Staff Budget Briefing - leg.colorado.gov

STAFF BUDGET BRIEFING FY 2022-23

DEPARTMENT OF MILITARY AND VETERANS AFFAIRS

JBC WORKING DOCUMENT - SUBJECT TO CHANGE STAFF RECOMMENDATION DOES NOT REPRESENT COMMITTEE DECISION

PREPARED BY: JON CATLETT, JBC STAFF

DECEMBER 2, 2021

JOINT BUDGET COMMITTEE STAFF 200 E. 14TH AVENUE, 3RD FLOOR · DENVER · COLORADO · 80203

TELEPHONE: (303) 866-2061 · TDD: (303) 866-3472 https://leg.colorado.gov/agencies/joint-budget-committee

TABLE OF CONTENTS Department Overview ....................................................................................................................................................... 1

Department Budget: Recent Appropriations ................................................................................................................. 2

Department Budget: Graphic Overview ......................................................................................................................... 3

General Factors Driving the Budget ................................................................................................................................ 5

Summary: FY 2021-22 Appropriation & FY 2022-23 Request .................................................................................. 8

Informational Issue: State Women Veteran Service Officer (R1) .......................................................................... 12

Summary ........................................................................................................................................................................ 12

Discussion ..................................................................................................................................................................... 12

Appendix A Numbers Pages (Digital Only) ..............................................................................................................A-1

Appendix B Footnotes and Information Requests ..................................................................................................B-1

Appendix C Department Annual Performance Report ..........................................................................................C-1

ADDITIONAL RESOURCES

Brief summaries of all bills that passed during the 2020 and 2021 legislative sessions that had a fiscal impact on this department are available in Appendix A of the annual Appropriations Report: https://leg.colorado.gov/sites/default/files/fy21-22apprept_0.pdf

The online version of the briefing document, which includes the Numbers Pages, may be found by searching the budget documents on the General Assembly’s website by visiting leg.colorado.gov/content/budget/budget-documents. Once on the budge documents page, select the name of this department's Department/Topic, "Briefing" under Type, and ensure that Start date and End date encompass the date a document was presented to the JBC.

https://leg.colorado.gov/sites/default/files/fy21-22apprept_0.pdf

2-Dec-2021 1 MIL-brf

DEPARTMENT OF MILITARY AND VETERANS AFFAIRS

DEPARTMENT OVERVIEW The Department of Military and Veterans Affairs has approximately 5,500 Army and Air National Guard members trained and ready for federal active duty abroad and for preserving life and property during natural disasters and civil emergencies at home in Colorado. EXECUTIVE DIRECTOR’S OFFICE

Provides general administrative support to Department divisions including: human resources, budgeting, accounting, and administrative support;

Provides safekeeping of public arms, military records, and relics and banners of the State;

Administers the National Guard Tuition Assistance Program; and

The Adjutant General, as the commander of the State’s military forces, provides day-to-day command and control, guidance, policies and procedures, administrative support, and logistics support to the Army National Guard, the Air National Guard, and the Civil Air Patrol.

ARMY & AIR NATIONAL GUARD

Maintains a reserve of trained forces for the U.S. Armed Forces which are called to active duty by the President;

Protects life and property during natural disasters and civil emergencies when activated by the Governor; and

Maintains all military equipment for the State’s military forces. CIVIL AIR PATROL

Operates as a civilian auxiliary of the United States Air Force;

Provides volunteers for search and rescue missions, and assists federal and state organizations in disaster or emergency efforts; and

Operates a Civil Air Patrol cadet program, and provides aerospace education. DIVISION OF VETERANS AFFAIRS

Provides assistance to veterans seeking benefits by acting as a power of attorney for veterans and acting as a liaison between counties and the federal government;

Provides training and payments to County Veterans Service Officers;

Administers the Western Slope Veterans’ Cemetery and its associated fund;

Through the Colorado Board of Veterans Affairs, disperses the Colorado State Veterans Trust Fund to provide grants for veterans’ programs throughout Colorado; and

Operates the Veterans’ One Stop Center (Western Region OneSource) in Grand Junction.


DEPARTMENT BUDGET: RECENT APPROPRIATIONS

FUNDING SOURCE FY 2019-20 FY 2020-21 FY 2021-22 FY 2022-23 *

General Fund $11,856,255 $10,350,429 $11,766,152 $12,948,679

Cash Funds 1,470,429 1,641,694 1,663,652 1,669,188

Reappropriated Funds 4,143 163,167 124,920 124,920

Federal Funds 118,388,018 120,147,532 125,096,869 125,650,892

TOTAL FUNDS $131,718,845 $132,302,822 $138,651,593 $140,393,679

Full Time Equiv. Staff 2,579.1 2,534.6 2,515.9 2,516.9

*Requested appropriation.


DEPARTMENT BUDGET: GRAPHIC OVERVIEW

0.1%

Department's Share of Statewide General Fund

Based on the FY 2021-22 appropriation.

90.2%

0.1%

8.5%

1.2%

0% 100%

Federal Funds

Reappropriated Funds

General Fund

Cash Funds

Department Funding Sources



29.2%

67.3%

3.5%

0% 100%

Veterans Affairs

EDO / Army NationalGuard

Air National Guard

Distribution of General Fund by Division


3.7%

16.3%

2.7%

77.3%

0% 100%

Veterans Affairs

EDO / Army NationalGuard

Air National Guard

Federally Funded

Distribution of Total Funds by Division



GENERAL FACTORS DRIVING THE BUDGET Federal funds comprised 90.2 percent of the Department's FY 2021-22 budget. The majority of federal funds for the Department are never realized in the state accounting system and are therefore largely estimates provided for informational purposes only. The largest line item for the Department, National Guard Service Members, is completely federally funded. If federal funds are removed, General Fund comprises 85.1 percent of the Department’s remaining budget. The Division of Veterans Affairs is the only Division within the Department that does not receive a majority of funding from federal funds. COLORADO NATIONAL GUARD The federal government fully funds the training and salary of National Guard troops and provides the majority of the funding for the construction of armories and other military buildings. Under the cooperative agreements with the federal government, the State provides funding for 50.0 percent of maintenance and utilities costs at the fifteen armories located on state land, and between 20.0 and 25.0 percent of costs at four other facilities. The State also funds most of the central administrative costs for the National Guard. Colorado National Guard expenditures are driven by the number of Guard personnel authorized by the U.S. National Guard Bureau, or the “federal force structure,” and the state's ability to fill the force structure. Combined with the associated facilities maintenance and utility needs, this determines the amount of federal funds flowing into and through the Department. Colorado has both Army National Guard and Air National Guard units. The table below shows the recent authorized strength and active membership of the Colorado National Guard.

