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 

47-767 CC 

Serial No. 105-26 

U.S. GOVERNMENT PRINTING OFFICE 

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 subcommittee) 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, Buffalo, 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 ranking 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 effort 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 appropriation, 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 believe 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 Homeless Veterans Program. The Compensated Work Therapy Program 

uses work as a therapy and features transitional homes. Thirdly, 

the Hun V ASH 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 available 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 witnesses 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, obviously 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 important subject. 

I'm not on the Veterans' Committee, so I'm here as a very interested 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 veterans. 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 Batavia. 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 Coalition for Homeless Veterans estimates that an astounding 40 percent 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 refuge 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 homeless 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, despite 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 veterans. 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 societal needs. As many as 85 percent of homeless individuals suffer 

from mental illness, substance abuse or chronic illness that contribute 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 longterm solution to these problems. 

These individuals have served selflessly and honorably in the defense 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 homeless, 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 detail, 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. Sometimes 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 veterans 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 enlisted 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 General 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 veterans anymore. And that's occurred under Democratic and Republican administrations. And all of us who have served in our country's defense know that the very first lesson we were taught in 

basic training or in boot camp was that we should never leave another 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 effort, and I look forward to working with/ou to get this legislation passed. And John, we'll be asking you an the other Vietnam veterans 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 Congressman 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-sponsored 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 everybody 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 minutes 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 supporter 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 before, 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; WILLIAM 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 VETERANS 

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 problem, 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 improve. 

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 providing 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 selfsustaining 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 because there are not sufficient resources through appropriations? 

Mr. Chairman, this is a good bill. It promises to serve our veterans 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 documented 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 overwhelming 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 veterans. 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 parole, 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 Department 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 income, employers utilizing available work force skills and local 

economies receiving increased benefits from veteran spending. The New York State Department of Labor supports placing veterans 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 incorporated by requiring veteran applicants to enroll in Veterans Administration Health care as well as with employment services including 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 Veteran Reintegration Program, the Job Training Partnership, Act and 

others. 

Cost savings appreciated by the VA could be invested in its National 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 veterans housing projects. 

Allow me to comment for a moment on the issue of transportation 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, inexpensive means of public transportation is a critical need in this country 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 outpatient 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, employment and training and transportation. 

Given the access to affordable stable living conditions in partnership 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 result 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 Center, 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 Administration 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, employment and benefits counselling, to a wide range of veterans. 
10 

The Vet Center program with 18 years in the business of outreach to veterans have staff who are specially skilled to do the community 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 network 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 specifically for veterans our State of the art western New York Veterans Housing Coalition, which has some 19 transitional housing 

beds. In Niagara County there is the COPIN Foundation, a residence 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 homeless 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 transitional 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 option 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 veteran evicted from an apartment or living arrangement with a family member for various reasons. A veteran recently divorced or 

downsized, perhaps downsized from the military, with resulting 

loss of residence. Transitional housing prevents further deterioration 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 resources and options and develop a plan,. 

We have veterans in transition from one kind of treatment program 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 treatment, 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. Transitional housing supports continuing treatment gains initiated in 

treatment programs. And the VA has recently opened a new residential program at the hospital for veterans who are involved in intensive 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 invariably 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 definition, transitional is change, and change always involves some degreeof 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 demoralized 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 percent 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 community 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. [Laughter.] 

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 anything 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 Center, 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. Second, 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 Marine 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 activist 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 sector worked with the Federal Government to solve problems. NHS 

added the community to that partnership. H.R. 3039 expands the participation to address another community issue. We all know we have homeless veterans in the community. 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 Housing 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 sector financing including tax credit packages, Imes of credit and 

equipment loans have been used to finance their projects. H.R. 

3039 'is a workable simple solution that brings together an established community group, the financial community and the VA, focused 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 alcohol abuse. This facility takes the homeless that have been devastated by alcohol and drug abuse arid provides shelter and treatment. 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 veteran 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 successful as part of nurturing community partnerships. Home ownership, 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. Housing 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, Executive Director of Alcohol and Drug Dependency Services, and it's 

an agency that operates seven programs for alcoholics and substance 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 homeless 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 percent 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 secure 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 lending 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, something 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 willing 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 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 10 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. 
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 program 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 understand some of the common denominators that influence our 

agency's approach to permanent and transitional housing in Western New York. 

