U.S. GOVERNMENT PUBLISHING OFFICE

WASHINGTON : 

1 

89–010 

" ! SENATE 116TH CONGRESS

1st Session 

REPORT

2019

116–56 

Calendar No. 148 

REPRESENTATIVE PAYEE FRAUD 

PREVENTION ACT OF 2019 

R E P O R T 

OF THE

COMMITTEE ON HOMELAND SECURITY AND 

GOVERNMENTAL AFFAIRS 

UNITED STATES SENATE 

TO ACCOMPANY

S. 1430 

TO AMEND TITLE 5, UNITED STATES CODE, TO PREVENT FRAUD 

BY REPRESENTATIVE PAYEES 

JULY 15, 2019.—Ordered to be printed 


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(II) 

COMMITTEE ON HOMELAND SECURITY AND GOVERNMENTAL AFFAIRS 

RON JOHNSON, Wisconsin, Chairman 

ROB PORTMAN, Ohio 

RAND PAUL, Kentucky 

JAMES LANKFORD, Oklahoma 

MITT ROMNEY, Utah 

RICK SCOTT, Florida 

MICHAEL B. ENZI, Wyoming 

JOSH HAWLEY, Missouri 

GARY C. PETERS, Michigan 

THOMAS R. CARPER, Delaware 

MAGGIE HASSAN, New Hampshire 

KAMALA D. HARRIS, California 

KYRSTEN SINEMA, Arizona 

JACKY ROSEN, Nevada 

GABRIELLE D’ADAMO SINGER, Staff Director 

JOSEPH C. FOLIO, III, Chief Counsel 

HELEN M. HEIDEN, Senior Professional Staff Member 

DAVID M. WEINBERG, Minority Staff Director 

ZACHARY I. SCHRAM, Minority Chief Counsel 

ASHLEY E. POLING, Minority Director of Governmental Affairs 

ANNIKA W. CHRISTENSEN, Minority Professional Staff Member 

LAURA W. KILBRIDE, Chief Clerk 


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Calendar No. 148 

116TH CONGRESS REPORT " ! SENATE 1st Session 116–56 

REPRESENTATIVE PAYEE FRAUD PREVENTION 

ACT OF 2019 

JULY 15, 2019.—Ordered to be printed 

Mr. JOHNSON, from the Committee on Homeland Security and 

Governmental Affairs, submitted the following 

R E P O R T 

[To accompany S. 1430] 

[Including cost estimate of the Congressional Budget Office] 

The Committee on Homeland Security and Governmental Affairs, 

to which was referred the bill (S. 1430) to amend title 5, United 

States Code, to prevent fraud by representative payees, having considered the same, reports favorably thereon with amendments and 

recommends that the bill, as amended, do pass. 

CONTENTS 

Page 

I. Purpose and Summary .................................................................................. 1 

II. Background and Need for the Legislation ................................................... 2 

III. Legislative History ......................................................................................... 3 

IV. Section-by-Section Analysis .......................................................................... 4 

V. Evaluation of Regulatory Impact .................................................................. 5 

VI. Congressional Budget Office Cost Estimate ................................................ 5 

VII. Changes in Existing Law Made by the Bill, as Reported ........................... 6 

I. PURPOSE AND SUMMARY

The purpose of S. 1430, the Representative Payee Fraud Prevention Act of 2019, is to protect recipients of Federal retiree benefits 

from unscrupulous caretakers who take the retiree’s payments and 

use them not for the retiree’s benefit, but for their own. S. 1430 

closes a loophole that currently exists in statute whereby the embezzlement or conversion of Social Security and Veterans’ benefits 

by representative payees is a Federal felony, but the same embezVerDate Sep 11 2014 04:46 Jul 19, 2019 Jkt 089010 PO 00000 Frm 00003 Fmt 6659 Sfmt 6602 E:\HR\OC\SR056.XXX SR056

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1On July 27, 2015, the Committee approved S. 1576, the Representative Payee Fraud Prevention Act of 2015. That bill is substantially similar to S. 1430. Accordingly, this committee report 

is in large part a reproduction of Chairman Johnson’s committee report for S. 1576, S. Rep. No 

114–95. 2 5 U.S.C. § 8401, et seq. 3 5 U.S.C. § 8331, et seq. 4 5 U.S.C. § 8466(c); 5 U.S.C. 8345(e). 5Meetings and written communication between OPM IG staff and Committee staff in May, 

June, and July, 2015. 6Meetings between OPM IG staff and Committee staff in May, June, and July, 2015. 