COLORADO NATIONAL GUARD AUTHORIZED STRENGTH AND MEMBERSHIP TOTAL AUTHORIZED STRENGTH FY 2015-16 FY 2016-17 FY 2017-18 FY 2018-19 FY 2019-20 FY 2020-21

Army National Guard 3,825 3,812 3,834 3,851 3,892 3882

Air National Guard 1,559 1,559 1,632 1,637 1,629 1658

TOTAL NATIONAL GUARD MEMBERS FY 2015-16 FY 2016-17 FY 2017-18 FY 2018-19 FY 2019-20 FY 2020-21

Army National Guard 3,787 3,933 3,757 $3,789 3,778 3810

Air National Guard 1,518 1,507 1,560 1,592 1,730 1708

Total Members 5,305 5,440 5,317 5,381 5,508 5,518

Percentage of Slots Filled 98.5% 101.3% 97.3% 98.1% 99.8% 99.6%

The budget shows federal funds for informational purposes only. The budget includes rough estimates of federal outlays for military personnel and more precise estimates of the federal share of expenditures to maintain and operate National Guard facilities in cooperation with the state. The amount of state support required for National Guard operations is driven by the creation or expansion of readiness centers, State decisions on the level of staff support for those facilities, changes in federal policies on cost-sharing with states, and State policies on compensation and operating costs for the Department’s civilian administrative staff. In addition, the State provides a tuition assistance program for members of the Colorado National Guard. Funding for the tuition assistance program is driven by tuition rates at state institutions of higher education, program participation and qualifications, and legislative appropriations. Tuition


assistance accounted for approximately 10 percent of the Department’s General Fund appropriation in FY 2021-22. When Colorado National Guard units are activated for federal service they are deployed by the Army or the Air Force. All costs for activation are paid by the Army or Air Force; and do not appear in the Long Bill. The Governor may also activate guard units for state active duty to protect life and property during natural disasters and civil emergencies. When the Governor activates units, the State must pay the costs. In FY 2020-21, the Colorado National Guard was activated to support initiatives primarily related to the pandemic, fires, and winter storms. The Governor may also activate National Guard troops for missions in other states. When this happens, the state requesting support must pay for the unit costs.

DIVISION OF VETERANS AFFAIRS The Division of Veterans Affairs (DVA) budget includes state support to assist veterans in obtaining federal veterans’ benefits, state support for grants to governmental and non-profit entities that provide mental health, family counseling, job training, employment, housing, and state funding for the Veterans’ OneSource Center and Western Slope Veterans’ Cemetery in Grand Junction. About half of the state General Fund money appropriated in this division supports staff who assist veterans in obtaining benefits. Veterans may apply directly to the federal government for benefits, but many use help from a third party, such as a benefits officer supported by county or state government or a nonprofit, to ensure they receive the federal benefits they have earned. County veterans’ services officers are located throughout the state, and associated county costs are partially reimbursed by the Division of Veterans Services. Long Bill appropriations for county reimbursements of county veterans’ services officers have nearly doubled since FY 2015-16. The graph below illustrates the appropriations for county veterans’ service officers over the previous nine fiscal years.

The Department focuses on a customer service mentality to increase the number of Colorado veterans assisted in obtaining benefits. While service provision was increasing in recent years, new claims decreased in 2020 due to restrictions implemented for COVID-19, and continued to drop in 2021. The reasons for the continued drop in new claims as a percentage of the veteran population is likely

$657,280

$1,275,825

2012-13 2015-16 2018-19 2021-22

Long Bill appropriations for county veterans service officers have nearly doubled since FY 2015-16.


driven by pandemic-related factors, but other factors driving the decline are not yet entirely clear. The figure below shows new claims filed by the Division of Veterans Affairs as a percentage of the estimated Colorado veteran population.

The General Assembly supports grant programs for veterans’ services in this division, providing over $1.0 million cash funds from the Colorado State Veterans Trust Fund (CSVTF) for grants in FY 2021-22. The CSVTF also receives 1.0 percent of the proceeds from the Tobacco Master Settlement Agreement (Section 28-5-709 (2)(a), C.R.S.). Under current law, 90.0 percent of the tobacco settlement moneys transferred to the Fund and all interest earned on the Fund’s principal are available for appropriation, with the remaining 10.0 percent retained in the fund (Section 28-5-709 (3)(c), C.R.S.).

