.

5181 to 10/89 BUFFALO AND ERIE COUNTY PRIVATE INDUSTRY COUNCIL BUFFALO, NY
Procram Director

Manage and direct Federal JTPA Title IV~C Veterans Employment and Training Grant. Conducted
orientations and workshops to unemployed, underemployed and dislocated veterans to improve their
vocational skills. Coordinated public and private sector resources for employment of veterans after
acquisition of marketable skills. Researched and prepared proposals for funding of programs to meet
the needs ofwgeted client groups. Counseled. and networked vete1'1U15 and families to needed services.

7/87 to lI88 PRESIDENTIAL CAMPAIGN - AL GORE FOR PRESIDENT BUFFALO, NY

AdvisorNeterallS Artain Ornee Coordinator

Authored position papers on pending veterans legislation, Assisted Secret Service and National
Campaign staffwidt scheduled site visits in Buffalo area. Assisted in re~ruitment of volunteers and
responsible for administrative functions at local campaign headquarters.
 59

Frank J. Falkowski
Pagel

9185106187 RESEARCH FOUNDATION, STATE UNIVERSITY COLLEGE AT BUFFAW-BUFFAW, NY

Project Director

Directed SUNY Contract with Buffalo and Erie County Private Industry Council for assessment and
counseling of eligible veterans. Conferred with government officials, employers and civic leaders to
disseminate information on veterans' employment problems. Assisted in fonnulalion of policies to
meet demonstrated needs. Coordinated outreach and promotional materials for program recruitment.

4/83106187 VIETNAM VETERANS LEADERSHIP PROGRAM, INC_ - BUFFALO, NY

Executive Dlreetor

Coordinated veterans' programming with 33 VVLP National offices. Promoted from Assistant Director
in September, 1985. Developed office services, including volunteer recruitment, grant budget
preparation, records control, and organizational needs assessments. Researched, prepared and secured
granl funds from S<Ole, Federal and Private Sector for veterans' prosnunming_ Oireoted and assisted the
Board of Directors in disbursement of funds for veteran projects including the W.N.Y. Vietnam
Veterans Waterfront Memorial and the VVLP Scholarship Fund.. Conducted veterans' outreacb in eight
W.N.Y. counties including radio and television interviews.

9184106187 APPLIED RESEARCH AND DEVELOPMENT DEPARTMENT

STATE UNIVERSITY COLLEGE AT BUFFALO - BUFFALO, NY
Research Associate

Conducted research on veterans' advocacy issues with the Univenity of Massachusetts at Boston.
Developed program initiatives for veterans' hOUSing, small business and employment and training.
Collected and monitored local, Stale and Federal veterans' legislation. Compiled data for use by
National and State Veteran organizations and Congressional Committees. Administered and monitored
college exams for the Economics Department of SUNY at Buffalo. Consulted with local community
groups and legislative st&ffmemben for Economic Development Projects and researched economic
data for Community Based Organizations.

1/80103/83 CITY OF BUFFALO, DEPARTMENT OF HUMAN RESOURCES - BUFFALO, NY

Vetenns' Counselor

Assisted veterans and dependents in processing disability and educational claims. Coordinated services
with other veteran and community-based organizations. Prepared bulletins and informational briefs on
current veterans' activities and legislation. Initiated and participated in civic functions and mass
communication programs.
 60

Frank J. Falkowski
Page 3

EDUCATION: STATE UNIVERSITY COLLEGE AT BUFFALO

Business Management ~ Public Administration

CANISruS COLLEGE
Registered Apartment managers (RAM) Program

CANISruS COLLEGE
Professional MultiHousing Management Certificate

MILITARY SERVICE: Honorable Discharge - U.S.A.F., 1968 to 1972

Awarded the Distinguished FlyinS Cross and 4 Combat Air Medals,

AFFILIATIONS & PUBUCATIONS:

Member: Erie County Legislature Veterans Committee.

Member. Disabled American Veterans
Member: Phi Beta Lamb. Business Fraternity
Member: American Management Association
Member: Speaker of the House Congressional Conference on Vietnam Veterans,
W.ashington, D.C.
Co-Author: ' Impact Study on V.A. Budget Cuts'
Commentary to the National Community Action Association.
Co--Author: 'Statistical Survey on Health Svrnptoillology of Veterans Exposed to Herbicide'
Presented to the N.Y. State Diox;in Commiss~on. 1982.
Testified: U.S. House of Representatives Co~mittee on Small Business, Subcommittee on
General Oversight and the Economy. 1986,1987 and 1988.
Testified: U.S. House of Representatives. Committee of Veterans Affairs, Subcommittee on
Oversight & Investigation
Testified: New York State Dioxin Commission, 1982.
Testified: 2nd District Federal Court, Agent Orange Litigation, 1984.
Advisor: ABC-TV News Close Up: " Vietnam Requiem", July, 1982. Documentary.

CIVILIAN AWARDS: Network Leadenhip Award, Dept. of Veterans Affairs VISN II Network
Commendation, Veterans Administration Medical Center
Disabled Veterans National Outreach Award
Certificate of Merit. V.F.W. Dept. of New York
Disabled American Veterans Certificate of Merit
Buffalo Courier Express, Veteran of the Year
New York State Conspicuous Service Cross
Physicians Recognition Award. Veterans Administration
Certificate of Appreciation, Rotary Club
Certificate of Appreciation, Tonawanda Exchange Club
Commendation, Vietnam Veterans of America
 61

STATEMENT

of

Linda Boone
Executive Director

of the

National Coalition/or Homeless Veterans

before the

Subcommittee on Benefits

of the

Committee on Veterans Affairs

United States House of Representatives

The Honorable Jack Quinn .

Chairman

December 18, 1997

Buffalo, New York
 62

Mr. Chainnan, on behalf of the National Coalition for Homeless Veterans (NCHV), I
thank you for the opportunity to present our views here today. NCHV salutes your vision
and leadership in joining with The Honorable Bob Stump, Chainnan of the Committee on
Veterans Affairs to introduce H.R. 3039, the proposed legislation entitled "The Veterans
Transitional Housing Opportunity A.ct of 1997." This legislation, when enacted, will
expand the vitally needed supply of transitional housing for homeless veterans.
Moreover, it will do so without reliance on appropriated fimds by means of investing
existing reserves of the National Life Insurance Trust Fund (NLSI) with virtually no
increased risk 10 the fund.

The National Coalition for Homeless Veterans (NCHV) enthusiastically supports

H.R.3039 as a creative and yet thoroughly prudent approach that will help meet the
increasing needs for transitional housing for veterans. By "transitional housing" we mean
housing that is safe, clean, sober and has responsible staff to ensure that it stays that way,
and that supportive services are regularly provided as to be sufficient to help veterans
fully recover as much independence and autonomy as possible.

In order for transitional housing for homeless veterans to be successfu~ NCHV believes
that there must be five elements present in any community:

First, there must be one or more real estate assets that can be identified as being suitable
and potentially available at a cost effective rate for this purpose; and,

Two, there must be available adequate clinical support from the Veterans' Administration
medical system, (possibly augmented by other resources from the community); and,

Tlrru, there must be access to entry level jobs and proper support to assist veterans to
sustain such employment once a job is obtained; and,

FOllr, in a given community there must be:

2
 63

a) Local financialsupport sufficient to cover at least 10 to 20"~ of the total capital and
starting operational costs; and,

b) Adequate continuum of care funds for supportive services to usist in the recovery and
rehabilitation of veteran residents; and,

c) A strong communitY commitment to support an organization with a good record of

performance and management in -. unified effort to create transitional housing for
veterans; and,

Five, there must be adequate, long term, permanent and affordable financingavailable.

Many communities have the first four of the key elements, but the crucial fifth element,
affordable capital financing, is Iaclcing. "Tile Veterans Transitional HOUSing
Opportllllities Act of1997" would help provide such financing in some communities that
have the first four elements; but currently lack access to the capital funds at an affordable
rate necessary to create such viable, self-sustaining projects.

Mr. Chairman, the NatioDal Coalition for Bomelen Veterun (NCBV) believes that the
mechanism created by this act could create an additional 5,000 beds in long term
transitional housing for homeless veterans in .the next five years. This estimate of 5,000
beds is based on the experieuce of LAVETS in the renovation and construction of the
type of transitional housing units that would be c:rea'tedby this proposed authority. The
experience is that it should cost DO more than approximately $20,000 per bed. It is the
beliefofNCBV and of LA VETS that in some cases this cost could possibly be reduced
a bit with more experience, at least in some areas of the country.

It is our belief that the Western New York Veterans HOUSing Coalition (a stalwart member
ofNCBV) would be able to utilize this newly created mechanism to even further expand

3
their fme work here in Buffalo, at possibly less cost per beds than has been the experience
of LA VETS.

Mr. Chairman, while the National Coalition for Homeless Veterans (NCHV) is very
committed to the creation of additional pools of capital that would enable some of our
members to be able to create additionally needed transitional housing for homeless
veterans, NCHV is equally committed to ensuring that adequate safeguards be taken in
regard to the administration of such projects to ensure that they contribute to helping
homeless veterans return to a productive role in American society.

The provisions of H.R. 3039 in regard to requiring that projects financed pursuant to this
new authority require veteran residents to maintain sobriety as a condition of occupancy,
charge a reasonable fee to occupants, provide supportive services and counseling
(including job counseling), and requiring the veteran resident to obtain and keep
employment (or engage in an education or training program designed to lead to
meaningful employment) are all requirements that NCHV supports. NCHV believes that
foreing veterans to pay rent and keep active helps those residents re-establish personal
responsibility, pride, and self esteem necessary to successful recovery and reintegration
into mainstream society.

NCHV does, however, support adding a provision that would allow each facility to grant
a waiver on the requirement for employment in a limited number of cases for veterans
who are permanently and totally disabled.

NCHV holds that the goal of transitional housing must not be just to create more units of
housing, but rather to create more units of safe, clean, sober, supportive housing that
promotes the recovery of self sufficiency and exercise of responsibility of each veteran
who is currently homeless. The stringency of the rules must be matched by the positive
environment and quality supportive/counseling services established. The difference here
is not just one of semantics, but rather reflects a commitment to an approach that works.

4
 65

Mr. Chairman, NCBV shares yom commitment to respect om veterans enough to move
beyond "warehousing" to help create additional projects where each veteran has the
opportunity to re-establish his or her sense of self-worth IDd pride. Enactment of H.R.
3039 will be one more solid step in the direction of creating enough tools to assist
veterans to !>vercome problems and realize their potential.

The Natlollal CoaIidoD I'" 80. . . . V. . . . . (NCBV) is concerned that enough

flexibility and responsiveness be built into the -administration of the fund to be able to
respond to the various circumstaoces that projects may occasionaJly experience. NCHV
members have found HUD requirements to be too inflexible and restrictive to create the
environment for sood projects to be deveJoped that foster the kind of supportive
requirements.

There is a need for a signific:lut number of new units of transitional housing for veterans,
NCHV believes that the need is clear, ~ Iud pressina in most __ of the COUIIIJy.
There are 275,000 veu:r.s who are homeless on lIlY given nisbt, with double that
number during the comse of'a given year. NCHV members IDd others express the need
for safe, clean, sober housing for vetmms as being one of 1he most pressing needs in their
efforts to assist veterans, if indeed DOt 1he most pressing need.

NCHV believes that the need for such housing is IICCelerating as a result of both the shift
of the delivery of health care services by the Vetmms Administration (VA) fiom
inpatient based models to outpatient models of service delivery, as well as 1he system
wide pressures on VA to "save money."

The outpatient delivery of neuro-psychiatric care, including substaoc:e abuse treatment,

treatment for Post Traumatic Stress Disorder (PTSD), Iud other psychiatric services
becomes a real problem for veterans who do DOt have safe, clean, sober housing. As an
example, one VA Medical Center in a major city in the Eastern area of the United States

s
 66

has discovered that the success rate in their homeless outreach program diminished from
over SOOAl positive outcomes to 300Al since the elimination of most of the inpatient
programs for substance abuse and drastic curtailment of the inpatient psychiatric
programs at that VA Medical Center.