7 42 U.S.C. § 408 (characterizing the conversion of another’s Social Security benefit payments 

as a felony, punishable by fine pursuant to title 18 and/or up to five years in prison). 8 8 42 U.S.C. § 1383a. 

9 38 U.S.C. § 6101 (criminalizing fiduciary misuse of money or property intended for the veteran’s use). 10 18 U.S.C. § 3571(b)(3). 11Meetings between OPM IG staff and Committee staff in May, June, and July, 2015. 12 Information provided to Committee staff by the OPM IG; see also Court shuts down West 

Philly mental health facility, Philly.com (Jan. 18, 2008). 13See Court shuts down West Philly mental health facility, Philly.com (Jan. 18, 2008). 

zlement or conversion of benefits provided to Federal retirees 

through the Federal retirement system is not.1

II. BACKGROUND AND THE NEED FOR LEGISLATION

In addition to other Federal benefits, Federal employees may be 

eligible for Federal retiree benefits processed through the Office of 

Personnel and Management (OPM): Federal Employees Retirement 

System (FERS) benefits,2 and Civil Service Retirement System 

(CSRS) benefits.3 Under Federal statute, individuals who are minors, mentally incompetent, or under some other qualifying legal 

disability can have their benefits paid on their behalf through a 

court-appointed or agency-approved representative.4 Such individuals authorized to receive the payments under these circumstances 

are frequently referred to as ‘‘representative payees.’’ 

The OPM Office of Inspector General (OIG) has reported to Congress an increase during recent years in the number of representative payees who take advantage of their position and use the 

money they receive for purposes other than to benefit the Federal 

retiree.5 The OPM OIG has further reported that OPM has an antiquated paper system for tracking representative payees.6

From 2004 to 2005, Congress created penalties for anyone who 

takes funds from Social Security Disability Insurance Benefits,7 Social Security Supplemental Income,8 or Veterans’ Benefits 9 and 

fraudulently uses the funds for their own purposes, rather than on 

behalf of the intended recipient. These statutes criminalize such 

misuse of government benefits as a felony, punishable by a fine of 

up to $250,000, up to five years in prison, or both.10

No similar penalty was created for those represenatives who misuse or embezzle CSRS or FERS benefits distributed by OPM. The 

absence of Federal statutory authority often dissuades U.S. Attorneys from bringing to justice those appointed to take care of government retirees’ benefits when they use these funds for any purpose other than for the benefit of the retiree that they represent.11

In one example provided by the OPM OIG, Sakina Park represented that she was running a personal care facility out of her 

home in Philadelphia, housing at least seven people with mentalhealth problems.12 However, Ms. Park did not have a license to do 

so.13 At least one of the individuals alleged to be under her care 

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14 Information provided to Committee staff by the OPM OIG; see also Court shuts down West 

Philly mental health facility, Philly.com (Jan. 18, 2008). 15 Information provided to Committee staff by the OPM OIG. 16 Information provided to Committee staff by the OPM OIG; see also Court shuts down West 

Philly mental health facility, Philly.com (Jan. 18, 2008). 17 Information provided to Committee staff by the OPM OIG. 18 Id. 19Meetings between OPM OIG staff and Committee staff in May, June, and July, 2015. 

petent and unable to accept Federal payments for herself.14 Ms. 

