Running head: SERVING THOSE WHO SERVED 1

Serving Those Who Served: An Analysis of Veteran Homelessness in the United States

Kaitlin W. Paasch

Legal Studies Academy

First Colonial High School

SERVING THOSE WHO SERVED 2

Abstract

Veteran homelessness is a vital issue in American society, as many men and women dedicate

their time and service to protect their country. This paper analyzes how the federal government

and nonprofits are working in the United States to end veteran homelessness. First, the author

briefly discusses the history of veteran homelessness in the United States and evaluates the

different causes for veteran homelessness, such as substance abuse or mental health issues. This

paper then reflects on the initiatives taken by the federal government and nonprofit organizations

and how they have ultimately helped homeless veterans. The author then discusses legislation

and a court case that has helped advance as well as hinder homeless veterans in their search for

housing. Finally, this paper proposes ways to better help homeless veterans and help end their

endeavor to find permanent housing.

SERVING THOSE WHO SERVED 3

Serving Those Who Served: An Analysis of Veteran Homelessness in the United States

Abraham Lincoln once said, “Let us strive on to finish the work we are in, to bind up the

nation’s wounds, to care for him who shall have borne the battle and for his widow and his

orphan, to do all which may achieve and cherish a just and lasting peace among ourselves and

with all nations.” The federal government and nonprofits have worked hand in hand in

numerous efforts to end veteran homelessness; however, according to Nikki Wentling, a reporter

at the Stars and Stripes, the homeless veteran rate seems to be staying steady. Homeless veterans

make up around 11% of the homeless population. From 2016 to 2018, the number of homeless

veterans wavered at around 40,000 ​(Wentling, 2018). ​The high rate of veterans who are

identified as homeless demonstrates the lack of effective initiative taken by the federal

government by neglecting veterans who have served our country.

Background on Veteran Homelessness

Ever since the Revolutionary War, there have been reports of homeless veterans living on

the street. Veterans throughout history have had trouble receiving support from their

communities and the government after serving time within the United States military.

Definition of Homelessness

Homelessness is defined in the McKinney-Vento Act as, “l​ack a fixed, regular, and

adequate nighttime residence” (Vitelli, 2017). Veterans who meet the definition of homeless as

found in federal legislation and are deemed qualified by Veterans Affairs may be entitled to

different benefits depending on the situation they are facing (M. Chick-Ebey, personal

communication, November 1, 2019).

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History

According to the Coalition for the Homeless, there has been an influx of veterans being

displaced from their homes as early as the colonial era. By the 1870s, vagrancy was identified as

a national issue. Many Civil War veterans were seen as nomadic, and many of these veterans had

injuries or traumas that prevented them from gaining work. Vagrancy laws were then enacted in

order to fix the problems of wandering veterans. During the Great Depression, many World War

I veterans ended up becoming homeless. After World War II, there was a sharp increase in

homeless veterans due to the large amount of injuries and disabilities that were incurred during

the war. Once the Montgomery GI bill was introduced in 1984, homeless veterans were able to

use benefits included to their advantage in order to prevent homelessness. Around the time of the

Vietnam War, the American people finally acknowledged the link between veterans and

homelessness. Many men and women who had served in the military end up being homeless

(Coalition for the Homeless, n.d.)​.

Causes of Veteran Homelessness

When looking at veteran homelessness, there are often many factors to take into account.

Mental health and substance abuse are the biggest factors when it comes to identifying those at

risk for veteran homelessness, as well as the lack of outreach from the government, combat

disabilities, and past vulnerabilities.

Mental Health and Substance Abuse

Veterans that have mental health issues or substance abuse problems are often more

likely to become homeless; many veterans that are homeless have mental health issues as well as

substance abuse problems (Vitelli, 2017). According to a study done by Jack Tsai, a psychiatry
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professor at Yale University that works with the National Center on Veteran Homelessness, the

veterans that become homeless have a higher rate of having mental illnesses than normal

homeless people by around 7.2%. Many veterans have issues with their mental health due to

some trauma that has occurred during their time served, often branching into having a disorder

that will affect their lives. In order to cope with the negative experiences that have occured,

many veterans turn to using illegal substances (Tsai, 2018).

According to Amy Morin, a licensed clinical social worker and psychotherapist, around

two thirds of Iraq and Afghanistan homeless veterans have Post Traumatic Stress Disorder,

which demonstrates the strong link between time served in the military leading to a mental health

crisis. Once a veteran has been identified with a mental illness, such as PTSD, they more than

likely will not receive further treatment. With this burden, it is difficult for the veteran to obtain

and maintain jobs as well as relationships (Morin, 2019). According to a study by Jack Tsai,

psychiatric symptoms are difficult to handle for veterans with mental illnesses. Veterans with

some psychiatric symptoms often lead to heightened anger in their relationships, which may even

lead to disputes between themselves and their landlord or whoever is providing them housing.