NCBV has much anecdotal evidence to indicate that the diminishment or virtual
elimination of adequate quality substance abuse treatment and other neuro-psychiatric
treatment services is a significant problem in virtually every major city. In some cases
the inpatient resources devoted to these purposes have !lQl been shifted to delivery of
similar services on an outpatient basis. In other cases the lack of safe, clean, sober
housing for veterans while in outpatient treatment or participating in partial
hospitalization programs destroys any effectiveness that the treatment might provide
toward rehabilitation and recovery of the veterans affected, particularly veterans who are
homeless.

Often the concentration of the local VA officials and others is on ''transportation'' of

veterans to and from the VAMC to be able to receive outpatient treatment during the day.
The problem is that if, as is all too often the case, there is DO sober supportive housing at
the other end of the transport, then the positive effects of the treatment during the day are
reversed overnight Some very creative solutions to the transportation dilemma are being
achieved (Le., Connecticut VAMC), and these are necessary and important, but the
dilemma of how to create more veterans' transitional housing is still often the single most
vexing problem facing many communities. Early passage and enactment of H.R. 3039,
The Veterans Transitional Housing Opportunity Act of 1997, while not a panacea, will be
of extraordinary assistance in meeting this problem in some areas. NCHV believes that it
is important to note that this proposed new authority will not only meet the objective of
creating more sober, safe housing, but is another tool to help ensure the viability of the
delivery of vitally needed medical care to veterans.

6
 6'1

In reprd to the pre5SIft on each -VA MedicalCenter.and each Yetinw lMegrated

Service Network (YlSN) to save mooey IDd men carefially husband"1beir resoun:a-.
NCRV draws your altaltioa to daIa collected IDd maIyzed,by Dr. JefIiey Wilkins, M.D.
the Medical Director ,of the Comprehensive Homeless Center at the West Los Aqeles
VA Medical Center. This data shows that over the c:oune of one year the "Westside
Residence Hall" project of LA VETS demoasbates SI4 Million to SI6 Millioa cost
avoidance SIIViDp to the West Los ADaeles VA Medic:al Center. This has been
accomplished duouah decreased "iD-paIicDt stay days" to the medical center. These are
dollars not being spent on hospital CIR for the year after IeaviDg Westside.

Of the first 308 verer.. in the study to 1eave WesIIicIe, 263(85%) bad been admitted to
the hospital for III avenae stay of III days duriDg the year prior to enterin. Westside,
adding up to 29.000 patient days durin. that year. After 1eaving Westside, only 125
(41 %) were admitted to the hospital, for an avenp lenJtb of stay of 29 days during the
year. This adds up to 25.... t - patient days. NCHV would contend that the
availability of Clpita1 funds (1IIIique to that area of Los ADaeles) W1IS the key ingredient in
acbievinJ this success story. given that the other four iqredieats for a successfW project
were present in this community. There are lIIIIIly other cities that have a concentration of
homeless veterans IDd very low income veterans It risk of being homeless who are in
vital need of u--itiooaI housing. Mally of cbese cities win be able to acbievepositive
results simi_ to that in Los Angeles when CIpitaI finlllcina at an affordable rare is
leverapd by virtue of the iiIthority created by I'M VIttm2lls Transitio1llJ/ Housing
Opportunity Act of 1997 and where HUD continuum of CIR funds will provide
supportive services for veterans in that community.

Once again, the Natloaal CoaIitioD /tII' CoaIitioD Veterul (NCHV) is strongly in
favor of early passage and enactment of H.R. 3039. NCRV thanks you for your
leadership on this issue. IS well IS your strong leadership in general toward better
meeting the vital needs of America's veterans.

7
 68

I again thank you for the opportunity to present the views of the National Coalition for
Homeless Vetel'UlS (NCHV) here roday.

CURRICULUM VITAE

LiDda Booae, Executive Director, National Coalition/or Homeless Veterans took over
the management of this national organization in April 1996. Although She is a native of
Oregon, she came to DC after two years in Little Rock., Arkansas as executive director of
a state wide association of nonprofits.

Linda's efforts for veterans issues started in 1969 as a volunteer in her local community.
In 1990 she became aware of the growing crisis of homeless veterans and began her
advocacy for these veterans. In September 1993 Linda completed a year as National
President of the one-miUion member American Legion AuxiliaJy.

FEDERAL GRANT OR CONTRACf DISCLOSURE

The National Coalition for Homeless Veterans has not received in Federal funding in
FY98 (Oct. 1, 1997- Sept. 30,1998) to date.

The National Coalition for Homeless Veterans did not receive any Federal funding in
FY97.

In FY96, NCHV receivedS4, 999 from the Department of Veterans Affairs for a "Stand
Down 94 Survey ".

8
 69

VETERANS OF FOREIGN WARS OF THE UNITED STATES

STATEMENT OF
PETER MAZZARELLA
DEPARTMENT OF NEW YORK
VETERANS OF FOREIGN WARS OF lHE UNITED STATES

BEFORElHE

SUBCOMMITIEE ON BENEFITS
COMMlTIEE ON VETERANS AFFAIRS
UNITED STATES HOUSE OF REPRESENTATIVES

WITH RESPECT TO
H.R 3039, lHE VETERANS' TRANSmONAL HOUSING
OPPORTUNITIES ACT OF 1997

BUFFALO,NY DECEMBER 18,1997

MR. CHAIRMAN AND MEMBERS OF lHE SUBCOMMlTIEE:

On behalf of the over 100,000 members of the VFW's Department of

New York and, indeed, all of this nation's veterans, I thank you for inviting

our participation in today's most important legisJative hearing. The

legisJation IIIIder discussion today, H.R. 3039, introduced by Chairman Stump

together with yourself and Representatives Evans and Filner, addresses an

issue that both defies ready solution while posing a most serious ethical

problem--homelessness among this nation's veterans.

It has been e~d that somewhere around one-third of our homeless

population is oomprised of veterans. Many ofthese individuals served in

combat theaters. These are the men and women who bOre great hardship and

risked their very lives in defense of our freedom. There may be DO doubt that

the very rigor of their service 8IId homJn that they witDessed pushed many of
 70

them to the bottom of the economic ladder and into the plight of

homelessness. They are often homeless as a direct consequence of their

military experience. Even so this great nation has yet to answer the need of

those who served her so valiantly.

As we all know, of course, the solution to this problem is far from

easy. Along with other problems too nwnerous to go into here, the sheer cost

associated with properly addressing the tragedy of homelessness is

staggering. The fact that H.R. 3039 would provide essential multi-family

transitional housing-by authorizing VA guaranteed loans to appropriate non-

profit organizations-for homeless veterans without reliance on appropriated

dollars is truly advantageous in light of VA's frugal funding levels.

Transitional housing is essential toward allowing homeless individuals to

bridge the emotional, educational and psychological chasm that separates the

streets from civil society.

I would ~ here, however, that while we generally support

using alternative funding streams to bolster VA, these dollars must be used to

enhance vetelIDs programs and entitlements and not sei've as a substitute for

full appropriations support. It is the federal government that is responsible

for fulfilling our national dept of gratitude to our former defenders in their

time of need, not the private sector. The bill under discussion today is a

strong and innovative step in addressing the tragedy of homeless veterans, but

does not represent the sole course to be pursued in reaching a complete

solution.

With respect to rehabilitation, the VFW applauds the language in H.R.

3039 requiring participating residents in the program to remain sober and

 71

seek employment. It is only in this way that such individuals may recapture a

sense of self-worth while rendering themselves economica1ly viable. We also

support this bill's provision that requires participating non-profit housing

providers to work closely with VA as well as state and local authorities in this

enterprise. It only makes sense to share knowledge and expertise while

avoiding wasting precious resources on overlapping or duplicative services.

In the end, homelessness is a national problem, a problem that may only be

resolved by aU elements of this great society working together as a whole..

Mr. ~ this concludes my statement. Once again I thank you on

behalf of the men and women of the Veterans of Foreign Wars for today's

hearing and your strong and'proactive position in addreSsing this most

difficult and compelling issue.

 72

(D
D ._. u:
Vietnam Veterans of America, Inc.
1224 M Street. NW. W..\hington. DC 200055183 Telephone (202) 6282700
FII~ ; ~bi"IZ02)61"'''SCI AdVOCXYl102l61106991. C~I~2l71.\.4"~ "~ClOlI6ll-UlI

St.temPlt or

VIETNAM VETERANS OF AMERICA

Presented "y

PAUL ANGRISANO
B.rorethe

BoOKe Co ....itt_ oa Vet....... Main,

Subcommittee o. Ben..-. .. Yield Bearial
Buft'alo.~

Oearl,,! 011 R.1l 303'

The Vet.rans Traumonal BoaRDI
OpportaDmOl Act of 1997

December 11, 1997

 73

Introduction

Mr. Chairman and members of the Subcommittee, Vietnam VetCIans of

America (VVA) is pleased to present our views and recommendations on H.R.3039,
The Veterans Traositional Housin, Opportunities Act of 1997. On behalf of our
more than 50,000 Vietnam war veterans, whom we represent, we are pl~ed to
offer our strong suppon for this innovative and needed legislation. We congratulate
subcommittee chaUman Quinn for holdinl this important hearing in Buffalo. And
we also wish to recognize and commend Chairman Bob Stump for his outstanding
leadership as the ori&inal sponsor of The Veteras TransitiouaJ. Housing
Opportunities Act of 1997.
This authorization, when enacted into law ~ill meet and unmet need to provide
cost effective, fully repayable loans for qualified 110n- profit sponsors, such as
Veteran Service Organizations (VSOS). in Bu1faloor other Western New Yorlc:
communities, to obtainmortgase and constrUction tiDaDciDg to de~lop, reDQVate or
lease housing with supportive scz,,;ces for homeless vet~. While VA already
has a program to provide home loan ~tees for veterans it lacks the legal
authority to help veterans w:lto are homeless Withhousiue needs. That gap would be
closed by making it possible for VA to also guarantee such loans ..

Stroq Justification for More HousiD, ad Supportive Services for

Homdess VeteraDs
Veterans.especiany male veterans, make up the largest percentage of the
homeless population in America today. yet receive Jess than 5% of the available
Mckinney Act funds directly through VA related service pro~ . annually.
ThcDepartmentofHousing and urban Dev~opment (HUD) administers more than
S I billion for McIqnney Act homeless approPriated funds each year. Admitrinc by
its own computations tl\at.Veterans ~r~ate30-50% !lfthe entire homeless
population,in AJ1lerica, HUD approves less than three pcrC:CJ1t of its dollars for
veterans .specific homeless housing and services. We think that fair minded
Americans will strongly agree that it is pastl1mc to assure 1bat as a minimum a fair
and proportional one third share should be made available to meet tbis need.
Recent surveys conducted by VA, and The Intemational Union Gospel Missions
and other organizations conclude that between 270,000 to as lrigh as 300,000 men
and women military serVice veterans are poor and homeless in 8Dy given day or
night nationwide. Compounding matters, Social Security (SSI-Disability) payments
for 135,000 substance abusers have been ordered. This has aJready connbuted. to
an increase in homelesmcss, among veterans
 74

The legislative proposal being considered by this subcommittee and the subject
of todays hearing, when inCOIpOrated with other positive changes made by the
inclusion of much stronger pro veteran requirements to the HUD/Mc:kinney Act
reauthorization bill, wiD help toassure a fair share offunding for homeless veterans
programs and services.

Local Western New York Need

Mr. Cbainnan, in our pan of the state of New York, including the 30th
Congressional dDstric:t, over 4 million veterans reside.
In Erie County we have-more than 103,000 men and women veterans in our
populations count.
Of this total 63,286 veterans live in the 30th Congressional District. Based upon
estimated need at least one third (20,000) ,are now or will end up on the streets
without homes or jobs. .
It is important to make the point that while VA spends ~ $229 million pet
year for all vetenDs programs and services in Erie COunty, almost DODe of these VA
expenditures are made available for any housing or scrvic:es.nccded for veterans in
the area who are homeless ().
The. VA is not Dor was it ever intended to be able meet the, specialized needs of
homelessness. And HUD as the lead agency also does not reach this need. It is
essential to now make it possible for VA to mccct their obliption to belp veterans
who find themselves homeless. And we believe that H.R. 3039 is modestand
prudent .step in giving VA somemost.needed amhority to help on a national-and
loc:a11evel.