2.80%

3.20%

1.56%

2017 2019 2021

New Veterans' Claims as a Percentage of Total Colorado Veteran Population


SUMMARY: FY 2021-22 APPROPRIATION & FY 2022-23 REQUEST

DEPARTMENT OF MILITARY AND VETERANS AFFAIRS TOTAL

FUNDS GENERAL

FUND CASH

FUNDS REAPPROPRIATED

FUNDS FEDERAL

FUNDS

FTE

FY 2021-22 APPROPRIATION:

SB 21-205 (Long Bill) 138,620,663 11,735,222 1,663,652 124,920 125,096,869 2,515.6

Other legislation 30,930 30,930 0 0 0 0.3

TOTAL $138,651,593 $11,766,152 $1,663,652 $124,920 $125,096,869 2,515.9

FY 2022-23 REQUESTED APPROPRIATION:

FY 2021-22 Appropriation $138,651,593 11,766,152 $1,663,652 $124,920 $125,096,869 2,515.9

R1 State women veterans service officer 103,125 103,125 0 0 0 1.0

R2 State veteran service officer compensation adjustment

107,554 63,805 0 0 43,749 0.0

R3 Technical funding consolidation 0 0 0 0 0 0.0

R4 Department automation and improvement 210,445 210,445 0 0 0 0.0

R5 State partnership program activity support 20,000 20,000 0 0 0 0.0

Annualize prior-year budget actions 1,128,672 729,279 9,577 0 389,816 0.0

Non-prioritized request 64,866 30,790 0 0 34,076 0.0

Annualize prior-year legislation 62,648 27,968 785 0 33,895 0.0

Centrally appropriated line items 44,776 (2,885) (4,826) 0 52,487 0.0

Technical adjustments 0 0 0 0 0 0.0

TOTAL $140,393,679 $12,948,679 $1,669,188 $124,920 $125,650,892 2,516.9

INCREASE/(DECREASE) $1,742,086 $1,182,527 $5,536 $0 $554,023 1.0

Percentage Change 1.3% 10.1% 0.3% 0.0% 0.4% 0.0%

R1 STATE WOMEN VETERANS SERVICE OFFICER: The request includes $103,125 in additional General Fund appropriations and 1.0 FTE to hire a Women Veterans Service Officer. This position would provide direct and focused support to women veterans and other marginalized veteran groups and help meet their specific needs. According to the Department, this role is valuable and necessary because women and minorities are a growing veteran demographic, and are less likely to seek veteran's benefits, such as mental and physical health care. The role of the Women's Veteran Service Officer will be on connecting these individuals to the benefits that they have earned. R2 STATE VETERAN SERVICE OFFICER COMPENSATION ADJUSTMENT: The request includes $107,554 total funds in FY 2022-23, and $98,671 additional total funds beginning in FY 2023-24 and thereafter for salary increases for Veterans Service Officers (SVSOs - Social Service Specialist III, IV, and V). These increases will affect 14 FTE within DMVA. This funding increase is requested to address high turnover rates and ongoing difficulties with recruitment and retention within the Social Services Specialist (III - V).

R2 STATE VETERAN SERVICE OFFICER COMPENSATION ADJUSTMENT

TOTAL

FUNDS GENERAL

FUND CASH


FUNDS FEDERAL

FUNDS FTE

R2 State veteran service officer compensation adjustment

$107,554 $63,805 $0 $0 $43,749 0.0

TOTAL $107,554 $63,805 $0 $0 $43,749 0.0


R3 TECHNICAL FUNDING CONSOLIDATION: The request is for a net-zero transfer of funding between budget lines within the Division of Veterans Affairs. This would move 1.0 FTE State Veteran Service Officer from the Grand Junction One-Stop Center line in the Long Bill to the Veterans Service Operations line. This change will align the Long Bill with the existing management structure at the Division of Veterans Affairs, and and streamline budget management. This request has no Division

cost nor FTE impact. R4 DEPARTMENT AUTOMATION AND IMPROVEMENT: The request includes $210,445 General Fund for investment in NEXGEN automation and technology initiatives and associated IT staff time with implementing Kronos Dimensions electronic timekeeping tool, required upgrades to Microsoft 365, and transitioning to an electronic employee performance management tool. The COVID-19 work from home requirements and subsequent flexible work arrangements adopted by many state and private organizations illustrated the limitations of the paper time-keeping and performance management systems that DVMA currently utilizes. These departmental NEXGEN automation and technology initiatives aim to improve customer service, increase efficiency, and contribute to DMVA becoming an employer of choice. This is an ongoing request to facilitate needed improvements over time. R5 STATE PARTNERSHIP PROGRAM ACTIVITY SUPPORT: The request includes $20,000 General Fund to fund events and host official delegations from partner nations in the National Guard State Partnership Program. The Department of Military and Veterans Affairs, Division of the National Guard, has two State Partners under the State Partnership Program: Slovenia, 1993, and Jordan, 2004. These events are key to the mission of the State Partnership Program, and in the past have been paid for by personal funds of DMVA leadership. However, this arrangement has proven unreliable and often results in partner delegations being greeted without the equivalent level of service that Colorado National Guard leaders receive in similar exchange events within our partner nations. ANNUALIZE PRIOR-YEAR BUDGET ACTIONS: The request includes an increase of $1.1 million total funds for the annualization of prior-year budget actions, summarized in the table below.

ANNUALIZE PRIOR YEAR BUDGET ACTION

TOTAL

FUNDS GENERAL

FUND CASH


FUNDS FEDERAL

FUNDS FTE

Annualize prior year salary survey $703,672 $304,279 $9,577 $0 $389,816 0.0

TA 3 Annualization Restore one time CONG tuition assistance reduction

425,000 425,000 0 0 0 0.0

TOTAL $1,128,672 $729,279 $9,577 $0 $389,816 0.0


NON-PRIORITIZED REQUESTS: The request includes four non-prioritized items summarized in the table below totaling a $64,866.

NON-PRIORITIZED REQUEST

TOTAL

FUNDS GENERAL

FUND CASH


FUNDS FEDERAL

FUNDS FTE

NP5 DHS food service and housekeeping $44,589 $10,513 $0 $0 $34,076 0.0

DPA Paid Family Medical Leave Act Funding 17,716 17,716 0 0 0 0.0

NP4 FY23 Budget request package 1,827 1,827 0 0 0 0.0

NP CSEAP Resources 734 734 0 0 0 0.0

TOTAL $64,866 $30,790 $0 $0 $34,076 0.0

ANNUALIZE PRIOR-YEAR LEGISLATION: The request includes an increase of $62,648 total funds for the annualization of prior year legislation, summarized in the table below.