First of all, we believe the term "transitional housing" no longer 

is associated with only homeless veterans who have drug and alcohol problems. There must be an intentional focus of and special attention on and consideration for veteran transitional housing of 

special populations such as veterans' families with children, the elderly 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 Veterans Affairs estimates that approximately 20 percent of their inpatients are homeless or facing homelessness due to the lack of affordable and accessible housing. 

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. You combine these factors with the lack of capital 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 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 does exist to provide step 1 and 

step 2 approaches to a transitional housing concept 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. 

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 cost effective al-
17 

temative to housing hold over inpatients who cannot find affordable 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 needed 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 sharing agreements with their local communities. We all know that currently 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 higher 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 estate risk as much consideration as social policy. 

The bill looks for local and State assistance at a time when resources are scarce and special interest competition in preferred regions is extremely high. A proper balance m the financing component 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 developments whose parameters include utilization of under-used VA facilities and Department of Defense real estate from military base 

closings? Development of transitional housin~ in the vicinity of our 

V AMC's would prove valuable and cost effectIve. It would strengthen 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 approved, thus increasing new income streams and new partnerships, 

which can and could be utilized for operations and thus free up additional monies for new constructions or the rehabilitation of existing 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 veterans 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 appropriate 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 advice 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 existing reserves of the National Life Insurance Trust Fund with virtually 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 support 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 affordable 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 supportive 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 employment in a limited number of cases for veterans who are permanently 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 models of service delivery, as well as the system-wide pressures on the 

VA to save money. ' 

The outpatient delivery of neuro-psychiatric care, including substance abuse treatment, treatment for Post Traumatic Stress Disorder, 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 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 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 programs destroys any effectiveness that treatment might provide toward 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 Wilkins, 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 leveraged 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 suggestions 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 facilities-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 Coalition, 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 emergency situation is what we're frequently confronted with at the 
21 

Vets Center, when people call us and they're on the verge of homelessness--

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 arrangement 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 referring the veterans to housing, and that in some cases, that I have 

observed myself personally, veterans after going through an intensive 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 something that we're trying to address with our local VA officials relative 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 thatis 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 access 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 together. But when you have a continuum set up shelter, those services 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 started 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 microphone, 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 utilizing 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 veterans, 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 dollars, giving us 36 shelter plus care Section 8's for homeless. And 

we've been able to utilize those and leverage those in our community. 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 additional 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 alcohol, any number of things, 2 months is, doesn't seem to me toyou'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' organizations 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 nationally. 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 minutes 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 veterans, 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 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 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 homelessness. They are often homeless as a direct consequence of their military 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 multifamily 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 the V A: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 support 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 complete 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 rendering themselves economically 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 all elements of this great society 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 innovative and needed legislation. We congratulate subcommittee chairman Quinn for holding this important hearing in Buffalo And we 

wish to recognize and commend Chairman Bob Stump for his outstanding leadership as the original sponsor of the Veterans Transitional 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 Buffalo 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 percentage 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 veterans 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 veterans 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 information, I believe that after the word ordered, there should be inserted the word terminated. This has already contributed to the increase 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-veteran 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 veterans 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 District. 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 services, 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 Development 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 letter 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 appropriate 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 support. They've been active since 1984. Hopefully we can continue to 

operate, and with the approval of these laws, we can gain assistance 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 letter 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 benefit. They are not here today. We will ask them to submit written 

testimony, and we'll conduct a meeting with our staff here afterwards. 

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 operates 127 beds in the Western New York region. Back in 1989, we 

began a program of treatment, to shelter houseless Vietnam veterans and other populations, and also offered specialized group therapies 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 symptomatology. 
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 because 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 substance 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 especially 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 environment, 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 confused. 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 veterans. 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 revolving 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 examinations for my Christmas present, from college. 

Mr. QUINN. Great. Nice Christmas present. 

Mr. FINK. So thank you for your time. We can offer the continuum 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. appears on p. 82.] 