VVA letter to CIlainDu StalBp

Mr. Chairman I respectfuDyask for penoission to include a letter from VVA
National President Georp C. Duginsto The Honorable Bob Stump, dated July 30.
1997 to be made part of my writnm statement. Our letter cootaiDs our formal
endorsement BDdsupport for The Veterans TI3DJitional Housing Opportunities ht
of 1997. The letter reflects our views and belief1hat this approach is a very safe
and budget Deutral mcdlodto assure that the most appropriate and effective housing
and supportive services will be tested by VA

Conclusion
We are also pleased that SOund.protectiODS are provided by this biD to assure thal
safety and availability for the Veterans life InsuraDce funds. when iti. to be pledged
as loan parantees for the purpose oftbeAct.
We urge the Committee and the Congress to move favorably.and expeditiously to
 75

make this bill become law prior to the end of the second session of the 10Sth
Congress.

Mr.Chairman VVA very much appreciates the opportunity to present our views in
support of H.R. 3039. and I will be pleased to answer any questions you or the
Committee may have

Enclosure

1996 National Center for Vcterans Analysis and Statistics .DVA Assistant
Secrewy for Policy and Plarming
 76

(D.
p ....... _ 0:
Vietnam Vetenurs of America, Inc.
1224 M SUUI. NW. WuhinJ;lon. DC 2000,, 183 Telcphoae (202) 628-2700
,..,.; ~'1021Q JIIQ M ....K)'f:!Ol'.J'&.a991. (:........iouf~21").....i lIlaancc(lDl,62I-WI

July 30. 1997

The Hooonble Bob Stump

CIIair
~CO~O"Vd~'ABmn
335 Cumon House 0f6<:e Buildina
WasbiDpm. D.C; 205U

D .... ChaUmu Smmp:

V i _ VeIaDS ofAmIrica (VVA) bas w-1bI opporIIIIiJ.y to review your draft

bill .realfClin.loan ......-es for _profit IaomoIeu _ _ providers. W. wry much
8pPIICiote ~ Pen briefias CD the coacept IDd ID iDviwioo to review !his bill. This
it. wry imporwIr iI_ to GIll' ......-lbip.
as)IICIII Jmow;. lad _ _ _ you aDd the
ColIIIIIittee ttafF for developiac ~-.ry cnaive idea far acIdressiai the problem of
homelessneu amona - . n t.

I know that you ohare VV1.'1 beIi.f that the disproportionata repreICIII&tiaD of
veterans amotI8 die homeless population (app!'llltimately -thin!) is uuly aaIiocW
aapdy. And iI is equaly sbamefillliIIl 10 &w oftha federaI_ dollars spem each year on
homoIeaneol .... cmc.d """'""" pro.,._...t.icII specdic:ally taIJOl the needs of vacraaJ.
AI_h. welppreciale your IUppon and cosponsorship ofH.lL 17S4. Jlep. Melcalts biD
to specifY that 20 percart oIMcXimey Act homeless funds on: cIir-.l toWn
YCUPll-
specific proJraIDS.

RecopidDg die chaIIqcs the _ COIIIIIIUIIit.y fiIccs in receiviDa a IIIir share

of the HtJD.adnJirrisrered homcIeu JI"IIRI'l NN!J, VVA IIIJIPO"S' your e1btto put
adctiliollli tools into the buIIIsofJlOlloPl'Ofit homeIaa _ providers to JC odditicmaJ
fUDdiDa _ &om private Ieadars. The VA loIII auarutY proJl'llll this bin
com.,.,aa&es will _ Oldy aiva theIe cqIIIizatioIIs .. opportunity to accca cIi!at fimds
throusJ> the 10...., but may help than to teverase these mODies to . .. oddiIioDIi privarIe.
state and community _ .

l'hDuIIDds of military
SUbSWlCl abuse,
_aIlS . . ~ _we probIaDI iDW<Iiq M5O,
or serious -..I iIlDases; ill tlIIreme cin:wDstaDces these &cton call
COIIIribute sisDifjcaDt/y to their ....... .imo bomeIessDcss. Tarpted prosrams to assiJl
lheM special aoeds among hotadaI 'IIIefIDS, cspac:iaIIy ~ housiIIa IlSiDa the
~ modal. have JII<IWG ~ effective ill trIJISiIiaaius theoe iDdi\.iduoIs back
 77

Chairman Bob Stump

July 30, 1997
Page 2

into mainstream society and reducing recidivism. If these unique needs -- often the
underlying ca.use(s) of veterans' homclessness - ate not adequately addressed, VVA
believes scarce homelessprograua dollars and more importantly hunwI potential may bc
wasted bec:ause many of these veterans will mailate in and out of various homeless
. services, never really recoverillg.

VVA fumly believes that the Vetenns Trmsitiooal Housina Oppol1Wliues Aa of

1997 has significant potemial to make matt services available to a larger DUmber of
homcless veren.us. And 'DQe of the very appealiDg aspects ofthi' bill is the "recytlablc"
DitUre of the guatlllly funds; IS borrowers pay olf their 100000, VA will be Ible to reinvest
these fimds imo additioDailoan guaraDtics to otlier homeless vetenn providers. As VVA
recommended to your staff at the July 21 IIlCCtiJI8, we would urge the Committee to add
somc provisio.. to CIlWUI'agc lenders to make pNdellt loaDs, dleuby reducinI the
pOll1l1i1ity of defiwlt. Two posaibtC methods of accomplilhiDa tbis loal are: I) limit the
10111 guaranty to a peraatap slightly less tIwI 100 percent; or 2) require some kind of cash
equity contributions from the boao....-er.

VVA does have CODCCnlS with the fuIIding offset proposed in the chaft biD. VVA
agrees that VA sbould have the authority to invest the c:umfIt veterans life iusurulce1\lods
more aggressively. This is really a "good ,ovemment" concept: But "'"C _ concemed that
using these increased eaminss to 1imd this program may be perceived as robbing-Peter-to-
pay-Paul. It has the potential to complicate the perception and overall success of this
prosnm. Having raiscd these reservatiom abOUt the filndins mechanism ill this bill, VVA
does suppon the loan guaranty concept and pledges to work with you and the Committee
to assure enactmeat.

VVA strongly believes thiI iJ one of the foremoSt issues faciDg the vetCRDS
COIIII!IImity at this time. and it is dosely tied in - as the Collllllincc's oversight dforts have
noted - 10 the ongoiDg evolution olVA medical care to primarily ourpatilll! modalities and
reduced access to inpatient subsWlCe abuse and PTSD tTeatmellts. VVA appreciates the
Commiuo!e's attention to this VCIY impolUlll and timely issUe and we look forward to
working with you on this and other measures to address hom.elessness I.mOIlJ ~eterIIIS .

Sincerely,

~-i- c. o..,r.
Geotp C. DuaiN
National President

GCD:krw
 78

I~)\of $IIWI,NW. W~DC2OOO$-SI83 TeJep/lcIIe~)62I-2700

_ _ 'JaI _ _ '_~_ .~_104Q -"'_1

_ _ IIIot: . ._ ._ . . "-711Jl._~

!be IIIIioDII oqIIIiaIiaD V _ v_;.

---
VIETNAM VD'DA1'fI Of AMIIIICA, INC.

.......
.... _'.',H"
~c. ,~"

.,
.. ..:.: "::'0- ;.;,,.. , ::r~
AIacIica, l1li:. (VVA) II. ~ _ _ '
. . ':' .. ____ ,_.,.
~-

-..JMnIip arpaiaIiaD . . . . . . . . SOl(cX19) with tile JIIIInII\ _ _ Service. VVAII...,

apJlftplimly ,...... . . . _ s--y fII _ s-rc _ tile aa
fII tba Haure fI
a.pr ___ ill comPi- willa tile Lob",.. DIIcIoIIInI Aot fIIl99S.
VVA iI DOt - - - , ill nuipt fII., ......... ~ - - . ..... 1IaIID _ ftIUIiD..
aIIoaIiaa fI .... .,_ _ _ _ _ _ _ _ ill VA ........ om- .... -.acIa ... a-
~ dIrrAI&b ill V_'" Prot:r-
prIIViaus two kaI,.,..
(s.vice -'-tali_). TIIis iI abo IrQ fI_

Far 1'IIl1Mr IIdbnDoIioD, Ccmaa:

na-cr fllGu.. .......
V _ V. . . . fII Amri::a,'1Dc.
(202) 621-2700, ea.ioD 127
 79

VIetnam Veterans of AmerIca, Inc.

National Task Force On HcmeIess VeterwIs

A "Fair Shal'l" of Fundfng !'or HomeI_ Vetnfts Progmnund ServIces

VeIIranI, Ir,IICiaIIy Ii1gIe milt VIIIerIna. make up !he _ _ lingle percentage of . . hac!lellu

popuIIIion n America 1Dday, ,. reaM ... .., 5% tllIe nIIIIIIt McI<hIIy Na FWIds.~ Iraugh

VA I'IIIt8d 8IrvIcas or prgg!IITII. HornI!IaIWtaIlllS must III gIwn "FIr Shn' d tIi fuIIlfI8CfnMn of
I1aIneIas . . . . prIIIIIRIn ..w:.1l'ISIIIIIJ ....... bIiIg M1ded n.. ...., StAIs.

The Depamnenl c:f t1ac'*'9 and UIban 0MIapmert (J(lD) m;-./sIefS the ""* sat aside by the
McKi'InIy Act. Admil!61g by iI own ~ns I18fWllmnlllllPnIIIImatt 30 511% oIltII! enIIrI hDmeflSS

popuIatico i'l America, HUD would ~ us beIiM 1Nt It is it fICS /IICItIg Ibis popuaaon I1f pravking a

getWaI. oveI1I n!W eort to 1he hameIeIs in America. This I:IlUId not III bfIIIf fftm fie tndh. By Is 0V0!I

adnillicn. HUD 16 p/lSlllUy diIIrIbutIg II10Se fIrIds n MIl _nanar mamII' ILl; III III ptadic:IJIy

inIIJIIeIMI. WIll . . "apec:iII,... . " dalllrllQlX8llons In AmerIca receivtIg IpIIibIy dor:aIId

runcq, vewans are orice 19ai111avhg II) fighI a war C11lIIe lIante ttonI to obtaiI ril#lll1I'Id beneIII& ttar
mdd IigIlMy be then.
 80

lIldIng wllhave ......,... ~I en faern "'*' IegiIIIIion ccl1lOlidl6lg KJD'I HomIIas PnIgIams
..... It1d fIIthar IIIIIs !hat ij "IIgII" CI1ClIIftIicn among fednI.,- serving hameIea YIIIeI8nS

Ii a.ItIg"conliUlllol till" Pft9IIIIL The spGI ..... agNIIIItrIII bIIIIeIn" VA and DOl outiling
lie eoIIIIborIIicn lie HamllllsVIIIAns ....,..Fn!pn (HYRPJ anctllep!lll'sl8SplfllH!y

to I11III . . F'f 1994 P'*I t . no IeIII ir IL 'IlIMI1i III at III cfIIIy... tJ IIfra . . whit NIpOflIiIily.
IlOl "."pDWidt . . . . . . tu..,.,naI-'rIl1lllVA.. rulllOI~ Il.a.-..c "loll
IIWIY coob iI . . IiIIr:IaI" -'m ...... IIIIf . . - . __ . . ..by .... cd IiIfIo II gaiIg III feed,

/IoU18. PIMIt IIiICbI an, IIId ,... fItm.