Park was listed as that individual’s represenative payee, authorized to collect OPM benefits on the annuitant’s behalf.15 In 2009, 

investigators arrived with police at the home and removed the occupants.16 At that time, it was discovered that the annuitant was 

not present—Ms. Park stated that the retiree was ‘‘always running 

away’’ and investigators found she had been admitted to another 

facility after being found on a street unconscious.17 The OPM OIG 

determined that Ms. Park had received just under $8,000 from 

OPM on the annuitant’s behalf and did not use any of those funds 

to care for the annuitant.18

The local district attorney prosecuted Ms. Park in 2013 because 

she also embezzled Social Security benefits from other individuals 

that were supposed to be in her care. Federal prosecutors may be 

reluctant to prosecute the misuse of OPM benefit payments alone 

because while such conduct may violate state embezzlement or conversion laws, it is not a specific Federal crime.19

The Committee believes this lack of Federal penalty leaves some 

of its most vulnerable civil servants, including those who may be 

mentally incompetent, with less legal recourse when they are taken 

advantage of and their retirement funds are misused. This legislation criminalizes the misuse of CSRS and FERS funds in the same 

manner that already exists for Social Security and Veterans’ benefits. In addition to prosecuting those who abscond with benefits intended for government retirees, S. 1430 prevents those who have 

committed this crime before (whether for CSRS, FERS, Social Security, or Veterans’ benefits) from serving in the future as a representative payee. 

III. LEGISLATIVE HISTORY

Senators James Lankford, Gary Peters, and Kyrsten Sinema introduced S. 1430 on May 13, 2019. The bill was referred to the 

Committee on Homeland Security and Governmental Affairs. 

The Committee considered S. 1430 at a business meeting on May 

15, 2019. The Committee ordered the bill reported favorably en bloc 

by voice vote as amended. Senators present for the vote on the bill 

were Senators Johnson, Paul, Lankford, Scott, Peters, Carper, Hassan, and Rosen. For the record only, Senators Portman, Romney, 

Hawley, and Sinema later asked to be recorded as a ‘‘yes’’ by unanimous consent. 

Consistent with Committee rules, the Committee reports the bill 

with a technical amendment by mutual agreement of the Chairman 

and Ranking Member. 


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IV. SECTION-BY-SECTION ANALYSIS OF THE BILL, AS REPORTED

Section 1. Short title 

This section provides the bill’s short title, the ‘‘Representative 

Payee Fraud Prevention Act of 2019.’’ 

Section 2. Representative payee fraud 

Paragraphs (a)(1) and (a)(2) of this section amend Title 5, chapter 83, subchapter III of the United States Code to include the definition of a ‘‘representative payee’’ as an individual appointed under 

section 8345(e)(1) and 8466(c)(1) to receive payments on behalf of 

a minor or an individual mentally incompetent or under other legal 

disability. 

Paragraphs (b)(1) and (b)(2) of this section amend Title 5, chapter 83, subchapter III of the United States Code to add a new section 8345a following section 8345, and Title 5, chapter 84, subchapter VI of the United States Code to add a new section 8466a 

following section 8466, respectively. 

New section 8345a makes it unlawful for any person authorized 

by OPM to receive CSRS payments on behalf of a minor or other 

qualifying individual (a representative payee) to embezzle or in any 

manner convert any portion of the amount received from such payments to a use other than for the use and benefit of such individual. If it is determined that a representative payee has embezzled or converted such payments, OPM is required to revoke the 

payments promptly and certify payment to another representative 

payee, or to the individual should it serve their best interest. Such 

conduct is punishable by a fine under Title 18 of the United States 

Code or imprisonment for not more than 5 years, or both. 

New section 8466a makes it unlawful for any person authorized 

by OPM to receive FERS payments on behalf of a minor or other 

qualifying individual (a representative payee) to embezzle or in any 

manner convert any portion of the amount received from such payments to a use other than for the use and benefit of such individual. If it is determined that a representative payee has embezzled or converted such payments, OPM is required to revoke the 

payments promptly and certify payment to another representative 

payee, or to the individual should it serve their best interest. Such 

conduct is punishable by a fine under Title 18 of the United States 

Code or imprisonment for not more than 5 years, or both. 

Paragraph (b)(3) makes technical and conforming amendments to 

the table of sections of chapters 83 and 84 of Title 5, United States 

Code, to reflect the new sections added in paragraphs (b)(1) and 

(b)(2). 