This may also lead to a higher rate of eviction for the veteran, resulting in them possibly

becoming homeless (Tsai, 2018).

Disabilities and Vulnerabilities

Veterans that do not have substance abuse problems or mental illnesses often have other

risk factors from their childhood or from their military service that may indicate the higher

chance of becoming homeless. For example, veterans that have previously had financial or social

instabilities in the past are more likely to become homeless. Veterans that have become homeless
SERVING THOSE WHO SERVED 6

have reported similar childhoods that include trauma, behavioral issues, as well as familial

instability (Tsai, 2018). Those that have disabilities from their military service are also more

likely to become homeless. Over 70% of the homeless veteran population are disabled due to the

fact that it is harder to find a job once considered disabled ​(M. Chick-Ebey, personal

communication, November 1, 2019).

Lack of Outreach

Once dismissed from military service, many veterans leave thinking that they will not

need the assistance that Veterans Affairs, also known as the VA, provides for them. Veterans do

not know of the programs that are provided to them and how easily they can be accessed. There

are hotlines that are available for veterans to receive needed services. For example, there are

housing crisis hotlines that can easily connect veterans with the assistance needed in order to find

them shelter (M. Chick-Ebey, personal communication, November 1, 2019). The majority of

outreach, around 41%, is done through referrals to centers where veterans can be helped

according to their situation (Tsai, 2014).

According to an article written by Chris Adams, an analysis completed by the

Department of Veterans Affairs states that 59% of veterans that are surveyed are found to have

very little understanding of the benefits they are entitled to. The Government Accountability

Office has said that their efforts to reach out to veterans have not been able to be measured. It

often varies by area where outreach efforts are most effective. Once an understanding of the

benefits is established, wait times on hotlines are often discouraging when it comes to reaching

out for help. Many veterans do not find the current ways of communication effective in order to

actually utilize these available services (Adams, 2012). ​Currently, veterans feel ashamed having
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said they have been homeless and find it difficult to ask for help when they need it (Molinari,

2013).

Government Support

There are multiple ways that the federal government aids in the initiative to end veteran

homelessness. These initiatives have been pushed forward from different presidential

administrations in order to end veteran homelessness, but many of the programs have been cut

back due to budget cuts proposed under other presidential administrations ​(Tester & Sanders,

2019).

Obama Administration

The Obama Administration took numerous steps in order to solve the crisis of homeless

veterans. The goal of the administration was to end veteran homelessness by 2015. The first

initiative taken, called the Mayor’s Challenge, aimed to guide elected officials to end veteran

homelessness in their district. Over 530 elected officials, as of 2018, have taken this challenge

(Tsai, 2018). ​Communities across the country are joining in the effort to end veteran

homelessness. This effort has standards which cities and counties must accomplish in order to be

considered effectively ended veteran homelessness within their district (United States

Interagency Council on Homelessness, 2019).

The criteria proposed by the United States Interagency Council on Homelessness aims to

set boundaries in order to fully end veteran homelessness. The criteria include identifying all

veterans who are affected by homelessness by coordinating outreach programs and making

housing quickly available to veterans that are entitled to such benefits (United States Interagency

Council on Homelessness, 2019).

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Trump Administration

The Trump Administration proposed a budget for the 2019 fiscal year. The aim of the

proposed budget gives Veterans Affairs less money, therefore beginning the transition to private

sector programs for veterans. Trump administration called for a cut of $600 million dollars to

programs that would help veterans find and maintain housing. The President’s budget ultimately

reduces the number of HUD-VASH vouchers, which provide veterans housing, given out

throughout the year. Over $75 million dollars has also been proposed to be cut from the VA in

terms of vocational opportunities in the budget which would take away employment

opportunities for veterans struggling to find work ​(Tester & Sanders, 2019).

Veterans Affairs

According to the Department of Veterans Affairs, also known as the VA, the goals of the

Department of Veterans Affairs is to identify all of the veterans that are homeless as well as

provide support and shelter in a rapid manner to veterans in need. In order to fulfill the cabinet

agency’s goals, Community Resource and Referral Centers are used to collaborate within the

community and allow for veterans to find the support and shelter necessary. (Veterans Affairs,

2018)

There are many resources that are at a veteran’s disposal if they qualify for benefits.