The Ir'IIII!!I!!S C!pMjIOn nw tfgniIp . .lUiIIIdgtstlll . . . . . 1M an 'tnpcrrtnsegmene

of ilia Ircmeles& IICPIII*n and e.t II*neadI .1IIIIIt be adlhlsecllIyJIftIIIIIIIIS 'IpIdblIy fIIgefed ID

........ aid." fie aenn rqe 01 ............iI. . CICII'IIUIIy. ~ .IgIir... . . . ..tpedII

. . . . .,. bIi'Ig IDIIIy IpIId, ..... . . , . . . IIIIIIr an ..... cllnId!uIIanIIzIc ..raJ

IIfDP"I till WIIInnI." nan nail.. ~ MIJ 1IIIHJIICiIc--- ... ~ 110 . . . .

IIIL

PaIIIcrrt;

VJerram v.... 01 Anatca.1're. at NaticrIIJ ConvanIIon in~. TIllIS, August 15-18,1985

IIpts IIgIIIdan Ihat WIlli! ....... .,... SWI" dIIIIIr ~ tar . . bdIg cI PfIIPIIS IIIIt
JINiI:8I !hit spICIIcIIJy 1IIIJIlhlnllll..... ._ tlIo, IIIr IIIIjar IIgIIitY far dIIIing willi Ire
horrIeIaIs. failinglCl fICC91iZelllB . . . _ Ofhom.. _ ..... V8I8rIrrI.HUDhlSfailldlOlIIIpIay
 81

Part of !he 'Fair Share" concept should mude tie creation at "*"- office& in major fedeIaJ
agencies $mDar 10 the Deplll'lmn Gf \.aboI'$ 0IIIce atVeletans Empbyrn.-.t and Tlanng. 10 suggest policy

and coordlna1e servIceS. In 8C!cllllcn. VI!O!rans IdVIIOIyCDlT1lT1illllet CCInIiI1iIg of:he VSOs shovllfbe fnlIiIIed

for .. agenc:ies arvi1g .,. hcxneIess. beginnirIJ willi" VA and HUe.

 82

FRIENDS OF CAZENOVIA MANOR, INC.

AGENCY DESCRIPTION

Friends of Cazenovia Manor. Inc. is a not-for profit corporation certified by the

Office of Alcoholism and Substance Abuse Services to operate chemical dependency
community residences in Erie County. The agency currently has 115 beds supported by
approximately 40 staff working at S. separate sites. All programs employ qualified health
professionals, are disabilities accessible and offer programming for individuals 18 years of
age or older. Random breathslyzer and drug screening is conducted at all programs with
follow-up verification provided by an outside laboratory contracted by the agency. The
agency has involved itself in the developing and maintaining of Comprehensive
Partnership Treatment Systems (CPTS) agreements which allow our clients barrier-free
access to other area providers and significantly enhance the overall quality of care.

The agency operates three levels of community residential services; a Recovery

Care Home, two Halfway Houses and eighteen Supportive Living residences. Each level
is viewed as part of a continuum of care which is tiered according to degree of intensity
and structure. The Recovery Care Home is the highest or most intensive level of care,
followed by the Halfway Houses and SIIPportive Living Program respectively. While the
optimal course of a client's treatment would be a progressive transition from a higher to
lower level of care, our program's comprehensive continuum is such that a transfer from ~
lower to higher level can occur with minimal disruption at any time based on client need.
The agency views this concept of barrier-free transitions as not only therapeutically sound,
but in both the short and long term highly cost effective and efficient.

PROGRAM DESCRIPTIONS

1'urning Point Hous~, the Recovery Care Home, is the highest lev~1 of care in the
agency. Located on six acres of wooded property in Eden, N.Y., the program is
recognized for its intense, highly structured regimen of treatment. As such, it lends itself
to that population which has consistently demonstrated a need for services not available in
traditional settings. All progranuning, habilitative as well as rehabilitative, is conducted on
premise and includes a wide range of specialized therapy and skill development groups.
Its vocational program offers a complete range of services and is provided in partnersliip
with the Erie County Medical Center's Vocational Rehabilitation and Recovery
Program. An onsite workshop compliments this multifaceted program which also
provides tutoring for GED preparation for those i~dividuals lacking a high school degree.
The length of stay at Turning Point House varies based on individual need, but ca~ be .
 83

expected to be between six and nine months. Referrals and transportation are provided
for medical, dental and other needed services.

Cazenovia Manor and New Beginnings, the Halfway Houses, are 18 and 16 bed
residences located on Buffalo's South and West Side respectively. Both sites provide
ambulatory detoxification beds and differ from the traditional Halfway House model by the
highly structured nature of their programs. While the average length of stay is four
months, it can vary significantly according to clinical need. Co-case management is
emphasized between the Halfway House programs and outpatient clinics, in that all
residents are required to participate in continuing care counseling.

Both programs provide individualized tracts of treatment responsive to referral

source recommendations (e.g. Employee Assistance Programs,Probation Departments)
and include diversified educational and skill development groups nOt provided in
traditional Halfway House settings. All residents are expected to pursue educational,
vocational and/or employment goals as part .of their preparation to return to the
community as productive employed members. In addition, volunteering at local service
agencies is strongly encouraged as a way of giving something back for the opportunities
one is receiving.

The Supportive Living Program comprises eighteen, 3 and 4 bedroom

apartments for men and women located conveniently around Cazenovia Manor and New
Beginnings. The program is targeted primarily towards those individuals who while
actively pursuing educational, vocational and/or employment goals, still require a
significant degree of structure as part of an overall relapse prevention strategy. All
residents are required to participate in continuing care counseling, either in-house or on a
outpatient basis. Length of $tay varies depending on individual need, but averages
approximately eight months. The Supportive Living Program is viewed as the final
transition phase for those individuals who have attained a readiness for independent living.
Presently, the program is operating out of a three story former convent .owned by the
agency~d centrally located on BUffalo's East Side. Although the building was initially
intended to be a Halfway House (prior to the 1995 moratorium), it offers substantial
therapeutic potential as a Recovery Care Home for a population in need of ongoing
serVices and supervision.

The agency's Administrative Offices are located in Downtown Buffalo, affording

efficient access for all required to conduct business there.

2
 ASPECTS OP CARE

Admission to one cir Friends of Cazenovia-Manor, Inc.'s programs is ' gained

through completion of a comprehensive admission proc~ that includes a referral from a
recognized provider of chemical dependency or,associated services. In most instances the
applicant participates in a faCe to face interview, although Cxceptions can be made where
logistics are prohibitive. In such cases, teIepbone interviews can be an appropriate
altemative. FoUowing tbe completion of the interview and the compilation of required
documentation (e.J. consenlS, biopsycbosoc:ia1 history, medical t1earanc:e), the Case is
reviewed by members of the Assessment Team and a ,decision is made regarding
.appropriateness for admission. Based on the findings of tbe assessment process and
utilizing Criteria from tbe American Society or Addiction Medicine, Patient Placement
Crlterla-l (ASAM PPC-l), the approved applicant is matched with tbeappropriate level
of care (e.g. Recovery Care Home, Halfway House, Supportive Living Program).
Although there is a formal waiting list for each of the programs, priority casea will be
given the foremost consideration for immediate placement depending on beclavaiJability.

When a person is admitted to an agency program, he is first assigned a house

counselor whose immediate task is to facilitate the individual'. adjustment to the program,
and to identify and respond to all priority treatment needs. Immediate counseling tults
include the administration of the AddlctloD SeverllJ Jodex (ASI), mutual development
of the Initial Treatment Plan, the scbeduling or confirmation of an initial outpatient
assessment (Halfway Houses), immediate referra1 to the vocational program, the reviewing
of the particular program's J:Ules and guidelines, and tbe immediate attending to of any
medical issues. All residents are placed in a restrictive Entry Phase, the length of which
varies depending upon the pinicular program and the resident's progreSs. The purpose of
the phase is to assist the new resident in focusing on his treatment needs, while minimizing
the potential distractions of outside issues.

_The three different levels of car~ in the agency are structured in su'~ a way as to
facilitate ~he resident'. adju~ment, o.ngoing participation, and eventual termination from a
particular prograin. In orcfer 'to provide an objective means to sauge a resident'. progress,
each program has its own set of progressive pbases which the resident must advance
through in order to complete the program. Each .phase ,has its own set of tasks,
expectations and requirements, all of which ,are designed to empower the resident as he
moves towards self responsibility. All phase advancements are reviewed with tbe resident
by staff in case conferences, where input is SOlJght and feedback offered for purposes of
updating the treatment plan. This is done in full consultation witb the co-case managers,
who ihclude outpatient, vocational and all other concerned parties (e.g. EAP, Probation).
Together with the program specific phases, the agency employs the ASAM PPC-2 criteria
as part of its ongoing assessment oftlie resident's place and progress in a particular level

3
 85

of care. This not only allows for more informed decisions, but promotes enhanced
communication among providers resulting from the use ofa common language.

In addition to the emphasis on educational, vocational and/or employment goals

previously mentioned, the agency prides itself in providing the most comprehensive
treatment possible within each level of care. A resident at Turning Point House can
expect to complete multiple ongoing Educational groups, Assertiveness training, basic and
advanced Rational Emotive Behavioral Therapy (REBT) groups, comprehensive Adult
Daily Living (ADL) skills group, substance specific Relapse Prevention groups and where
appropriate, Post Traumatic Stress Disorder group, in addition to core individual arid
group therapy. As part of the unique structure of the Halfway Houses, residents are
required to complete a 16 week Chemical Dependency Education series, a 12 week ADL
group, a 12 week Cocaine Relapse Prevention group, a 6 week Discharge group, and an
ongoing REBT group, as well as their individual and house group sessions. As previously
mentioned, these residents also attend outpatient counseling and are expected to attend
Self Help (AAlNA) on a daily basis. Supportive Living provides staff monitored house
meetings weekly, as well as ongoing multiple level group therapy depending upon the
individual resident's needs . Residents of the Supportive Living Program may also be
involved in outpatient counseling. All residents in the agency's programs receive a
minimum of3 hours mV/AIDS Prevention education and 3 hours of Domestic Violence
Prevention education during their first 90 days of residency. The agency views this model
of comprehensive treatment as ethically responsible, therapeutically justified and in the
long term, the most cost effective and efficient.

Another unique aspect of the agency is the level of mutual therapeutic cooperation
between the resident's house counselor and the respective outpatient counselor.
Beginning with the exchange of the initial treatment plan, ongoing communication
throughout the course of treatment is the rule rather than the exception. Mutual
responsibilities are delirieated in the CPTS agreements between participating agencies. The
effects of this have been improved case management, elimination of duplication of services
and an overall raising of the quality of care provided.

In conclusion, while the above narrative touched upon a number of different

components of Friends of Cazenovia Manor, Inc., it is important to note that tlus is but a
thumbnail sketch of the agency as a whole. The agency is highly committed to those it
employs and places high emphasis on their personal growth and development. Friends of
Cazenovia Manor, Inc. is also an active member of the chemical dependency 'treatment
community and is committed to improve the quality of care we provide through the
mutual sharing of ideas and experiences.

4
 86

Statement of

Martin Bugaj
AMVETS First Vice Commander
Dept of New York
SERVING
WITH
PRIDE Before the
House Veterans Affairs Subcommittee

Veterans Transitional Housing Act

H.R.3039

AM VETS
Thursday, December 18, 1997
 87

Mr. Chairman and members of the House Veterans Affairs Subcommittee on

Benefits. AMVETS thanks you for giving us the opportunity to testify today.
AMVETS has not received any Federal grants or contracts during the fiscal year
1997 or in the previous two fiscal years in the relationship to the subjects
presented today.

We appreciate the opportunity to share our views on the Veterans Transitional

Housing Opportunities Act of 1997. AMVETS applauds this innovative idea to
help our homeless veterans. While we support the idea and approve of the
demonstration project, we caution that the program must be monitored closely.
We would like to see clear goals and objectives set, so that the program can be
properly assessed and adjustments made at the end of the demonstration. To
have adequate goals set, we must first understand some characteristics of
homeless veterans.