ANNUALIZE PRIOR YEAR LEGISLATION

TOTAL

FUNDS GENERAL

FUND CASH


FUNDS FEDERAL

FUNDS FTE

SB18-200 PERA unfunded liability $58,870 $24,190 $785 $0 $33,895 0.0

SB21-015 Veterans org stipends 3,778 3,778 0 0 0 0.0

TOTAL $62,648 $27,968 $785 $0 $33,895 0.0

CENTRALLY APPROPRIATED LINE ITEMS: The request includes an increase of $44,776 total funds for centrally appropriated line items, summarized in the table below.

CENTRALLY APPROPRIATED LINE ITEMS

TOTAL

FUNDS GENERAL

FUND CASH


FUNDS FEDERAL

FUNDS FTE

Health, life, and dental $210,942 $80,383 ($9,858) $0 $140,417 0.0

AED 44,309 21,214 1,545 0 21,550 0.0

SAED 44,309 21,214 1,545 0 21,550 0.0

Payment to risk management and property funds

37,329 37,329 0 0 0 0.0

DPA Paid family leave 27,329 11,199 363 0 15,767 0.0

PERA Direct Distribution 23,676 23,402 274 0 0 0.0

Vehicle lease payments 10,392 3,118 0 0 7,274 0.0

CORE adjustment 9,622 9,622 0 0 0 0.0

Indirect cost assessment 5,536 0 5,536 0 0 0.0

Shift differential 2,730 0 0 0 2,730 0.0

Short-term disability 726 397 40 0 289 0.0

Salary survey (290,290) (135,695) (4,271) 0 (150,324) 0.0

Payments to OIT (52,506) (52,506) 0 0 0 0.0

Legal services (17,816) (17,816) 0 0 0 0.0

Workers’ compensation (11,277) (4,511) 0 0 (6,766) 0.0

Capitol Complex leased space (235) (235) 0 0 0 0.0

TOTAL $44,776 ($2,885) ($4,826) $0 $52,487 0.0


TECHNICAL ADJUSTMENTS: The request includes a net-zero adjustment for centrally appropriated

line items, summarized in the table below.

TECHNICAL ADJUSTMENTS

TOTAL

FUNDS GENERAL

FUND CASH


FUNDS FEDERAL

FUNDS FTE

TA1 Move GF from EDO to CONGA $90,000 $90,000 $0 $0 $0 0.0

Other technical adjustments (90,000) (90,000) 0 0 0 0.0

TOTAL $0 $0 $0 $0 $0 0.0


INFORMATIONAL ISSUE: STATE WOMEN VETERAN SERVICE OFFICER (R1)

The Department requests $103,125 General Fund to hire 1.0 FTE State Women Veteran Service Officer. This issue brief provides background information concerning trends in the number of women serving in the armed forces and the challenges these women face both during active service and as veterans.

SUMMARY

Women currently comprise nearly 20 percent of the United States armed forces, a proportion that has grown significantly over the last four decades and is projected to continue to grow for decades to come. As these service members separate from the military, the proportion of female veterans will continue to climb correspondingly.

Colorado currently has 390,000 veterans living in the state, and of these, there are approximately 47,000 female veterans. While the number of veterans living in the state is projected to contract by more than 30 percent over the next quarter-century, the number of female veterans is forecast to increase by 15 percent.

Women service members and veterans face additional challenges compared to their male counterparts during their active service and as veterans. Women veterans have higher homelessness, suicide, and drug abuse rates than women in the general population. Additionally, women veterans are less likely than male veterans to seek out and utilize veterans' services to address these problems.

DISCUSSION Women have served in the U.S. armed forces throughout history dating back to our nation’s earliest conflicts. While the number of women serving in our armed forces has varied significantly over time based on the needs of our military, in recent decades, there has been a steady increase in the proportion of women serving in our nation’s armed forces. The proportion of women serving has grown from 5 percent in 1975 to just under 20 percent today and is projected to grow for decades ahead. As the number of women serving in our armed forces rises, there will be a corresponding increase in female Veterans in the general population. The chart below illustrates the growing proportion of women serving in the U.S. Military over the previous four decades, a trend that is forecast to continue.1

1 National Center for Veterans Analysis and Statistics


Today there are approximately 20 million veterans in the United States and its Territories. Women account for roughly 2 million of these veterans. In Colorado, as of 2020, approximately 390,000 veterans were living in the state, and of these, 47,000 were female. Female veterans represent 11.2 percent of the total veteran population in Colorado, which is greater than the national average of 9.4 percent. Over the next twenty-five years, the number of female veterans in Colorado will grow in both absolute and relative terms.2

Colorado Veterans3

2015 2020 2025* 2030* 2035* 2040* 2045* % Change

Male 367,700 342,660 313,843 287,937 264,902 245,158 229,719 -37.5%

Female 43,983 46,816 48,605 49,875 50,628 50,758 50,395 14.6%

Total 411,683 389,476 362,448 337,812 315,530 295,916 280,114 -32.0%

% Female 10.7% 12.0% 13.4% 14.8% 16.0% 17.2% 18.0%

2 National Center for Veterans Analysis and Statistics 3 https://www.va.gov/vetdata/veteran_population.asp

5%

10%

13%14%

16%

5%

10%

14%

16%

18%

1975 1985 1995 2005 2017

Enlisted Officer

The Proportion of women serving in the U.S. Military has grown steadily over the last forty years

368

230

44

50

2015 2020 2025 2030 2035 2040 2045

Projected Trend in Colorado's Veteran Population Through 2045 (thousands)