Subsection (c) clarifies that in the case that OPM suspends payment to a mentally incompetent or legally disabled individual until 

a representative payee is appointed, payments should resume as 

soon as practicable and include all amounts due. 

Subsection (d) prohibits an individual from being appointed as a 

representative payee to receive CSRS or FERS payments on behalf 

of a minor or individual with a legal disability if he or she has been 

convicted of violating the new sections 8345a or 8466a created by 

this bill, 42 U.S.C. 408 or 1383a (similar prohibitions on embezzlement of Social Security benefits), or 38 U.S.C. 6101 (similar prohibitions on embezzlement of Veterans’ benefits). 


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Section 3. Implementation 

Paragraph (a) amends section 8348(a)(1)(B) of Title 5 (Civil Service Retirement and Disability Fund) to include administering fraud 

prevention under sections 8345, 8345a, 8466, 8466a as an eligible 

use of the funds. 

Paragraph (b) requires OPM to issue regulations necessary to 

carry out the changes in law made by this bill within one year of 

the date of enactment. This subsection also authorizes OPM to 

issue additional regulations related to the administration of the 

representative payee program. 

Section 4. Effective date 

This section requires the legislation to take effect on the date of 

enactment and to apply on the effective date of the regulations promulgated under section 3(b)(1) of the bill. 

V. EVALUATION OF REGULATORY IMPACT

Pursuant to the requirements of paragraph 11(b) of rule XXVI of 

the Standing Rules of the Senate, the Committee has considered 

the regulatory impact of this bill and determined that the bill will 

have no regulatory impact within the meaning of the rules. The 

Committee agrees with the Congressional Budget Office’s statement that the bill contains no intergovernmental or private-sector 

mandates as defined in the Unfunded Mandates Reform Act 

(UMRA) and would impose no costs on state, local, or tribal governments. 

VI. CONGRESSIONAL BUDGET OFFICE COST ESTIMATE

U.S. CONGRESS, 

CONGRESSIONAL BUDGET OFFICE, 

Washington, DC, June 13, 2019. 

Hon. RON JOHNSON, 

Chairman, Committee on Homeland Security and Governmental Affairs, United States Senate, Washington, DC. 

DEAR MR. CHAIRMAN: The Congressional Budget Office has prepared the enclosed cost estimate for S. 1430, the Representative 

Payee Fraud Prevention Act of 2019. 

If you wish further details on this estimate, we will be pleased 

to provide them. The CBO staff contact is Amber Marcellino. 

Sincerely, 

PHILLIP L. SWAGEL, 

Director. 

Enclosure. 


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S. 1430 would establish new federal crimes related to representative payees who misuse payments received from the Federal Employees Retirement System and the Civil Service Retirement System. (A representative payee is a person or an organization that 

manages federal retirement benefits for recipients who are unable 

to do so themselves.) Enacting S. 1430 would enable the government to pursue cases that it otherwise would not be able to prosecute. CBO expects that only a relatively small number of offenders 

would be affected, however, so any increase in costs for law enforcement, court proceedings, or prison operations would not be significant. Any such costs would be subject to the availability of appropriated funds. 

Because those prosecuted and convicted under S. 1430 could be 

subject to civil and criminal fines, the federal government might 

collect additional amounts. Civil fines are recorded in the budget 

as revenues. Criminal fines also are recorded as revenues, deposited in the Crime Victims Fund, and later spent without future appropriation action. CBO estimates that the revenues and spending 

associated with those penalties would not be significant in any year 

because of the relatively small number of cases likely to be affected. 

The CBO staff contact for this estimate is Amber Marcellino. The 

estimate was reviewed by H. Samuel Papenfuss, Deputy Assistant 

Director for Budget Analysis. 