About a third of the adult homeless population has served their country in the
armed services. On any given day, as many as 250,000 veterans are living on
the streets or in shelters, and perhaps twice as many experience homelessness
over the course of a year. According to VA, although veterans who served in
combat do not appear to face any higher risk of homelessness than those without
combat experience, the number of homeless Vietnam veterans today is greater
than the number of U.S. soldiers who died during the Vietnam war. The number
of Desert Storm veterans is also increasing. Almost all homeless veterans are
male (about 2% are female), and the vast majority are single. Homelessveterans
tend to be older and more educated than homeless non-veterans. Only about 10%
suffer from post traumatic stress disorder (PTSD). Roughly 40% are African-
American or Hispanic.

As you may know, when this idea was first brought up for discussion, AMVETS
opposed the funding mechanism of the bill. Since then, changes have been made
to make us more confident of the project. We were a little apprehensive of the
100% guarantee of the loans by Department of Veterans Affairs. Now, the bill
states that VA will only guarantee 90% of the loan. We believe this amount will
help dissuade organizations from trying to take advantage of the program for
their own profit.
 88

Another of our concerns with the original idea was that VA is not in the multi-
housing business. VA has no experience in making loans on multi-family
transitional housing projects and we were worried this program would be
compromised. The current bill directs VA to obtain advice from a nonprofit
corporation with experience in underwriting loans for transitional housing
projects in administering the program.

We are also supportive of the fact that the Secretary of the Treasury will be the
decision maker on how the National Service Life Insurance Fund is invested. We
believe if the World War II and Korean veterans were properly informed on the
facts of this bill, they should not have any problem with the funding mechanism.
It has been our experience that veterans helping veterans go a long way with
these older veterans . We see ourselves as stakeholders in this demonstration
project. We would like to be kept apprised of its progress or any possible
problems that may surface.

In summary, AMVETS supports H.R. 3039, the Veterans Transitional Housing

Opportunities Act of 1997 demonstration project under the following conditions:

Set clear goals and objectives for this program.

Keep the VSOs apprised of any progress or problems.
After the three-year demonstration, the project should be evaluated and a
clear decision made on whether this is a viable program or not. We don't
want to see it take on a life of its own and go on for 10 years with no
decisions or evaluations.

If done right, this program can be a win/win situation for everyone. I think it is
very interesting that when writing this report I ran a spellcheck. Homelessness
kept coming up and the computer suggested the word hopelessness as a
replacement. This is very telling. We need to provide opportunities to our
homeless so they don't remain hopeless. We believe this program is a huge step
in the right direction.

Thank you for the opportunity to express our views on this bill. If you have any
questions, I will be glad to answer them for you.
 89

BIOGRAPHY OF
MARTIN BUGAJ

Martin Bugaj joined AMVETS on April 1, 1991. He became Post Commander

of the Buddy Kwaus Post in 1996. As commander he was responsible for the
administration and coordination of all post activities.

Bugaj progressed through the post and department of New York ranks and
currently is the department of New York First Vice Commander in charge of
membership.

Originally Martin is from Buffalo, New York where he still resides with his wife
Denise and his two children, Steven and Laura. He is a graduate of the school
for the Performing Arts in Buffalo, New York. His first job after graduation was
with the United States Marine Corp.

During his tour of duty with the Marines, he served at Guantanimo Bay , Cuba as
a non-commissioned officer. After serving in the military Martin has been
employed as a Sales Representative for Rosas appliance stores in the Buffalo
area.
 90

8TATEMENT OF JOHN IAMPSON. CHAIRMAN

REHAllUTATION COI't!'MIIaION '
THE AMIRICAN L!GION DlPART'MINT OFIIEW YORK
I!FORI! THI COMMInH ON YElDANI' APfAiRS
SUICOMMITTII! ON II!NI!fITS
UNITED ITA'JU House Of R!PRlIINTAnYES
P1IILD H!AIIWO IN IUFPALO, NEW YORK
ON
THE VETERANS' TItANSITIONAL HOUSING ACT OF 1997

DECDIIR 18. '117

Chairmen Quinn and diatingulthed memb... of tIM! SubGommittee: The

Anwlclln lAgian Oepartment cif New York appreclata the opportunity to
.h_ ita vJew. on H. R. 3039, The VAnme' Trwnelt!onal Hou.joq
CARRrtyo"", Apt of , liZ. This bDl .eek.
to IIITlIInd Chllptlir 37 of TItle 38,
UnItR Statile Code, for die purpoee of Incr...lng uenafdon.1 hauelng for
hamel... vet8l'lne. If InlCted. the bill woUld authorize prIVati sector
development of treneltlonal houling for hornell.. vetlr'l1I' by off.rlng
Department of V4ltlrMa Aff.re (VA) loan 9uarantIMI for projects duigned
to be f1nanciaOy _'-supporting.

The AmerII:en Legion Iind.rItIinda thllt there YI~ FHIOnI why " many
fDlmer mambtr'a of thl. ooumry'. armld forCli are now homel.... The

find it diffloult, if not ~lbIe. to break the bonda of hom.....

I. why daleg.... 110 The American Levion" ..ventYointh National
n....
American t..olon 1110 underatlnd. diet many veteran., for varlou. realOOl.
That

Convention in Orllndo, Roride p....d Reaolution No. 213, Sypport for

Horne.... Sholt4!r Fyndilq.. on September 3. 1997. Thi. re.OIutlon clo.ely
mirrcn the provlUlna of H. R. 3039 .nd .upporta dli. bill.

The Amerioen legion flflllly beI'-v.. one of the mejor ~ntributing f8CtDr.
why VltlrllnI Moorne homel.... end all too often remain homeleu. is
beo_ of the laok of .ffard.ble 1'IouI1ng. In February 1992., Th. Anwiqln
Liplpn Mapuint J)r'eUrItId an In~epth .rticIe on 11'11 r.1OOI for
homal..sneu .mong vetllran.. The article statlld. "'n1e lack of Iow-c:olt
houalng, ptr1loulwiVin citieI. is f.crtGr. In lo8 Aog...., for inltlnc.. half
of downtlowo', IIn8Ie room occupancy unite _ dernolWied in urban
renewll c:amp.1gn. betWeen 1V70 .net 1185." Compounding thll problem
I. the lec:k of IdlCtllltli emplovment fOr hom.le.. Yltliren. witt! IItdI or no
education tnd job 1kII1I. '

In addition, two other major realOOI for homaleMn... amonCl veter.n. Ir.
tnental llIna_ tnd/or Il.Iberance .bu". Aocordlng to the 11m. .rtiel.,
Oeinltitution.l!zation of p_ychlatria ward. i. ~har prim.rv factor,
 91

SlMin" In 1he 1.eo. Iftd oontInulng to t.." ltale mentIIl hospitals,

pr. .uNci by bo1h clvl llberWians .nd budget cutter" "we emptied their
beck. In 1851, 1fIoee hotplrale hlld552,OOO prien1a; toRV'. number ia
11',000. UnfortuMtelv, IIIIUIY now rMIcI. on the 1tnMIb.-
When thR article tlrd .pp...... the VA atimea.d 1tIit _ 40 percent of
aft hamel... ~lUftered from chronlc men~' IIneu MCI thd ovar 50
petCant had prebll"" With IUlmanoa .bun. Although no caner. medica'
data ext..... at the time, VA had ....an to bllieve I large percenI8g' of the
he"'" veteran. wl1h psychiatric: dlagnolia wera 1110 IddIc:ted to alcohol
and/or drugl.

RIoently. The AmlriDll1 legion contlllC1lld VA'. NorthN,t Program

!veIvalion c.m_ (NPEC) to u_~ 1M I'ebrullry 1892 estimate. The NPEC
is f1IIIICINlble for tnICkInI the .ffeativ. . . . of VA programs In thd regional
. . . of the ooc.ntrv. to Include the Buffalo MQOPOI\WI Afa. ACOOIding to
the dhctor of that office, Ih_ fIoura . . 'till valid.

While .ome holl\lled y......na aotIveiy seek VA', IlIIltIIInoa and enroll!n
VA'. inpatNnt <JOY.,., car. proel'llm to overcome their prob........
mo.t
veterans who Mve ...oeIved cara lUff '.paI and re",,1n h--.. The
Amlric:an I..egIon beIfevM one of the ~r reMOM for the high rite of
....... it the lack of vewr.1HJMIC)tfIc progrwna offwlng both e lafa.
rllldlnd8l environment and the appropriate IUpPortlwe ,.vices to allow
them to oomInua "'-py on an ou1pltiant bull once 1hlir inpatient clr. i,
~.cantInued. outpatient .. Clare Is critical. becausa It provides
hom. . . .,..,.'" IncenIJve to maintain *lbrldy; cOmplete necessary job
traInInt and CO\IMIIIIna 1ID find IUItIbie empIovment.
A ltudy ...aentIy GOnduct.d by NPEC in iIa 'ilion, found that 80 percent of
1hI homIIIeN ve1It,.. .cImitted fer PlYchiltrio endIor IlUbItIncI .bu..
problema auoc.nfully complete inpltlent treatment. Of thoal veterans, the
.cudv found tfIIt:
13.8'10 ware dlsoherged to 1heir own hous lpanment or rOom
31'J6 went to live wtth fImIIv or frMna
35.8" vnnt to IIv. In some tVpe of Institutlol1 (homeless Ihett.r. Milway
ho~. tnnaltloNl NUl",. dO.'
10.8" had no ,... to go end rMIIIlned home. .
.% lUI InformatIan avel......
Accontlng 11 these fiaure. It it entirely ~a1b1e that I I many 20 percent
of tha ~ In the study ar. stili homeI.... Aooord'lIIg 11 the director of
the NP2C, "lMt Ie totally una_ptable. The AmerIoan Legion DeptlftrNnt

2
 92

V-..
of New York fully oonours.
IUPporta Dw
Mr. Chalnnln, Thl Amerlc:llt'l Legion fully
TIO!itlonal Houljna Apt pf 1987.
fnnovetIve p/lot program will not bring about an.end to horneI.._
While thla
among
vetllrll'l', it II c:.rtelnly step In tN right direction.

Some of the po.;tlve '-tures 0' the propoud program would require I
continuum of c:.re which requir.. ,.,idents to remain abetlnent 01 I'cohol
Ind drugl. In addition, reaichlnta will be required to take rHpanelbifity for
themMlvea by obtlllning and holding wnplovment Ind PIVing for I portion of
their ca,.. 1M American Legion believ.' .hla III nec_ry."d 'pproprillt8
approeoh. The AnwrIcen legion Depanm."t of Pwln..,tv.nill ruN! thr
hom.r... veteral18 trlnsltion homes far homeless vetaran. baaed on thIn
..ml princlpl.. and III currently In the proCHI of acquiring a fOllnh .

Th. Arnerioen ~,ian Depenmem of P8nnayivanill and the Veteran. Affaire

MecrIOit' Ctnter (VAMC) Ho""" V.wans Coordinator in the local arN
entera into I MtII'IIOI'IIndum of Underltlndlng IMOU). ' Under the guidelinaa
of th. MOU. the VAMC rat. . vet.ran. tc the tranlltJon homes and i,
r-.ponllible for outpa1lant medical GIrl. IIcohol Ind aubltance .bus.
aaunuHnIl, II well employment counnlina and job trlitUna and
plaoement. If v_..,. via. . the rules of the prollram. theV erl askld to
'eavl. The proerem hal I proven track. record of decreaalng the homllea.
Y8tItIIna popu'-tlon in Pwv1avlvllnia .nd ensuring these v.teran. became
productive ~ylng membe,. of .aclety. Sinee tN programa incap1ion in
1981, 87 percent Df 1M veteran. who hIVe plltdclpetecf ITe no longer
hamel.... Mr. Chllirmln. th8t ia tllkinll care of home.... vlterar\al

The Amerloan Legion Department of New York believe. H.R. 3039 is

n. . . . .ry, becMI.. until 15184, VA policy .dvocated the 1...0.,S of fund,
far apecialiZecl outreeoh pr"lN. VA policy no longer .dvocetea
Islc;f.- for then PragrImI. In fact, many VA .tIIff for ~Ized outrNch
-.t
car. I,. In 1he pro_ of being r.,lillned to primary cm .net oth.r .reH.
which can lignlftc:antly dagnIda the vehicle for getting horne18ss vet..".
halp. Thl. Ia especlllv true In VlSN 2 which includ., the anti. Buffalo
Metropolitan ArtIa. "oaordlng 1D VA', 1187 Annual Report. Het!tI\ Cm for
,HomtI- VetI!'IN! f'rAgtll!!l, datil thoWi 1hat In VISN 2. the number of
new homeI... vet...... evaluated dropped by &.11 percent Uld the number
of mit In apecle'iPd horneleN progr.... dropped 'pefoent. In VISN 4.
whioh Incfudea Pem8ylvanie, there WI. 1a percent , _ in vlWr."a
tre.ted Ind no decline In ltaft. Thl Ame,loan Legion h riaon beliwe the
downward trend in VISN. 2 wUI continua .nd anxlou,ly .w.1ta next yeers
dl1ll.