Women

Men


The changing demographics of Colorado's veteran population necessitates a re-evaluation of how services to veterans are provided. Historically the Department of Veterans Affairs has focused on meeting the needs of the veteran male population. The gendered mission statement of the Department, "To fulfill President Lincoln's promise, 'To care for him who shall have borne the battle, and for his widow, and his orphan' by serving and honoring the men and women who are America's veterans," illustrates the Department's historical focus on serving male veterans. The Department of Veteran's Affairs was founded exclusively to serve the needs of male veterans. While the scope of its mission has expanded to include women, there is substantial evidence that it continues to inadequately reach female veterans. Studies of service members and veterans illustrate the unique challenges that they face throughout their careers in the armed forces. Multiple deployments into conflict zones, separation from families, children raised by extended family, frequent relocations, and challenges in maintaining relationships are some of the obstacles service members face. Women face these challenges often disproportionately to their male colleagues because of the demands of motherhood and caregiver roles that have not always been compatible with military career paths. Women face additional challenges during their service. In the past women have faced disparities in promotions opportunities relative to male colleagues, which has lifetime implications for earnings and career prospects. As a minority in the service, women have less opportunity for same-gender mentorships, companionship, and role modeling that can negatively affect their careers. Finally, between 20 and 40 percent of military women and veterans have experienced sexual harassment or sexual assault during their service, often by their teammates or superior officers. Of these victims, nearly 50 percent of those who attempted to report their assault report experiencing some form of retaliation against them.4 Consequently, once separated from service, many female veterans are reluctant to utilize veteran serving spaces because of their negative experiences within the male-dominated Agency. Of those who do utilize Veterans Administration (VA) services, 25 percent report either sexual harassment or questioning of their service status while at the VA, therefore diminishing the likelihood that female veterans will, once separated from military service, seek out and utilize services that are designed to help them adjust and succeed in civilian life. 5 A principal finding of a 2017 study performed by the Service Women’s Action Network on improving the physical and mental wellness of female service members and veterans was the importance of establishing social support groups and networks for military women and veterans. This study indicates that women often leave the military feeling as if they have little assistance in navigating civilian life. Consequently, many women find the transition out of the military exceptionally challenging. Female veterans struggle with unemployment, mental health issues, suicide rates, and substance abuse at disproportional rates than their non-military peer groups. The absence of focus on meeting the specific wellness needs of female veterans often leaves women struggling because, although assistance is available, they cannot access help because of discontinuities in the system. Following the study, the

4 Monteith, L. , Holliday, R. , Hoffmire, C. & Bahraini, N. (2021). Female Veterans’ Willingness to Seek Veterans Health Administration and Non–Veterans Health Administration Services for Suicidal Thoughts and Mental Health Concerns. Medical Care, 59 , S23-S30. 5 Calhoun PS, Schry AR, Dennis PA, et al. The Association Between Military Sexual Trauma and Use of VA and Non-VA Health Care Services Among Female Veterans With Military Service in Iraq or Afghanistan. Journal of Interpersonal Violence. 2018;33(15):2439-2464.


Service Women’s Action Network made the following recommendations to improve assistance to female veterans:

Provide gender-specific mental wellness assessments and recommended care options duringtransition and demobilization activities.

Increase access to appropriately trained counselors and therapists who have training inhandling victims of sexual harassment and assault.

Establish social support groups/networks for military women.

Improve resource access via a single, cross-community resource site.6

6 https://www.servicewomensactionnetwork.org/

2-Dec-2021 A-1 MIL-brf

APPENDIX A NUMBERS PAGES (DIGITAL ONLY)

Appendix A details actual expenditures for the last two fiscal years, the appropriation for the current fiscal year, and the requested appropriation for next fiscal year. This information is listed by line item and fund source. Appendix A is only available in the online version of this document.

Appendix A: Numbers Pages

FY 2019-20Actual

FY 2020-21Actual

FY 2021-22Appropriation

FY 2022-23Request

Request vs.Appropriation

DEPARTMENT OF MILITARY AND VETERANS AFFAIRSMichael Loh, Adjutant General

(1) EXECUTIVE DIRECTOR AND ARMY NATIONAL GUARD

Personal Services 2,065,943 2,065,158 2,233,599 2,308,090FTE 23.6 21.7 25.4 25.4

General Fund 1,731,454 1,717,543 1,813,589 1,882,285Cash Funds 0 0 4,165 4,260Reappropriated Funds 0 0 5,305 5,305Federal Funds 334,489 347,615 410,540 416,240

Health, Life, and Dental 445,946 289,436 1,553,068 1,764,010General Fund 440,311 274,416 654,030 734,413Cash Funds 5,635 15,020 39,314 29,456Reappropriated Funds 0 0 0 0Federal Funds 0 0 859,724 1,000,141

Short-term Disability 5,945 4,802 17,802 18,528General Fund 5,892 4,636 7,216 7,613Cash Funds 53 166 207 247Reappropriated Funds 0 0 0 0Federal Funds 0 0 10,379 10,668

S.B. 04-257 Amortization Equalization Disbursement 150,822 142,881 563,024 607,333General Fund 149,196 137,974 227,661 248,875Cash Funds 1,626 4,907 6,527 8,072Reappropriated Funds 0 0 0 0Federal Funds 0 0 328,836 350,386

NOTE: An asterisk (*) indicates that the FY 2022-23 request for a line item is affected by one or more decision items. 2-Dec-2021

A-2

MIL-brf


FY 2019-20Actual

FY 2020-21Actual


FY 2022-23Request


S.B. 06-235 Supplemental Amortization EqualizationDisbursement 150,822 139,152 563,024 607,333

General Fund 149,196 134,245 227,661 248,875Cash Funds 1,626 4,907 6,527 8,072Reappropriated Funds 0 0 0 0Federal Funds 0 0 328,836 350,386

PERA Direct Distribution 250,154 0 282,078 305,754General Fund 246,709 0 278,808 302,210Cash Funds 3,445 0 3,270 3,544Reappropriated Funds 0 0 0 0Federal Funds 0 0 0 0