VII. CHANGES IN EXISTING LAW MADE BY THE BILL, AS REPORTED

In compliance with paragraph 12 of rule XXVI of the Standing 

Rules of the Senate, changes in existing law made by S. 1430 as 

reported are shown as follows (existing law proposed to be omitted 

is enclosed in brackets, new matter is printed in italic, and existing 

law in which no change is proposed is shown in roman): 


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UNITED STATES CODE 

* * * * * * * 

TITLE 5—GOVERNMENT ORGANIZATION AND 

EMPLOYEES 

* * * * * * * 

PART III—EMPLOYEES 

* * * * * * * 

Subpart G—Insurance and Annuities 

* * * * * * * 

Chapter 83—Retirement 

* * * * * * * 

Subchapter III—Civil Service Retirement 

* * * * * * * 

SEC. 8331. DEFINITIONS 

(1) * * * 

* * * * * * * 

(31) ‘‘customs and border protection officer’’ means an employee in the Department of Homeland Security (A) who holds 

a position within the GS–1895 job series (determined applying 

the criteria in effect as of September 1, 2007) or any successor 

position, and (B) whose duties include activities relating to the 

arrival and departure of persons, conveyances, and merchandise at ports of entry, including any such employee who is 

transferred directly to a supervisory or administrative position 

in the Department of Homeland Security after performing such 

duties (as described in subparagraph (B)) in 1 or more positions (as described in subparagraph (A)) for at least 3 years; 

[and] 

(32) ‘‘Director’’ means the Director of the Office of Personnel 

Managementø.¿; and 

(33) ‘‘representative payee’’ means a person (including an organization) appointed under section 8345(e)(1) to receive payments on behalf of a minor or an individual mentally incompetent or under other legal disability. 

SEC. 8345. PAYMENTS OF BENEFITS; COMMENCEMENT, TERMINATION, AND WAIVER OF ANNUITY 

(a) * * * 

* * * * * * * 

(e)(1) Payment due a minor, or an individual mentally incompetent or under other legal disability, may be made to the person 

(including an organization) who is constituted guardian or other fiduciary by the law of the State of residence of the claimant or is 

otherwise legally vested with the care of the claimant or his estate. 

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ability has not been appointed under the law of the State of residence of the claimant, payment may be made to any person (including an organization) who, in the judgment of the Office, is responsible for the care of the claimant and may appropriately receive 

such payments on behalf of the claimant, and the payment bars recovery by any other person. If the office determines that direct payment of a benefit to an individual mentally incompetent or under 

other legal disability would cause substantial harm to the individual, the Office may defer or suspend direct payment of the benefit 

until such time as the appointment of a representative payee is 

made. The office shall resume payment as soon as practicable, including all amounts due. 

(f) The Office may not authorize a person to receive payments on 

behalf of a minor or individual of legal disability under subsection 

(e) if that person has been convicted of a violation of— 

(1) section 8345a or 8466a; 

(2) section 208 or 1632 of the Social Security Act (42 U.S.C. 

408, 1383a); or 

(3) section 6101 of title 38, United States Code. 

* * * * * * * 

SEC. 8345a. EMBEZZLEMENT OR CONVERSION OF PAYMENTS 

(a) EMBEZZLING AND CONVERSION GENERALLY

(1) IN GENERAL.—It shall be unlawful for a representative 

payee to embezzle or in any manner convert all or any part of 

the amounts received from payments received as a representative payee to a use other than for the use and benefit of the 

minor or individual on whose behalf such payments were received. 

(2) REVOCATION.—If the Office determines that a representative payee has embezzled or converted payments as described in 

paragraph (1), the Office shall promptly— 

(A) revoke the certification for payment of benefits to the 

representative payee; and 

(B) certify payment— 

(i) to another representative payee; or 

(ii) if the interest of the individual under this title 

would be served thereby, to the individual. 

(b) PENALTY.—Any person who violates subsection (a)(1) shall be 

fined under title 18, imprisoned for not more than 5 years, or both. 