The Ainerlol" Leelon Dep.rtment of New York would therefor. enoour,s.

the Sulloommittea to col18lder amending Section 3772(bH1)(BI of the bill to

3
 93

aotuany rmmct.te the providing of lupport/ve 'lfViceI and 00_11"11

aervloee by the Ioc;al VAMC'" V.,. Centers and tha Vetwar\l Employment
and Training SeMoe. Moat homelal vetetane wll not go to the local
VAMC to ,...1vtI help. 0utreIch his proven to be v.,y eIfec:Uw WIr( to
help tfIese individuals on the rold to reeov..,.

In addition, 1M Subcomrn!ttM lhould oon.'cIer expanding the bill or inHrting

languap WhIch would I'I1Itb thia program avalhtbla for homeI... vetaran.
with a IJ)OUM lIrtdIor dapendents. Some homele.. vew.,e h.ve epGuae
.nd/or depandenta thM are lAo horn...... The American Legion
Department of PeMI'/IVanla reoognlzel that many homeletl v.etlrana have a
apouu and/or clepencl,ntJ end recently acquired one of their tran.itional
hD1M8 'Pacifically uqMIng ttlil population. In many inItanceI, thl. .
vat..... and tMir fvnIIIea homIIea beoeUH of corporate downaizin"
and only need tIImPOrI'V IAlstance until they can aeour. dacent
employment and. new resldance.

LntIy. The Americ:IM Uglon DIp8Itment of New York would raoommend

.ddlnQ marl .pecific Iangue;1 Which addrauM the flnaric., well being of
the monlaa to be \..-cI from the National Servlc. Life lnaurance trust fund.
The AmarIcen Legion btIIievea then fIIna thould be InVlllJtld In bond, rated
no .... 1han -tnvntmant grade by Standard lind Poor'., Moody'. InVlftors
SeMoa and FItctt'. InvatrMnt ServIca. Interalt r.oaivad from ttl,. new
inwatrnent plan ahouId ... p/.aad In . a aaperate ~. . .t-baatIng trust fund
.tt. the emount equal 10 1t1e ra CJf return from Invlltmente In the U.S.
GovWMl8nt SeourIIIa tau bean NftI'Md to the Natlon.1 Service Life
lnaunmoa uust fund. Only revenue OVII' and abova 1M! generatld by
lnvatmeml In U.S. Government ncuritI.. ahoulcl be UMd to gUlll'ent..
10... by non-proftt IlfOUPII . .Idng to borrow fundi to opan and operata
.tIeI"ra and that the.. fundt ba actually Invtad for at IaMt nv.IvI mon1fw
to ganer.te the I'IIOIIAIY fund. for guarantee. prior to any money being
loaned tD support thit program.

In COncIUliion, Mr. ChaIrman, The Ameria.n Legion ..Iut.. you and tha
Subaommitt8e tor your OfIIObJ8c:oncem for AIr*!CII'. vater_, particularly
hom..... wter.,.. Aua~, thank you for offering the opportunity to ahara
The Amertc.n L.glon'. views on H. R. 3039, Tbe Vt!IranI' Illl!S!tjont!
Hoyaing OppqrtunldM Act of 1992, The American Legion Department of
N_ York fully luppom this Importllnt legislation.
 94

~NCOA
Non Commissioned Officers Association of the United States of America
ns N. W..hlnllton 51'"' AI....adrl Vlrslnl. 22314 1OIophono 1103' S4~311

STATEMENT OF

CSM GARY L. FLAHERTY, USA (Ret)

NCOA New York State Legislative Coordinator

BEFORE THE
FIELD HEARING
OFTBE

SUBCOMMITTEE ON BENEFITS
COMMITTEE ON VETERANS AFFAIRS
U.S. HOUSE OF REPRESENTATIVES

IN BUFFALO, NY

REGARDING

H.R.3039
THE VETERANS' TRANSmONAL HOUSING
OPPORTUNmES ACT OF 1997

DECEMBER 18, 1997

 95

~NCOA
Non Commissioned Officers Association of the United States of America
225 N. Waohington 5 _ Aleundri.a, ViIJInia 22314 1elephoJll! (703) 549-0311

mscLOSURE OF FEDERAL GRANTS OR

CONTRACTS

The Non Commissioned Officers Association of the USA

(NCOA) does not currently receive, nor has the Association

ever received, any federal money for grants or contracts. All

ofthe Association's activities and services are accomplished

completely free of any federal funding.

Ch.rtend by th~ Unit~d St.tts Congress

 96

Good moraiag Mr. n.irIII... The NOll Co..lIlisalo.ed OfIicen AAodatioa of the

USA (NCOA) .ppreclates the opportualty to .ppear ud prcHDt tcstimoay .t

today'. bcariag. Tbe AIIoc:latiOD thaD'" tbe DistiDgaisbed Cb.lrmaD for your

IavitatiOD . .d s.luta you for boldlag this field beariag OD .D ImportaDt Is.ue.

NCOA is .Iao grateful to Cb.I....D Stamp, RepraeDtativa L.De EV.Ds .Dd Bob

Filaer, .Dd yoa, Mr. Quia, for the I.itiative tb.t is tbe aubject of tbls beariDI.

At time wllea the .tteatioD of IIIOIt people is devoted to their abopplag lism, It Is

DOtcwOrthy ud co.mcadahle Mr. CllairlllaD lUt yoa b.ve cbosca this tI ..e of year

to foc:us tile Sabco...lttee oa tbe plipt of the N.tIoD '. bo_las veteran. The

AIIoc:IatioD traats that oar tatl..oay wiD he belpful to you .Dd the otber

dlstlagalsbed ..emhen of the Subco.. mlttee ID your deUheratioua .ud actioDa to

belp tbae deaerviDl AmerlUIII .Dd patriots.

H.R. 3039, The Veteran TraaaltloD.1 HouiDl OpportuDitia Act of 1997, is. good

piece ofleglalatloa th.t merits ezpediellt coDllderatlo. . .d passaIC- But, H.R. 3039

is more th.a. iood piece oflccillatioa - it is. "rapeulhle" biD tII.t requires

accouatabiUty from both tM borrower .Dd tile bomeleos veteraD p.rUdpt. ID

th.t aspect, Mr. Cbairlll.D, H.R. 3039 CIICO.. pusea great deal of CO ....OD aenae.

UDUke too m.DY otber govenmeDt pro.,.ms tb.t tbrow federal.ppropriatioDs .t

problem without .fthlDl rcoPODllblUty .Dd .ccouatability, H.R. 3039 docs DODe of

this. The leplatlou clearty IDvolvea priv.te _or risk tb.t will aot he

aDdertakea . .leu 1M OpportuDIty for 1 _ oatwe.... tM rilk. NCOA Is .Iso

plcaaed witJI, ud stroqIy eadones, the penoa.1 respOllSibility aad .ceou.tabiUty

reqaired from the bo.e1_ vetcrau wbo will parUdp.te iD tile Procra.... Theae.re

atroDIL fcatarco of 1M bill, Mr. Cb.I....D, wbicb mot he m.iataiDed .ad e.forced.

It Is DO secret Mr. eb.I..... th.t NCOA did Dot eDdone tbe orieiD.1 draft venioD

of this measure. ID tbe bq!uDIDIo the Auoc:iatiOD b.d stroug raervatioDa .bout tbe

poteDti.1 UabiUty .Dd b.... tb.t could .ccrue to the N.tioDal Service Life IDlura.ce

Faad, .ad thereby tbe predomi tety World War II aDd Korea W.r era veteraDS
 97

do.t bold tIIae policies. AI tter .f Ioq-flaadiq pn.ciple, doe Auoc:iatloll cIoa

Ilot be!ieve tIs.t .IlY "eterall P..........1I0uld be ued a rao.ree to fu.d ot"er

"eterau Procra.....

AI rault of. eontilllloUl dialope with yoa ud doe Com.ittee ..." .lDee tile

initial dilenuloll draft of tile bIB wa circulated, NCOA is now ..tillIed tll.t H.R.

303' a lIltrodaeed mla _ _ .... poteatlallaora to .... N.tioul Service Life

l u . _ Fuel. In ill ~rreIlt fonI, H.R. 3t39 removes .... buia of oar earlier

objectioll ud, to doe JUSIaoa. ntnd pouIble, doe Auoc:Iation btIleva .... NSLI

land .ad poIiey "olden .re protected. For "",,m.od.tia, NCOA eonee.... ill tIIit

.rea, tile Auoc:iation it indeed aratefuL

Tile ANoeIatioa .... btIleveo do.t tile pan_en of doe procra. lI.ve been

.ppropriately defined. la _ay rapeets, TIle Vetenu Tl1UIIitioul HoaliD&

Opportunltiel Aet of 1997 is demo_lion project tII.t DlUst prove itself. By

IiIIlltIa& ioano to _ IIIIOI'e do flye duriaa tile fint doree yean, .Il opportunity lor

P........ oven...t and .cco......mty Iau been _reeL III dois rtpnl, NCOA

btIleves the _ _I .adita .re til_lore cracial, partie1llarly 10 darla, tile flnt tllree

yean.

AI NCOA elen...... tile IePlatlon, the 1.1 H.R. 3039 is .ot to provide

aoaeyaaklac llYn. lor priv... Metor ntltieo, aIdtoqII IUt opportuaity niatI

.ad It .... be .ttnletiYe no..... to iadaee riak-taken, if doe P......... 10 to .aeeeed.

Ratlaer, tile .i 1 dolo !eplatioa 10 to lIe1p Iaomeleu "eterau whla !be pal 01

ladlltatiac doelr rttan to prodactive citIzeuIIip. Mr. ClaBin..., NCOA lerve.tIy

req.... tat we d ....ad tat ra.lt.ad _Iooe ....t .ItII.t objective. The otIaer

cIetaiII oldoe req.ired .1lIlI.adill ~acliq, !be battom IIDe . . .t be doe

~m'. _ or llIiIare Ia IIeIpie& Iaomeleu "etenu _me .ad _i...1a

penon.1, ladepeadellt raponolblBty lor t"elr 1iY.... II evicleace Iollot penualve

d.riII& .... flnt tllree yean IUt doia rtIIllt is beiII& aclaieved, NCOA a " do.t

MricMa ev....tIoa be .aclertake. W.re lartber expallliH is tIaorized.

 98

Althougb private sector involvement will be substantial, The Veterans Transitional

Housing Opportunities Act of 1997 is really a program of veterans helping veterans.

Even though the risk has been minimized, the money of one group of veterans will

be used as a guarantee to hopefully help other less fortunate veterans. As a military

and veteran organization that c:ounts many NSLI polieyholders among its

membership, NCOA requests that the Subc:ommittee be vigilant in fulfilling its

oversight responsibilities to ensure that the goal ofthe program is ac:hieved.

In dosing, NCOA again thanks the Distinguished Chairman for holding this hearing

and providing the Assodation the opportunity to expre~s our views on H.R. 3039.

NCOA supports the legislation and urges the Subc:ommittee to favorably report the

bill to the House Committee on Veterans Affairs.