Mr. QUINN. Thank you, Dennis. Thank you very much. We appreciate 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 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 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 perhaps 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 majority are single. Homeless veterans tend to be older and more educated 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 discussion, 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 Transitional 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 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 winIwin 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 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 finish. 

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 development 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 maintain 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 addition, residents will be required to take responsibility for themselves by obtaining and holding employment and paying for a portion 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 outpatient 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 inception 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 number 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 supportive 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 instances, 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 financial 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 Service 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. Government Securities has been returned to the Life Insurance Trust 

Fund. Only revenue over and above that generated by the investments in the U.S. Government Securities should be used to guarantee 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 veterans, 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 suggestions. 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 Washington, 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 testimony because it's pretty extensive. 

The Non Commissioned Officers Association of the United States 

appreciates this opportunity to appear and present testimony at today'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 soldiers 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 veteran 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 expedition, consideration and passage of this bill. It is a responsible bill 

that requires accountability, both from the borrower and the homeless 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 Officers 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 veterans that hold these policies. As a matter of longstanding principle, 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 entities, 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 assume and maintain personal independent responsibility for their 

lives. If evidence is not persuasive during the first 3 years, this result is being achieved, the Non Commissioned Officers Association 

asks that a serious evaluation be undertaken before further expansion of the program. Although private sector involvement will be substantial, the Veterans 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 gentleman 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 favorable report the bill to the House Committee on Veterans' Mfairs. 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, whenever a bill is offered in the House or the Senate, it's a work in motion. 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 everybody. 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 ongoing 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-mention 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 purposes, and at the VA Hospital for Bill's purposes, are here to answer questions that we might have, more than necessarily testimony. Jim, are you going to plan to make some remarks this mornmgf . ? 

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 VETERANS 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 informed, 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. Chairman, 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 Western New York, there are three programs in place that are all different. And the reason for that is, the program that Congress authorized gives the Department the opportunity to review competitive 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 available 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 number 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 community assessment process, which requires medical center directors 

and regional offices to meet with their communities at least annually, 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 V Ns 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 identified 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 traditional 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. 

Mr. 

QUINN. 

DOUGHERTY. 

Yes. 

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 mentioned 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 Assistance 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 transitional 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 foreclosed 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 providers to have small programs in smaller communities. Compensated 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 generally has been homeless, the opportunity to come through a program 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 department looks to see how many veterans who come through the homeless 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 Department 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 discharging 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 representative with the Department of Labor and in charge of the 

State of New York as it relates to veterans employment and training. Sir. 

STATEMENT OF JAMES R HARTMAN 

Mr. HARTMAN. Thank you, Mr. Chairman. Thank you for this 

special opportunity to address you and your distinguished colleagues regarding the Veterans Transition Housing Opportunities 

Act of 1997. 

I bring you warm regards from both our Secretary of Labor, Alexis Herman, and our recently confirmed Assistant Secretary for Veterans 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 LaFalce 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 involved. 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 number of Vietnam veterans registering for services with the Department of Labor Job Service offices and the U.S. Department of Veterans 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, incarceration, parole, medical and mental health. Our complete summit 

findings are still in the preparation stage, but there were two issues 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 almost 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 officials in acquiring sites for housing, (2) residential communities 

balk at having transitional housin~ in their neighborhoods, (3) programs 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 homeless 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 tremendous, 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 reauthorization 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 involvement, both financially and through general support from employer groups. However, another key finding from our summit was 

that many agencies and organizations providing services to veterans need to improve communications, cooperation and coordination. 