* * * * * * * 

SEC. 8348. CIVIL SERVICE RETIREMENT AND DISABILITY FUND 

(a) There is a Civil Service Retirement and Disability Fund. The 

Fund— 

(1) is appropriated for the payment of— 

(A) * * * 

(B) administrative expenses incurred by the Office of 

Personnel Management in placing in effect each annuity 

adjustment granted under section 8340 or 8462 of this 

title, in administering survivor annuities and elections providing therefor under sections 8339 and 8341 of this title 

or subchapters II and IV of chapter 84 of this title, in administering alternative forms of annuities under sections 

8343a and 8420a (and related provisions of law), in makVerDate Sep 11 2014 04:46 Jul 19, 2019 Jkt 089010 PO 00000 Frm 00010 Fmt 6659 Sfmt 6602 E:\HR\OC\SR056.XXX SR056

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ing an allotment or assignment made by an individual 

under section 8345(h) or 8465(b) of this title, in administering fraud prevention under sections 8345, 8345a, 8466, 

8466a of this title, and in withholding taxes pursuant to 

section 3405 of title 26 or section 8345(k) or 8469 of this 

title; 

* * * * * * * 

CHAPTER 84—FEDERAL EMPLOYEES’ RETIREMENT 

SYSTEM 

* * * * * * * 

Subchapter I—General Provisions 

* * * * * * * 

SEC. 8401. DEFINITIONS 

(1) * * * 

* * * * * * * 

(37) the term ‘‘revised annuity employee’’ means any individual who— 

(A) * * * 

(B) after December 31, 2012, and before January 1, 

2014, becomes employed as an employee or becomes a 

Member covered under this chapter performing service 

which is creditable service under section 8411; [and] 

(38) the term ‘‘further revised annuity employee means any 

individual who— 

(A) * * * 

(i) * * * 

(ii) * * * 

(iii) * * * 

(B) after December 31, 2013, becomes employed as an 

employee or becomes a Member covered under this chapter 

performing service which is creditable service under section 8411ø.¿; and 

(39) ‘‘representative payee’’ means a person (including an organization) appointed under section 8466(c)(1) to receive payments on behalf of a minor or an individual mentally incompetent or under other legal disability. 

* * * * * * * 

Subchapter VI—General and Administrative Provisions 

* * * * * * * 

SEC. 8466. APPLICATION FOR BENEFITS 

(a) * * * 

(b) * * * 

(c) 

(1) Payment due a minor, or an individual mentally incompetent or under other legal disability, may be made to the person (including an organization) who is constituted guardian or 

other fiduciary by the law of the State of residence of the 

claimant or is otherwise legally vested with the care of the 

claimant or his estate. If a guardian or other fiduciary of the 


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individual under legal disability has not been appointed under 

the law of the State of residence of the claimant, payment may 

be made to any person (including an organization) who, in the 

judgment of the Office, is responsible for the care of the claimant, and may appropriately receive such payments on behalf of 

the claimant, and the payment bars recovery by any other person. If the office determines that direct payment of a benefit to 

an individual mentally incompetent or under other legal disability would cause substantial harm to the individual, the Office may defer or suspend direct payment of the benefit until 

such time as the appointment of a representative payee is made. 

The office shall resume payment as soon as practicable, including all amounts due. 

(d) The Office may not authorize a person to receive payments on 

behalf of a minor or individual of legal disability under subsection 

(c) if that person has been convicted of a violation of— 

(1) section 8345a or 8466a; 

(2) section 208 or 1632 of the Social Security Act (42 U.S.C. 

408, 1383a); or 

(3) section 6101 of title 38, United States Code. 

SEC. 8466a. EMBEZZLEMENT OR CONVERSION OF PAYMENTS 

(a) EMBEZZLING AND CONVERSION GENERALLY.— 

(1) IN GENERAL.—It shall be unlawful for a representative 

payee to embezzle or in any manner convert all or any part of 

the amounts received from payments received as a representative payee to a use other than for the use and benefit of the 

minor or individual on whose behalf such payments were received. 

(2) REVOCATION.—If the Office determines that a representative payee has embezzled or converted payments as described in 

paragraph (1), the Office shall promptly— 

(A) revoke the certification for payment of benefits to the 

representative payee; and 

(B) certify payment— 

(i) to another representative payee; or 

(ii) if the interest of the individual under this title 

would be served thereby, to the individual. 

(b) PENALTY.—Any person who violates subsection (a)(1) shall be 

fined under title 18, imprisoned for not more than 5 years, or both. 

* * * * * * * 

Æ 


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