Salary Survey 117,816 0 368,056 413,382General Fund 116,756 0 149,494 168,584Cash Funds 1,060 0 4,271 5,306Reappropriated Funds 0 0 0 0Federal Funds 0 0 214,291 239,492

Paid Family Medical Leave Funding 0 0 0 17,716 *General Fund 0 0 0 17,716Cash Funds 0 0 0 0Reappropriated Funds 0 0 0 0Federal Funds 0 0 0 0


A-3

MIL-brf


FY 2019-20Actual

FY 2020-21Actual


FY 2022-23Request


Paid Family Medical Leave Initiative 0 0 0 27,329General Fund 0 0 0 11,199Cash Funds 0 0 0 363Reappropriated Funds 0 0 0 0Federal Funds 0 0 0 15,767

Shift Differential 0 0 31,625 34,355General Fund 0 0 0 0Cash Funds 0 0 0 0Reappropriated Funds 0 0 0 0Federal Funds 0 0 31,625 34,355

Workers' Compensation 108,535 98,478 94,633 83,356General Fund 51,294 47,271 45,426 40,915Cash Funds 0 0 0 0Reappropriated Funds 0 0 0 0Federal Funds 57,241 51,207 49,207 42,441

Operating Expenses 401,899 469,455 397,899 327,899 *General Fund 401,899 225,840 351,899 281,899Cash Funds 0 243,615 46,000 46,000Reappropriated Funds 0 0 0 0Federal Funds 0 0 0 0

Information Technology Asset Maintenance 16,363 19,536 22,372 232,817 *General Fund 16,363 19,536 22,372 232,817Cash Funds 0 0 0 0Reappropriated Funds 0 0 0 0Federal Funds 0 0 0 0


A-4

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FY 2019-20Actual

FY 2020-21Actual


FY 2022-23Request


Legal Services 84,829 66,986 38,711 20,895General Fund 84,829 66,986 38,711 20,895Cash Funds 0 0 0 0Reappropriated Funds 0 0 0 0Federal Funds 0 0 0 0

Payment to Risk Management and Property Funds 220,252 154,357 310,841 348,904 *General Fund 220,252 154,357 310,841 348,904Cash Funds 0 0 0 0Reappropriated Funds 0 0 0 0Federal Funds 0 0 0 0

Vehicle Lease Payments 61,049 69,802 71,007 81,399General Fund 19,398 25,434 30,251 33,369Cash Funds 0 0 0 0Reappropriated Funds 0 0 0 0Federal Funds 41,651 44,368 40,756 48,030

Leased Space 54,418 59,638 63,893 63,893General Fund 54,418 59,638 63,893 63,893Cash Funds 0 0 0 0Reappropriated Funds 0 0 0 0Federal Funds 0 0 0 0

Capitol Complex Leased Space 48,603 48,777 50,843 50,608General Fund 48,603 48,777 50,843 50,608Cash Funds 0 0 0 0Reappropriated Funds 0 0 0 0Federal Funds 0 0 0 0


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FY 2019-20Actual

FY 2020-21Actual


FY 2022-23Request


Payments to OIT 225,602 297,166 678,064 627,385 *General Fund 225,602 297,166 678,064 627,385Cash Funds 0 0 0 0Reappropriated Funds 0 0 0 0Federal Funds 0 0 0 0

CORE Operations 57,710 76,867 65,093 74,715General Fund 57,710 76,867 65,093 74,715Cash Funds 0 0 0 0Reappropriated Funds 0 0 0 0Federal Funds 0 0 0 0

Annual Depreciation-Lease Equivalent Payment 87,994 0 87,994 87,994General Fund 87,994 0 87,994 87,994Cash Funds 0 0 0 0Reappropriated Funds 0 0 0 0Federal Funds 0 0 0 0

Civil Air Patrol Operations 38,628 58,638 58,638 58,638General Fund 38,628 58,638 58,638 58,638Cash Funds 0 0 0 0Reappropriated Funds 0 0 0 0Federal Funds 0 0 0 0

Local Armory Incentive Plan 20,000 0 20,000 20,000General Fund 0 0 0 0Cash Funds 20,000 0 20,000 20,000Reappropriated Funds 0 0 0 0Federal Funds 0 0 0 0


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FY 2019-20Actual

FY 2020-21Actual


FY 2022-23Request


Statewide Indirect Cost Collections 0 0 5,901 11,437General Fund 0 0 0 0Cash Funds 0 0 5,901 11,437Reappropriated Funds 0 0 0 0Federal Funds 0 0 0 0

Appropriation to the Colorado National Guard TuitionFund 2,372,716 2,371,799 996,157 1,421,157

General Fund 1,346,157 996,157 996,157 1,421,157Cash Funds 1,026,559 1,375,642 0 0Reappropriated Funds 0 0 0 0Federal Funds 0 0 0 0

Army National Guard Cooperative Agreement 16,267,516 18,036,008 14,057,910 14,431,960 *FTE 98.9 118.3 84.1 84.1

General Fund 1,660,069 1,722,763 1,756,075 1,898,709Cash Funds 0 0 0 0Reappropriated Funds 0 0 0 0Federal Funds 14,607,447 16,313,245 12,301,835 12,533,251

TOTAL - (1) Executive Director and Army NationalGuard 23,253,562 24,468,936 22,632,232 24,046,887 6.3%

FTE 122.5 140.0 109.5 109.5 (0.0%)General Fund 7,152,730 6,068,244 7,914,716 8,863,668 12.0%Cash Funds 1,060,004 1,644,257 136,182 136,757 0.4%Reappropriated Funds 0 0 5,305 5,305 0.0%Federal Funds 15,040,828 16,756,435 14,576,029 15,041,157 3.2%