We believe that providing adequate housing for our homeless veterans 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 prepared 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 testimony, and Bill and Greg both for being at the table for the purposes of questions. I just, Mr. Dougherty, more of a general type 

situation, we've sat, all of us, through lots of hearings in Washington about veterans and health care. Earlier on, one of our witnesses 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 recently passed, you require the Department to respond sort of department wide on all the efforts that we're making to assist homeless 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 Department is going to be asked to respond in a comprehensive way to 

all the tliings that we do for homeless veterans. The one piece, obviously, 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 program, 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 report 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 treated 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 chairman, 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 always 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 funding 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 commitment, 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 reason why a hearing today is critically important, is that we, weI, 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 encouraging 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/L VER), 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 homeless ness 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'portunities 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 twentyfive 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 V A 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 

V A 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 V A 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 

Veterans Administration HCMI 

Veterans Administration Drug! Alcohol 

Shelter Plus Care 

Emergency Shelter Grant 

Community Development Block Grant 

Homeless Housing Assistance Program 

Dept. of Social Services 

Revenue Recognized 

June 30 

!221 1996 

$146,597 

72,890 

38,535 

1,654 

12,600 

25,000 

15,284 

$171,236 

70,853 

38,866 

16,667 

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. 
SUMMARY: 

58 

CIRRICULUM VITAE 

FRANK J. FALKOWSKI 

12667 Roll Road 

Akron. NY 14001 

(716)542·1096 

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 

5181 to 10/89 

7/87 to lI88 

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. 

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. 

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. 
Frank J. Falkowski 

Pagel 

9185106187 

4/83106187 

9184106187 

1/80103/83 

59 

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. 

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. 

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. 

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. 
Frank J. Falkowski 

Page 3 

EDUCATION: 

60 

STATE UNIVERSITY COLLEGE AT BUFFALO 

Business Management ~ Public Administration 

CANISruS COLLEGE 

Registered Apartment managers (RAM) Program 

CANISruS COLLEGE 

Professional Multi·Housing 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: 

• Member. 

• Member: 

• Member: 

• Member: 

• Co-Author: 

• Co--Author: 

• Testified: 

• Testified: 

• Testified: 

• Testified: 

• Advisor: 

Erie County Legislature Veterans Committee. 

Disabled American Veterans 

Phi Beta Lamb. Business Fraternity 

American Management Association 

Speaker of the House Congressional Conference on Vietnam Veterans, 

W.ashington, D.C. 

'Impact Study on V.A. Budget Cuts' 

Commentary to the National Community Action Association. 

'Statistical Survey on Health Svrnptoillology of Veterans Exposed to Herbicide' 

Presented to the N.Y. State Diox;in Commiss~on. 1982. 

U.S. House of Representatives Co~mittee on Small Business, Subcommittee on 

General Oversight and the Economy. 1986,1987 and 1988. 

U.S. House of Representatives. Committee of Veterans Affairs, Subcommittee on 

Oversight & Investigation 

New York State Dioxin Commission, 1982. 

2nd District Federal Court, Agent Orange Litigation, 1984. 

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 of 1997" 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 LA VETS 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 V A 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 V AMC 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 V AMC), 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 V Ittm2lls 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 of these 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 nonprofit 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. 
(D 

D ._. u: 

72 

Vietnam Veterans of America, Inc. 

1224 M Street. NW. W .. \hington. DC 20005·5183 • Telephone (202) 628·2700 

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 (VV A) is pleased to present our views and recommendations on H.R.3039, 

The Veterans T raositional 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 T ransitiouaJ. 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 V A, 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 to· assure 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 some· most.needed amhority to help on a national-and 

loc:a11evel. 

VV A letter to CIlainDu StalBp 

Mr. Chairman I respectfuDy·ask for penoission to include a letter from VV A 

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 VV A 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 V cterans Analysis and Statistics .DV A Assistant 

Secrewy for Policy and Plarming 
76 

(D. 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 

p ....... _ 0: 

The Hooonble Bob Stump 

CIIair 

~CO~O"Vd~'ABmn 

335 Cumon House 0f6<:e Buildina 

WasbiDpm. D.C; 205U 

D .... ChaUmu Smmp: 

July 30. 1997 

Vi_ VeIaDS of AmIrica (VV A) 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 -.nt. 

I know that you ohare VV 1.'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 YCUPllspecific proJraIDS. 

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

of the HtJD.adnJirrisrered homcIeu JI"IIRI'l NN!J, VV A 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 _aIlS .... ~ _we probIaDI iDW<Iiq M5O, 

SUbSWlCl abuse, 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 
Chairman Bob Stump 

July 30, 1997 

Page 2 

77 

into mainstream society and reducing recidivism. If these unique needs -- often the 

underlying ca.use(s) of veterans' homclessness - ate not adequately addressed, VV A 

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 VV A 

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. 