Thank you.
 99

~NCOA
Non Commissioned Officers Association of the United States of America
225 N. Wuhington Street Alexandria, VizshUa 22314 Telephone flII31 549-0311

CommaDd SergaDt Major Gary L. Flallerty, U.s. Army (Retired)

NCOA New York State Legislative Coordi.ator
ADd
CbairmaDIPresideDt,
New York State CouDcil ofVeteraDS Ol'laDizatious
As NCOA's New York State J..ecjI..tlve Coordia.tor, CSM F1aberty reape....hIe
for tile New York State .....tive aetlvitiea of. 1~.08t __ her COIlpwlioa.1Iy
Chartered .wtary usodaCioa ud veteru servKe 0IPnlulien. He IIIOIliton lIIe
aetIvitiea of th.t .....tlve hody .nd seeks 1ep..tIoa ....t pertabu to the .... b .nd
priorities ofllle As.oeiatlons lIlelllhenhlp. CSM F1aHrty correapolldlud
lateraca witII __ hen .nd staff of the New Yor\( State Lept"tare to sapport or
Initiate JegIs..tlon. He .bo ICrvCl .. the Ch.lrmllDlPreaident of the New York State
COlllleD of Vete...... OrpalzaCiona that II COlllpriaed of tweaty-eipt lllilitary and
vetc..... aervKe orpDizatiou withia the State of New York. For "isservice, CSM
lI'JaHrty received NCOA'. coveted E.p Aw.rd for 1ep..tlve .ca.teve_eat.

CSM 1I'Iaherty bepn a.ia Anay eaner ia 1961 ud in lIIe eanial13 yean lie held
nUlIlcroDl poaitlou of reapouibility .nd .ntbority...orldwide, iadudial toan in
Germany. VIetn.IIl. Korea .nd lllronpont the United Statel. He served u
COlllmandant of the Etpth U.s. Anay Noa COlllllliaaloaed OfIkerAc.deaay
reapoalble for tnlalal U.Snd Korean soldlen. CSM F....erty .bo served u the
Co......... Se.....t M.jor of tile NortaoeuterD Recio'" Recrnltlal Command tb.t
entailed reapouiblHty for thirteen _tern U.s. ltateland Earope. Darin& biI
IIliIitary aervIce, CSM 1I'IUerty wu n.~ u .n OaDtaadial Yonag M.n of
Ameria, cited .. Cltizea of the Year. ud won the Vetenu .rForeip War'.
Ontataadlal Soldier efllle Year. He retired fro. the U.S. Army In 1984 u the Poot
COlllllland Sergeant M.jor.Fort Meyer. Virginia.

CSM 1I'JaHrty'. ecilleve_aa following IIliIitary servKe .re equally iIIlpreaaive .nd
Iaclude: PrealdentlCEO. MEDEX Intern.tlonal; PreaideatlCEO. HOIpltal
Recnitiag, lac.; .ad E,,_tlve Recruiter. RITT A proreuloaal s.rca.. He boidl
Bachelor of A .... Degree (with 1I0...n) from COlalll1lia Uaivenity.

AmOlll .n_ro.. military deceratlou ad .w.rda, CSM 1I'JaHrty the recipient or

tile Soldler's Medal for lIerolc service Ia tile Repablle or Vletn.lIl. the Legion or
Merit, Broaze Star Med.1, Meritorloa. Service Med.1 (2 ....rda). Army
Com_dation Med.1 (' _.rda), ud the Aray Acllleve.ent Med.1 (2 ....rds).

Ch"rttfYd by tlu United St"flts Con,,"s

 100

Statement of Peter H. Dougherty

U .S. Department of Veterans Affairs
Before
U.S. House of Representatives
Committee on Veterans' AHairs
December 18, 1997

Mr. Chairman, members of the Subcommittee on Benefits:

My name is Peter H. Dougherty and it is my pleasure to speak to you

about the U.S. Department of Veterans Affairs' national efforts to assist
homeless veterans. As this subcommittee attempts to improve the supply
of transitional housing for veterans that have been homeless, you can be
assured that our department will work diligently with you to improve this
critical aspect in the rehabilitative process. It is both a personal and
professional pleasure to appear before you since I served for four years as a
member of this committee's professional staff and know first hand the
commitment of the Members of Congress and staff of the committee to
serving our nation's veterans.

),ou requested our comments on H.R. 3039, the "Veterans

Transitional Housing Opportunities Act of 1997." Due to the complex
nature of this proposal and the relatively short amount 6 time we have
had to review it,we are unable to provide you with comments and costs at
this time. V A is carefully reviewing this bill and hopes to provide the
Committee with our comments an.d cost estimate when the Second Session
of 105th Congress convenes in January.

VA has over 100 specialized programs assisting eligible homeless

veterans. Those programs which operate across the country are largely
limited to those veterans with diagnosed mental health disorders,
including substance abuse problems. VA's specialized programs include
the Health Care for Homeless Veterans (HCHV) and the Domiciliary Care
for Homeless Veterans (DCHV) through which we treat up to 40,000
veterans annually. In addition, VA offers a full range of medical,

1
 101

opportunity to experience and accept the responsibility of employment as

part of the patients' VA treatment program.

cwr works with more than 13,000 veterans each year and during
our last reporting year those veterans earned more than $25 million. This
real job experience is critical to helping these veterans return to work since
most have long periods of unemployment or have poor work histories
since leaving military service. A job, in many cases, is what gives that
formerly homeless'veteran the drive to continue to maintain his or her
health and sobriety and to fully reintegrate into society.

Our Department is always willing to work with you Mr. Chairman

and other members of this committee and your staff on ways to improve
housing and other opportunities to improve the lives of veterans.

My colleagues and I are prepared to answer your questions.

 102

U.S. Department of Labor .................,

..,......----
-----
~
... ..
,.....
...,. ....
...... ,2. ........

- ...-
y-,~

Tc..,......... ..,"'. .

TESTIMONY OF
JAMES H. HARTMAN
STATE DIRECfOR, NEW YORK
VETERANS' EMPLOYMENT AND TRAlNINGlUSDOL
BEFORE TIlE
SUBCOMMITIEE ON BENEFITS
HOUSE VETERANS AFFAIRS COMMITTEE

DECEMBER 18,1997

MR. CHAIRMAN,

TIIANK YOU FOR nus SPECIAL OPPORTUNITY TO ADDRESS YOU AND YOUR
DISTlNGtnSHED COUEAGUES REGARDING TIlE VETERANS TRANSmONAL
HOUSING OPPORTUNITIES ACf OF 1997. I BRING YOU WARM REGARDS FROM
BOTH OUR SECRETARY OF LABOR, ALEXIS HERMAN, AND OUR RECENTI.. Y
CONFIRMED ASSISTANT SECRETARY FOR VETERANS' EMPLOYMENT AND
TRAINING, ESPIRIDON AL BORREGO.

RECENTLY TIlE VETERANS' EMPLOYMENT AND TRAINING SERVICE

SPONSORED A NEW YORK STATE SUMMIT ON SERVICES TO VIETNAM
VETERANS

TIlE PURPOSE OF TIlE SUMMIT WAS TO ASCERTAIN WHY THERE HAS BEEN
SUCH A SIGNIFICANT INCREASE (14%) IN TIlE NUMBER OF VIETNAM
VETERANS REGISTERING FOR SERVICES WITH TIlE DEPARTMENT OF
LABOR JOB SERVICE OFflCES AND TIlE U.S. DEPARTMENT OF VETERANS
AFFAIRS VET-CENTERS OVER TIlE LAST 1lIREE YEARS..
 103

THE ISSUES WERE DISCUSSED IN WORK SHOPS BROKEN DOWN INTO FOUR
CATCHMENT AREAS:

I. EMPLOYMENT
2. HOMELESSNESS
3. INCARCERATION (PAROLE)
4. MEDICAUMENTAL HEALTH

OUR. COMPLETE SUMMIT FINDINGS ARE STILL IN THE PREPARATION

STAGE, BUT THERE WPRE TWO ISSUES IDENTIFIED THAT TRANSCENDED
ALL OTHERS:
1. COMBAT VETERANS APPEAR TO HAVE MORE
DIFFICULTY THAN THE GENERAL VETERANS
POPULATION IN THE READJUSTMENT PROCESS.

2. THE READJUSTMENT PROCESS FOR COMBAT

VETERANS APPEARS TO BE ON-GOING,
CONTINUING LONG INTO THEIR RETURN TO
CMLIAN LIFE.

CONCERNINO THE .SUMMIT FINDINGS REGARDING OUR. HOMELESS

VETERANS POPULATION:

- ONCE AGAIN COMBAT VETERANS FACE HOMELESSNESS AT A

GREATER RATE THEN NON-COMBAT VETERANS. AS EVIDENCE OF TInS, A
HOMELESS VETERANS STANDOWN WAS HELD IN ALBANY JUST PRIOR TO THE
SUMMIT AND WE FOUND THAT OVER SO"A. OF THE HOMELESS VETERANS THAT
ATTENDED WERE VIETNAM COMBAT THEATER VETERANS. CONSIDERING THE
FACT THAT NON-COMBAT VETERANS OUTNUMBER COMBAT VETERANS IN TInS
STATE ALMOST 3 TO 1, TInS IS A VERY DlSrutmING FINDING.

THE SUMMIT PARTICIPANTS ALSO ADDRESSED.TJIE ISSUES R&iARDING

HOUSING FOR OUR. HOMELESS VETERANS. THEIR MAJOR FINDINGS WERE:

I. THERE IS AN OVERALL LACK OF COOPERATION AMONG LOCAL,

COUNTY AND CITY OFFICIALS IN ACQUIRING SITES FOR HOUSING.

2. RESIDENTIAL COMMUNITIES BALK AT HAVING TRANSITIONAL

HOUSING IN THEIR NEIGHBORHOODS.

3. PROGRAMS FUNDED lHRl)UGH GRANT MONIES ARE SUBJECT TO

FUNDING CYCLES THAT ARE OFTEN NOT TIMELY IN THEIR
APPROPRIATION PROCESS RESULTING IN AN ON AGAIN/OFF AGAIN
DELIVERY SYSTEM.
 104

AS EVIDENCE OF niE DEPARTMENT OF LABOR'S CONCERN FOR HOMELESS

VETERANS, THE DEPARTMENT nus MONTH AWARDED 12 BRIDGE GRANTS
TO ENTITlES ASSISTING HOMELESS VETERANS, TO SEE THESE GROUPS
TIIROUGH THE NEXT COMPETITIVE GRANT CYCLE. THE GRANTS
TOTALED OVER $343,000. A GRANT OF $33,000 WENT TO THE SALVATION
ARMY IN NYC.

AS FURTHER EVIDENCE OF THE DEPARTMENTS CONCERN, THE

DEPARTMENT WAS SUCCESSFUL IN OBTAINING CONGRESSIONAL RE
AUnIORIZATION FOR mE HOMELESS VETERANS REINTEGRATION
PROJECT IN mE AMOUNT OF $3,000,000.

AMONG SEVERAL RECOMMENDATIONS MADE BY mE SUMMIT

PARTICIPANTS WAS mE NEED FOR MORE PRIVATE SECTOR
INVOLVEMENT BOTH FINANCIALLY AND TIIROUGH GENERAJJ SUPPORT
FROM EMPLOYER GROUPS.

HOWEVER, ANOmER KEY FINDING FROM OUR SUMMIT WAS THAT MANY
AGENCIES AND ORGANIZATIONS PROVIDING SERVICES TO VETERANS
NEED TO IMPROVE COMMUNICATION, COOPERATION AND
COORDINATION. WE BELIEVE THAT PROVIDING ADEQUATE HOUSING FOR
OUR HOMELESS VETERANS IS WITHOUT QUESTION mE FIRST STEP THAT
NEEDS TO BE TAKEN. BUT THE PROCESS CAN NOT END THERE WE
MUST INSURE THAT RELATIONSHIPS ARE ESTABLISHED AND MAINTAINED
BETWEEN rnOSE PROVIDING HOUSING AND THOSE WHO PROVIDE
MEDICAL CARE, COUNSELING, EMPLOYMENT, TRANSPORTATION,
BANKING, ETC. WE IN THE VETERANS' EMPLOYMENT AND TRAINING
SERVICE ARE PREPARED TO PLAY A MAJOR ROLE IN nus PROCESS AND
REMAIN AVAILABLE TO nus COMMITIEE TO PROVIDE WHATEVER
ASSISTANCE IS NECESSARY TO HELP OUR HOMELESS VETERANS BECOME
ONCE AGAIN PRODUCTIVE MEMBERS OF OUR SOCIETY.