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FY 2019-20Actual

FY 2020-21Actual


FY 2022-23Request


(2) DIVISION OF VETERANS AFFAIRS

Veterans Service Operations 962,168 970,004 927,729 1,195,952 *FTE 11.8 10.6 12.0 13.0

General Fund 919,682 933,353 885,229 1,153,452Cash Funds 42,486 36,651 42,500 42,500Reappropriated Funds 0 0 0 0Federal Funds 0 0 0 0

County Veterans Service Officer Payments 1,257,280 1,242,281 1,275,825 1,275,825General Fund 1,257,280 1,242,281 1,275,825 1,275,825Cash Funds 0 0 0 0Reappropriated Funds 0 0 0 0Federal Funds 0 0 0 0

Colorado State Veterans Trust Fund Expenditures 703,213 595,331 974,041 974,041General Fund 0 0 0 0Cash Funds 703,213 595,331 974,041 974,041Reappropriated Funds 0 0 0 0Federal Funds 0 0 0 0

Veterans Assistance Grant Program 991,108 794,560 1,007,886 1,007,886FTE 0.5 0.5 0.5 0.5

General Fund 885,374 671,252 850,000 850,000Cash Funds 105,734 123,308 157,886 157,886Reappropriated Funds 0 0 0 0Federal Funds 0 0 0 0


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FY 2019-20Actual

FY 2020-21Actual


FY 2022-23Request


Western Slope Veterans Cemetery 347,462 439,985 485,644 502,179FTE 5.7 5.4 5.8 5.8

General Fund 150,640 203,621 235,758 247,332Cash Funds 196,822 236,364 249,886 254,847Reappropriated Funds 0 0 0 0Federal Funds 0 0 0 0

Grand Junction Veterans One-Stop Center 231,242 257,012 412,361 356,438 *FTE 2.4 4.0 4.1 4.1

General Fund 231,242 181,622 189,589 133,666Cash Funds 0 2 103,157 103,157Reappropriated Funds 0 75,388 119,615 119,615Federal Funds 0 0 0 0

TOTAL - (2) Division of Veterans Affairs 4,492,473 4,299,173 5,083,486 5,312,321 4.5%FTE 20.4 20.5 22.4 23.4 4.5%

General Fund 3,444,218 3,232,129 3,436,401 3,660,275 6.5%Cash Funds 1,048,255 991,656 1,527,470 1,532,431 0.3%Reappropriated Funds 0 75,388 119,615 119,615 0.0%Federal Funds 0 0 0 0 0.0%


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FY 2019-20Actual

FY 2020-21Actual


FY 2022-23Request


(3) AIR NATIONAL GUARDProvides ready forces to the U.S. active armed services and provides ready forces for the preservation of life and property during natural disasters and in Colorado.

Operations and Maintenance Agreement for Buckley/Greeley 3,405,738 3,660,452 2,615,875 2,714,471

FTE 24.1 28.4 28.0 28.0General Fund 376,109 377,315 415,035 424,736Cash Funds 0 0 0 0Reappropriated Funds 0 0 0 0Federal Funds 3,029,629 3,283,137 2,200,840 2,289,735

Buckley Cooperative Agreement/Air Traffic ControlBuckley 749,436 837,249 730,000 730,000

FTE 7.0 7.9 7.0 7.0General Fund 0 0 0 0Cash Funds 0 0 0 0Reappropriated Funds 0 0 0 0Federal Funds 749,436 837,249 730,000 730,000

Security for Space Command Facility at Greeley 389,200 293,077 390,000 390,000FTE 5.7 4.7 6.0 6.0

General Fund 0 0 0 0Cash Funds 0 0 0 0Reappropriated Funds 0 0 0 0Federal Funds 389,200 293,077 390,000 390,000


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FY 2019-20Actual

FY 2020-21Actual


FY 2022-23Request


TOTAL - (3) Air National Guard 4,544,374 4,790,778 3,735,875 3,834,471 2.6%FTE 36.8 41.0 41.0 41.0 0.0%

General Fund 376,109 377,315 415,035 424,736 2.3%Cash Funds 0 0 0 0 0.0%Reappropriated Funds 0 0 0 0 0.0%Federal Funds 4,168,265 4,413,463 3,320,840 3,409,735 2.7%


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FY 2019-20Actual

FY 2020-21Actual


FY 2022-23Request


(4) FEDERAL FUNDED PROGRAMSThis section provides an estimate of federal funds authorized for Colorado National Guard operations.

National Guard Service Members 0 0 107,200,000 107,200,000FTE 0.0 2,362.0 2,343.0 2,343.0

General Fund 0 0 0 0Cash Funds 0 0 0 0Reappropriated Funds 0 0 0 0Federal Funds 0 0 107,200,000 107,200,000

TOTAL - (4) Federal Funded Programs 0 0 107,200,000 107,200,000 0.0%FTE 0.0 2,362.0 2,343.0 2,343.0 0.0%

General Fund 0 0 0 0 0.0%Cash Funds 0 0 0 0 0.0%Reappropriated Funds 0 0 0 0 0.0%Federal Funds 0 0 107,200,000 107,200,000 0.0%

TOTAL - Department of Military and Veterans Affairs 32,290,409 33,558,887 138,651,593 140,393,679 1.3%FTE 179.7 2,563.5 2,515.9 2,516.9 0.0%

General Fund 10,973,057 9,677,688 11,766,152 12,948,679 10.1%Cash Funds 2,108,259 2,635,913 1,663,652 1,669,188 0.3%Reappropriated Funds 0 75,388 124,920 124,920 0.0%Federal Funds 19,209,093 21,169,898 125,096,869 125,650,892 0.4%


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APPENDIX B FOOTNOTES AND INFORMATION REQUESTS

UPDATE ON LONG BILL FOOTNOTES

The General Assembly includes footnotes in the annual Long Bill to: (a) set forth purposes, conditions, or limitations on an item of appropriation; (b) explain assumptions used in determining a specific amount of an appropriation; or (c) express legislative intent relating to any appropriation. Footnotes to the 2020 Long Bill (H.B. 20-1360) can be found at the end of each departmental section of the bill at https://leg.colorado.gov/bills/HB20-1360. The Long Bill footnotes relevant to this document are listed below.