VV A does have CODCCnlS with the fuIIding offset proposed in the chaft biD. VV A 

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-topay-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, VV A 

does suppon the loan guaranty concept and pledges to work with you and the Committee 

to assure enactmeat. 

VV A 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. VV A 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 . 

GCD:krw 

Sincerely, 

~-i- c. o..,r. 

Geotp C. DuaiN 

National President 
78 

I~)\of $IIWI,NW. W~DC2OOO$-SI83 • TeJep/lcIIe~)62I-2700 __ 'JaI __ '_~_ .~_104Q -"'_1 

__ IIIot: .. _ ._.. • "-711Jl._~ 

VIETNAM VD'DA1'fI Of AMIIIICA, INC. 

....... .... _'.'---

,H" ~c. ,~" • ., 

• .. ..:.: "::'0- • • ;.;,,.. ::r~ . . ':' .. ~-____ ,_.,. 

!be IIIIioDII oqIIIiaIiaD V_ v_;. 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- (s.vice -'-tali_). TIIis iI abo IrQ fI_ 

prIIViaus two kaI,.,.. 

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 e«ort 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 adlhlsecllIy·JIftIIIIIIIIS '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 
SERVING 

WITH 

PRIDE 

AM VETS 

86 

Statement of 

Martin Bugaj 

AMVETS First Vice Commander 

Dept of New York 

Before the 

House Veterans Affairs Subcommittee 

Veterans Transitional Housing Act 

H.R.3039 

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 V A, 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 AfricanAmerican 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 V A is not in the multihousing business. V A 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 V A 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 

American t..olon 1110 underatlnd. diet many veteran., for varlou. realOOl. 

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

I. why daleg.... 110 The American Levion" .. ventY·ointh National 

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 II 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 

of New York fully oonours. Mr. Chalnnln, Thl Amerlc:llt'l Legion fully 

IUPporta Dw V-.. T£IO!itlonal Houljna Apt pf 1987. While thla 

fnnovetIve p/lot program will not bring about an.end to horneI .. _ 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 -.t 

Islc;f.- for then PragrImI. In fact, many VA .tIIff for ~Ized outrNch 

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. • 1 a 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 Inv •• tad 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.rUdp •• t. 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 

lu._ 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 .1lIl •• I.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.oeiatlon·s 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 "is service, 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.S •• nd 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. 

V A 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. 
U.S. Department of Labor 

102 

~ ........... ......, .. ..,......----... , ..... ----- ...... ,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. 
Congressman Jack Quinn, Chainnan 

Subcommittee on Benefits 

US House of Representatives 

335 Cannon House Office Building 

Washington, DC 20515 

Dear Congressman Quinn: 

105 

December 15, 1997 

RE: Testimony - H.I. 3039 

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. 

RIGlpw 

ADIIIfMTMTIVI _ QllACI 

"'I'ATIINT MJlMMJTATtOIII 

.... -

NOGItAMI 

291 ElmStreel 

Bubto. NV 14203 

(716) 854·2977/~2997 

Sincerely, 

9. ,-i:,,~ ~ (,~"- ~:<~ Richard J. Gaillgher '-

Executive Director " __ 1 __ _ 

--

__ (718)821-0311 S1OHU 

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106 

TESTIMONY OF 

CHARLES WILl.JAMS 

COLONEL, V·S. 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 AMILIT ARD.. 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 UV£S THAT HAVE 8EI!N DAMAGED BY ADDICTION TO ALCOHOL 

ANI) NARconc SUDST ANCI!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 TlMEL Y AND DESEllV.ES YOUR. SUPPOB.t 

'OR THE fOLLOWING REASONS. 

FIltST, HOMI!L.ESSNESS AMONG VETEllANS USUALLY RESULTS 

FROM EXP£1UENcEs 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 HA VB 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 MUL TFAMILY TRANSITIONAL HOUSiNG I'-OR HOMELESS VETERANS WOULD 

INCREASE THE AV AlLABlLlTY 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 

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