According to Marti Chick-Ebey, a worker at the Hampton VA, there are different paths for

veterans to take in order to receive help. Outreach is one of the main programs that aims to

identify veterans that are in need of help from the VA. ​These programs are within homeless

shelters that aim to identify and refer veterans to local VA locations.Veterans can also be

referred by themselves, a friend, or a family member to the VA to possibly receive help. The VA
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can also be reached by calling a hotline for those in a housing crisis ​(M. Chick-Ebey, personal

communication, November 1, 2019).

Once identified, a team meeting of veteran homeless providers is called to discuss the

situation of the veteran. If the veteran is determined to be at low to medium risk, such as a

singular issue of a medical issue or mental illness, rapid rehousing is the solution for that veteran.

Rapid rehousing allows for basic debts to be paid off as well as basic housing and rent payment

for up to nine months. There are services that accompany rapid rehousing such as healthcare ​(M.

Chick-Ebey, personal communication, November 1, 2019).

Those veterans deemed at high risk usually are able to receive HUD-VASH housing. The

high risk recipients often have a multitude of factors that deem them in need of care. ​The

HUD-VASH program provides housing vouchers to veterans who are homeless. These vouchers

give assistance to find rentals available and paying for them for the veteran. Services are also

readily available to veterans, such as mental health services or health care services. The

HUD-VASH program is mostly aimed at those with multiple mental illnesses and are in need of

long term, defined as 1 year or more, housing (M. Chick-Ebey, personal communication,

November 1, 2019). This is typically the most popular form of care provided by the VA in order

to help end veteran homelessness. Over 85,000 vouchers were distributed in 2018 alone to

provide shelter to veterans that would otherwise be homeless (Veterans Affairs, n.d.).

Non-Profit Support

In the United States, charities often aim to support homeless veterans in the community

they serve through many different kinds of outreach. The different programs within the

community give different opportunities to veterans that may be facing homelessness.

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Volunteers of America

Volunteers of America, a charitable organization, has made it their goal to end veteran

homelessness through providing different resources and making them readily accessible to

veterans of different needs in the community. This organization provides emergency housing,

different programs to help veterans get back on their feet, and even transitional or permanent

housing (Volunteers of America, 2018).

According to the Volunteers of America, the Homeless Veterans Reintegration Program,

also known as HRVP, gives veterans access to employment training, clothing, job training and

apprenticeship opportunities. Once provided with housing, veterans have access to this program.

The federal government offers incentives to non-profits, that will provide job opportunities to the

veterans in need. The veterans in this program run by Volunteers of America will often be placed

in a job, making it easier for the veteran to get back on their feet. If the employment opportunity

needs certain licensure or tools, then the HRVP program will pay the necessary expenses for the

veteran to obtain the job. However, this program is only provided by ten states (Volunteers of

America, n.d.).

Volunteers of America has worked with the VA in order to institute the Supportive

Services for Veterans Families program, also known as SSVF The program is run by Volunteers

of America and various other charitable organizations and funded by the VA. The SSVF

program provides veterans and families support according to their situation, which may include

basic services such as health care or financial planning. The families that receive SSVF help are

in the midst of receiving permanent housing or are currently residing in it. This program is used
SERVING THOSE WHO SERVED 11

to ensure veterans and their families transition back to housing is done so smoothly and with the

help they need (Volunteers of America, n.d.).

National Coalition for Homeless Veterans

The National Coalition for Homeless Veterans, also known as the NCHV, is a liaison

between the federal government and individual communities around the country. The main goal

of the NCHV is to provide opportunities for veterans to receive the care needed. This network of

agencies has started many initiatives that the average citizen can donate to in order to help

homeless servicemembers (National Coalition for Homeless Veterans, n.d.).

Legislation

Title 38

Title 38 is where a veteran is outlined and if the veteran is able to get benefits provided

by the VA. According to a VA employee, veterans must have been honorably discharged or

generally discharged from active duty and full time military service. In order to be eligible for

benefits after September 8th, 1980, the veteran must have served 24 months of consecutive

service in order to receive eligibility for benefits due to Title 38 being enacted; however, if a

veteran entered into the military prior to September 8th, 1980, there is no minimum requirement

to receive the benefits provided through the VA (M. Chick-Ebey, personal communication,

November 1, 2019).

Title 38 outlines the federal government’s veterans benefit programs. Title 38 outlines

many different benefits that will ultimately affect veteran homelessness. For example, under

Title 38 Subpart I, it outlines the vocational training and education services available to veterans
SERVING THOSE WHO SERVED 12

once discharged from the military. There are also a number of medical benefits associated with

Title 38, such as eligibility for health care (Legal Information Institute, n.d.).