77 Department of Military and Veterans Affairs, Executive Director and Army National Guard, Personal Services, Operating Expenses, Vehicle Lease Payments, and Army National Guard Cooperative Agreement -- In addition to the transfer authority provided in Section 24-75-108, C.R.S., the Department is authorized to transfer up to 20.0 percent of the total General Fundappropriations in these line items between these line items. Transfers to or from the Vehicle LeasePayments line item may be used solely to address changes in the portion of costs covered byfederal authorities for vehicle lease payments

Comment: This flexibility was added in FY 2019-20 to help the Department make more efficient use of its appropriations. Additional information will be available ongoing regarding how this flexibility is used and the impact on Department expenditures.

UPDATE ON LONG BILL REQUESTS FOR INFORMATION

The Joint Budget Committee annually submits requests for information to executive departments and the judicial branch via letters to the Governor, other elected officials, and the Chief Justice. Each request is associated with one or more specific Long Bill line item(s), and the requests have been prioritized by the Joint Budget Committee as required by Section 2-3-203 (3), C.R.S. Copies of these letters are included as an Appendix in the annual Appropriations Report (Appendix H in the FY 2021-22 Report):


1. The Department is requested to provide the following information to the Joint Budget Committeeby November 1, 2021, for the Western Region OneSource: the amount of money received andexpended by the facility for the preceding fiscal year; a description of services provided includingthe actual number of persons serviced; and facility partnerships with other public and privateentities.

Comment: The Department submitted the report as requested. The Department reported$61,994 in total revenue for FY 2020-21, including $10,682 in donations and $50,692 in rent. This

https://leg.colorado.gov/bills/HB20-1360


2-Dec-2020 B-2 MIL-brf

was a substantial increase in revenue from FY 2019-20 when the Western Region OneSource (WROS) received $35,819 in revenue. Actual expenditures for FY 2020-21 totaled $317,012, an increase from FY 2019-20 when $231,242 in expenditures were reported. Current tenants include: Veterans Administration US Department of Housing and Urban Development, Volunteers of America, Rocky Mountain Human Services, Western Colorado Area Health Education Center, Spectrum Sound Design, Comfort Keepers, Medicare Mentors, Liberty Mutual Insurance. The Department reports the Western Region OneSource center has been open 608 business days as of 09/30/2021, and has assisted 12,374 veterans, military members, and their families, averaging 20 persons per day.

Highlights of the Department’s response include:

“Events continued on a daily basis except when Mesa County was operating in the red dialzone during the COVID pandemic: Alzheimer’s Support Group, VA Peer Support, VAEnrollment Specialist, Voc Rehab, Come-Back Yoga, Coffee Club, LGBTQ Group,Women Veteran Tai Chi, Civil Air Patrol Cadets drilling, Women American Legion Post.”

“The WROS sent out or collaborated with a community entity to send out ~50 newsreleases in 2021. Thirty-two unique media coverage pieces were captured and archived byWROS staff”

“Social media/Facebook followers started out 2020 with 228 followers on Jan 1. OnOctober 13, 2021, the followers totaled 716.”

“NBC/ABC affiliate interview on leasing at WROS and activities/events for veterans,April 2021.”

2. All Departments -- Based on the Department's most recent available record, what is the FTEvacancy anthed turnover rate: (1) by department; (2) by division; (3) by program for programs withat least 20 FTE; and (4) by occupational class for classes that are located within a largeroccupational group containing at least 20 FTE. To what does the Department attribute thisturnover/vacancy experience? Do the statewide compensation policies or practices administeredby the Department of Personnel help or hinder the department in addressing vacancy or turnoverissues?

Comment: The Department submitted the report as requested. The Department reported having 180 active employees and 16 separations equating to a 9 percent turnover rate in FY 2020-21. The Department reported that Division and program level data are not available at this time.

Highlights of the Department’s response include:

“The Department observes that state employee pay is not keeping pace with inflation andhousing cost increases. Anecdotally, a majority of the state employees who have voluntarilyleft have done so for better pay elsewhere, including a 20-year department employee wholeft this month for ‘a better opportunity.’"

“The inability to provide "steps" within the pay bands means that a majority of stateemployees remain in the first quartile of their pay band for their career. Coupled withlimited room for advancement and little to no budget room to support any sort of targetedincentive quartile increases, the Department continues to see a high rate of turnover.”

For more information, see the Total Compensation Briefing document dated 11/15/21.

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APPENDIX C DEPARTMENT ANNUAL PERFORMANCE REPORT

Pursuant to Section 2-7-205 (1)(b), C.R.S., the Department of Military and Veterans Affairs is required to publish an Annual Performance Report for the previous fiscal year by November 1 of each year. This report is to include a summary of the Department’s performance plan and most recent performance evaluation for the designated fiscal year. In addition, pursuant to Section 2-7-204 (3)(a)(I), C.R.S., the Department is required to develop a Performance Plan and submit the plan for the current fiscal year to the Joint Budget Committee and appropriate Joint Committee of Reference by July 1 of each year.

For consideration by the Joint Budget Committee in prioritizing the Department's FY 2022-23 budget request, the FY 2020-21 Annual Performance Report and the FY 2021-22 Performance Plan can be found at the following link:

https://www.colorado.gov/pacific/performancemanagement/department-performance-plans

https://www.colorado.gov/pacific/performancemanagement/department-performance-plans

Staff Budget Briefing - leg.colorado.gov

Documents

Transcript of Staff Budget Briefing - leg.colorado.gov