THAT CONCLUDES MY TESTIMONY MR. CHAIRMAN. I REMAIN AVAILABLE TO

YOU TO ANSWER ANY QUESTIONS YOU MAY HAVE.
 105

December 15, 1997

Congressman Jack Quinn, Chainnan

Subcommittee on Benefits
US House of Representatives
335 Cannon House Office Building
Washington, DC 20515
RE: Testimony - H.I. 3039
Dear Congressman Quinn:

My name is Richard Gallagher, Executive Director of Alcohol and Drus Dependency Services,
Inc. an qency that operates 7 treatment programs for alcohol and substance abusers.

I support the passqe of H.R. 3039 The Veterans Transitional Housing Opportunities Act of
1997. H.R. 3039 will provide homeless veterans the opportunity to be enpged in treatment
for their addictions.

Alcohol and Drug Dependency Services, Inc. has served a homeless population for the put 20
years including providing services to homeless veterans. Overall 31"" of the veterans we
treated in 1996 and 1997 were homeless and 63"" of the homeless veterans were under the
age of 45.

From a practical standpoint this bill would make it easier to secure loans to operate programs
that provide transitional housing and services for homeless veterans. For example, sites may
be identified by providers but attempting to secure loans can be extremely frustrating because
the lenders many times are hesitant to loan monies particularly to IKIf11)rofit agencies.

Offering VA loan guarantees will help immensely to increase the number of veterans served
and to assist them in their recovery.

I appreciate the opportunity of providing this testimony and your commitment to veterans.

Sincerely,

9. ,-i:,,~ ~ (,~"- ~:<~

_....- --
Richard J. Gaillgher '-
" _ _1 _ _ _
Executive Director
RIGlpw
ADIIIfMTMTIVI QllACI
_ _ S1OHU
(718)821-0311 FAMILY ADDICTIOfIII OU'TPAT1INT IIIMeD
IVY_ CAlADlvnA
"'I'ATIINT MJlMMJTATtOIII NOGItAMI 1120 _ _ 210Ftlll'lllhnS1reet 2025BrctaOwa)o 2OO~SI ....
291 ElmStreel (7111182',1220 8unllo. 1';'1' 14202 BuffIlO. NY 14212 IutftilD. NY 14213
Bubto. NV 14203 '7161 !5~lS3 (71618927401 (71e1M2-8OI
(716) 8542977/~2997 W. . s.n.c.. NY 14224
 106

TESTIMONY OF

CHARLES WILl.JAMS
COLONEL, VS. ARMY{RBT.)
.EXECUTIVE DIRECTOR.
MARYLAND HOMELESS VBlEltANS, INC.

REFOREnIB

UNITED STATES HOUSE Of REPRESENTATIVES

COMMITTEE ON VETERANS' APFAJRS

DECEMBER 11. 1997

MIl. CHAIRMAN, MEMBERS OF THE COMMITTEE, MY NAME IS COLONEL

CHARLES WIU..IAMS. U.S. ARMY (RETIRED). I AM CURRENTLY EMPLOYED

AS THE EXECUTIVE DIRECTOR OF MARYLAND HOMELESS VETERANS. INC.

IT GIVES ME GREAT PLEASURE TO PROVIDE WRITTEN TESTIMoNY TO nIB

COMMITTEE ON AN ISSUE THAT IS Of PARAMOUNT IMPORTANCE TO nIB

MEN AND WOMEN WHO HAVE SERViID OUR COl.RllJRY.

MARYLAND HOMELESS VETERANS. INC. HAS BEEN IN OPERATION

FOR THREE YEAIlS AND IS A PRIVATE. SOl (CX) ORGANIZATION

DEDICATED TO PROVIDING HOMELESS VETERANS AND OTHER VETEIlANS

IN NEED. WITH A COMPREHENSIVE PROORA.'Iot TO ASSIST THEM IN

BECOMING VIABLE, PRODUCTIVE AND TAX-PAYING CIDZENS Of THEIR

RESPECTIVE COMMUNITIES. MARYLAND HOM&.ESS VETERANS

OPEl\ATES AMILITARD..Y STRUCTURED PkOORAM WHERE HOMELBSS

VETERANS RECEIVE AN ARRAY OF SUPPORTIVE SERVICES WlDCH

INCLUDE BUT ARE NOT UMlTED TO;

"DAY DROP-IN FACILITY

"BMIiIlOENCY HOUSING

"'1'RANSmONAL HOUSING

"SINGLE ROOM OCCUPANCY APARTMENTS (S.R.O.)

THE AFOREMBNTIONED APPROACHBS TO ASSISTING HOMELESS

VETERANS IS A "CONTINUUM OF CARE" EMPLOYED BY MY AGENCY TO

 107

RECLAIM UVS THAT HAVE 8EI!N DAMAGED BY ADDICTION TO ALCOHOL

ANI) NARconc SUDSTANCI!S.

MARYLAND HOMELESS VETERANS ALSO SER.VBS AS AN ADVOCATE,

PIlOMOTlNG THE INTI!.RESTS Of OVl!ll 1,100 HOMELESS VETDANS IN THE

CITY OF 8ALTIMOU AND OVEll3,6OO HOME.LESS VETBRANS IN THE STATE

OF MAllYLAND. rr IS ESTIMATED THAT AS MANY AS ()NE..THJRl) (113) OF

ALL HOMELESS MEN AND WOMEN ARE Vt....1!aANS-AS MANY AS 2~,OOO

VETERANS AU HOMI!LIISS ON THE NATlONAL U!VEL. AS AN ADVOCATE,

WE SPEAK OUT FOa. THE INTERESTS OF ItOMEI.t!SS VETEIlANS BEPOD

THE STATE I.I!OlSLATUU AND AT THt! LOCAL LBVEL. WE ALSO

PAllTICIPATE IN COALmONS. WITH OTHER. HOMI!U!SS SDVlCE

ORGANIZATIONS IN AN EPFOII.T TO 1NUUiASB PUBUC AND OOVE8NMI!NT

AWAlU!NESS AND SUPPORt TO MEET THa NEEDS 0' THE HOMI!l.ESS

POPULATION WHICH WE SI!IlVl!.

MARYLAND HOMEU1SS VET1!aANS fU1,LY StJPPORT THE VETEaANS

TRANSmONAL HOVSING OPPOKTUNITIES ACr OF 1997: HR.. 30)9. THIS

BIU. WD.J.. PROVIDE A "HAND-UI'" TO A SEGMENT OF AMEllICA WHO HAS

0lVEN A FULL MEASURE OF 1HEIR BODIES AND SOUL TO THE CALL OF

nmtIl COUNTRY. nus BU IS TlMELY AND DESEllV.ES YOUR. SUPPOB.t

'OR THE fOLLOWING REASONS.

FIltST, HOMI!L.ESSNESS AMONG VETEllANS USUALLY RESULTS

FROM EXP1UENcEs YOUNG MEN AU NOr QUITE IlEADY TO DI!AL WITH.

WE nAIN oua YOUNG MEN ON WEAPONS Of MASS DESTllUCTtON AND

SEND 11IEN TO DEfEND THE IDEALS OF OUR COVNT!lY BEfORE THEY AU

' " n I:1II'tv JOI,I Tn vnn: nil "t IV AI.COHOL. AS A RESULT OF THBSE

BXPEItIENCES, SOME BECOME fI.ACTUItI!D. WE HAVB HAD YOUNG MEN IN

0UIl1'a.OOllAM WHO WI!aE SNlPIIItS.1N VIETNAM, WHOSB JOB rr WAS TO

cou.ECT BODI.ES AND BODY PAllTS ON THE BA1"lU fJ1!LD, WHO HAVE

STOOD BY AND WATCHED THEIlt BUDDIES 08T BLOWN UP, AND WHO

HAVE PAllTICIPAlED INFlJRIOUS FIRE FKlRrS. mus, THESE YOVNOMEN

 108

HAVE SIGNIFICANT ISSUES THAT MOST PEOPLE DO NOT UNDERSTAND.

H.R. 3039 WOUlD AID IMMEASURABLY IN THE PROCESS OF RECLAIMING

THE LIVES OF THESE YOUNG MEN.

SECOND, AUTHORJZ1NO VA TO GUARANTEE LOANS FOR MULT-

FAMILY TRANSITIONAL HOUSiNG I'-OR HOMELESS VETERANS WOULD

INCREASE THE AVAlLABlLlTY OF HOUSING FOR A NEEDY POPULATION.

HOWEVER, A SYSTEM SHOULD BE DEVELOPED WHEREBY FUNDS CAN BE

MORE EASILY ACCESSED RATHER THAN WAITING FOR APPROPRIATED

noU.ARS.

THIRD, THE REQUIREMENT FOR BORROWERS TO WORK WITH AND

OBTAIN ASSISTANCE FROM VA HEALTH CARE FACILITIES AND STATE AND

LOCAL AUTHORITIES SHOULD AJ.)1l PROGRAMS AND STRUCTURE TO THE

PROCESS. THIS TIE-IN WOULD MAKE COUNSELORS, MANAGERS, AND

OTHER ASSISTANCE AVAILABLE WHICH IS SO NECESSARY IN DEALING

WITH THIS POPULATION. MARYLAND HOMELESS VETERANS HAS TAKEN

FULL ADVANTAGE OF THE SERVICES ALREADY AVAILABLE AT THE VA

HEALTH CARE FACILITIES, STATE AND LOCAL GOVERNMENTS. ~

PARTNERSHIPS HAVE MADE AN UNLlMlTED NUMBER OF SERVICES

AVAILABLE TO OUR RESIDENTS WITHOUT ADDlTIONAL RESOURCES

FOURTIi, THE REQUIREMENT FOR RESIDENTS TO SEEK AND OBTAIN

EMPLOYMENT AND MAINTAIN SOBRIETY WILL ENSURE THAT THE

PROGRAMWlLL BE A "HAND-UP" PROGRAM AND NOT A "HAND-OUT"

PROGRAM. HERE, PARTNERSHIPS WITH FEDERAL AND LOCAL AGENCmS

CAN TAKE ADVANTAGE OF ESTABLISHED 10B FD'mING PROGRAMS. nus

'" nNF. nF THE STRONG POINTS OF MARYLAND HOMELESS VETERANS

 109

PROGRAM. MHV HAS A FULL TIME STATE HIRED EMPLOYEE ON SITE FOR

JOB FINDING PURPoSES. SOBRIETY IS A MUST If THE PROGRAM IS TO BE

SUCCESSFUL. THERE SHOULD BE A SYSTEM FOR CHECKING TIlE

SOBRIETY ISSUE WITH ZERO TOLERANCE AS THE BAROMETER.

IN CLOSING. 1 WOULD LIKE TO THANK YOU POR THE OPPORTUNITY

TO SHARE OUR VIEWS WITH THE SUB COMMITTEE ON VETERANS

BENEFITS. HOMELESS VETERANS ARE LIKELY TO FACE GREATER

CHALLENGES IN THE YEARS AHEAD AS SCARCE RESOURCES STRAIN AN

ALREADY OVERBURDENED HOUSING SYSTEMS. 1 URGE YOU TO

FAVORABLY CONSIDER THIS BaL AS IT WILL MAKE MORE HOUSING

AVAILABLE TO THIS DESERVING POPULATION. TOO, I MUST ALSO

EMPHASIZE TIlE NEED FOR STRUCTURE AND PROGRAMS AND THE

AHlLITY TO POUCE THE SYSTEM.

o
 ISBN 0-16-056561-8

9 .... n~,.n18