Title 38 also allows for the VA to counsel veterans on how to file claims about problems

that may arise trying to obtain housing. For example, if a veteran has a service connected

disability, they receive a certain amount of money from the government, at minimum 3000

dollars. The income automatically puts veterans over the threshold to not be considered for a

type of housing. In many instances, the money received for the veteran’s disability is often

mismanaged; the VA case manager will attempt to fix that by providing the veteran with a

fiduciary to manage the money to get the veteran back on their feet; in other instances, the

veteran does need the money. The veteran’s case manager will file a claim in order to receive the

money necessary (M. Chick-Ebey, personal communication, November 1, 2019).

Homeless Veterans Services Protection Act of 2014

The Homeless Veterans Services Protection Act of 2014 is a proposed bill that would

dismiss the amount of time needed to serve in order to receive full benefits from the VA. This

bill would also allow for veterans that received other than honorable discharge to be entitled to

benefits available to veterans who served the full 24 months along with an honorable or general

discharge ​(Countable, 2014). This bill, if enacted into legislation, would be helpful for veterans

that are not able to receive benefits due to their discharge status or the amount of time served.

Homeless Veterans Prevention Act of 2019

The Homeless Veterans Prevention Act of 2019 is an example of active legislation that

may be passed in order to curb veteran homelessness in the United States at the federal level

(Countable, 2019). The bill aims for more services to be available for homeless veterans,
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including more funds being allocated to the programs already instituted by the federal

government and the VA. The program would also bolster funds needed to continue to fund the

SSVF program, which provides money to house veterans in cities where the cost of living is high

(National Alliance to End Homelessness, n.d.).

McKinney-Vento Act

The McKinney-Vento Act’s purpose is to provide access to schooling for homeless

children; the McKinney-Vento Act also provides the definition for homelessness as “individuals

who lack a fixed, regular, and adequate nighttime residence” (McKinney-Vento Act, n.d.).

According to the National Center for Homeless Education, around 5,000 veterans experience

homelessness alongside their family members, which may include up to thousands of

school-aged children. The McKinney-Vento Act ensures that all homeless children, including

those of veterans, have access to a free education. The McKinney-Vento Act also ensures that

resources are made available to those in need of them, which the children of homeless veterans

are entitled to different services than those of homeless civilian children. The services available

to these veterans are found through the VA (National Center for Homeless Education, n.d.).

Real ID Law

The Real ID law was passed by Congress in order to set standards for identification

across the United States. Obtaining identification through the Real ID law is difficult for

homeless veterans because it requires paperwork that they may not have readily available due to

the fact they are experiencing homelessness. ID is needed when applying for housing benefits

provided by the VA. In order to obtain a new identification card, the veteran must show a
SERVING THOSE WHO SERVED 14

passport or birth certificate, social security card or W2, proof of residency, and proof of name

changes ("Real ID FAQ," n.d.). In order to replace the paperwork used to obtain identification,

there are multiple steps to go through. When applying for a social security card, birth certificate,

or passport, ID is needed in order to verify the veteran’s identity. Being without ID makes it

difficult for veterans to obtain housing, even with the VA’s help. Local shelters need ID to allow

homeless veterans in their premises because they need to complete background checks on those

entering the shelter (Hafner, 2018).

Court Case

According to the American Civil Liberties Union, a facility dedicated to housing disabled

veterans has shut its doors. The VA-run facility has been contracted to house veterans with

disabilities since 1888. Homeless veterans have been sleeping outside of this property ever since

the doors were closed; the VA ultimately let private companies begin using the land, ultimately

turning a profit. Four veterans have taken the initiative to sue the Department of Affairs and Eric

Shinseki, the Secretary of the VA, for misusing the VA’s land. The case was ultimately filed in

the US District Court for the Central District of California (American Civil Liberties Union,

2011).

This case was settled by the federal government by promising to create a plan to help end

veteran homelessness. This plan goes hand-in-hand with the initiative proposed by President

Obama to ensure veterans are not sleeping on the street, and that they have access to housing

when needed (Holland, 2015). The VA released a statement detailing the agreement reached; the

statement offers the resolution proposed. The VA will appoint a project manager to oversee the
SERVING THOSE WHO SERVED 15

building of new facilities for homeless veterans, as well as gathering input for the facilities being

built. The plan will utilize the land as deeded in 1888 (Veterans Affairs, 2015).

Conclusion

In conclusion, the efforts made by the federal government of the United States and fellow

nonprofits have helped homeless veterans find permanent shelter; however, the United States

could ultimately do more in order to help these homeless veterans. Outreach for veterans must be

put as a priority, especially before soldiers transition back to civilian life. Additional funding for

government programs must also be added to the fiscal budget to ensure there are enough

resources to fund housing for homeless veterans.

SERVING THOSE WHO SERVED 16

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