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TexansforGregAbbott2017VeteransRollout

“FrontoftheLine”

SummaryofRecommendations1.JobsforTexasVeterans

• AdjustjobcreationandhiringprovisionsforEconomicDevelopmentprogramstoallowagreaterweighttojobscreatedforveterans.(Nosignificantfiscalimplicationtothestate).

o ManyofTexas’economicincentiveprogramsdisbursefundswithattentiontojobcreationrequirements.

o Toencouragethehiringofveterans,theEconomicDevelopmentandTourismDivisionwithintheOfficeoftheGovernorshouldallowveteranhirestocountfor1.2weightedcreditstowardshiringnumbersofanyTrusteedFundsincentiveprogramwithajobcreationprovision.

• Encouragetheentrepreneurialspiritofveteransbyallowingpersonalpropertytaxexemptionsofupto$30,000forthefirstfiveyearsofoperation.(Nosignificantfiscalimplicationtothestate;indeterminatecosttolocalgovernmentbasedonlocaladoption).

o Forasmallbusinesswithalotofphysicalinventory,suchasarestaurant,thistaxreliefcouldbethedifferencebetweenanunaffordabledreamandathrivingenterprise.

o Aveteran-ownedbusinesswould,undertheexistingdefinitioninTexaslaw,beabusinessinwhicheachownerisaveteran.

• Allowforalocaloptioncommercialpropertytaxexemptionforeachnewlyhiredveteran(Nosignificantfiscalimplicationtothestate;indeterminatecosttolocalgovernmentbasedonlocaladoption).

o Eachveterannewly-hiredforfull-timeemploymentwouldqualifytheownerofacommercialpropertyfora$15,000reductionontheassessedtaxablevalueoftheircommercialpropertynottoexceed$300,000perpropertyor20%ofthecommercialproperty’stotalassessedtaxablevalue,whicheverisless.

o Theexemptionwouldbeadoptedbylocaloption.• WelcomeAmericanveteransandmilitaryfamiliestoTexasbywaivingoccupationallicensing

feesandprovidingreciprocallicensingqualificationsforprofessionalsfromotherstates.Tothatend,Texaslawshouldbeamended:1. Toprovideforlicensingreciprocityforveterans,theirspouses,andformilitaryspouseswho

holdacurrentlicenseissuedbyanotherjurisdictionforwhichthelicensingrequirementsaresubstantiallyequivalenttothoseinTexas;and

2. Towaivelocallicensingandregistrationfeessimilartothatprovidedbystatelaw.

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2.Re-EmpowerVeteransfacingLifeChallenges• Encouragethecreationandoperationofveteransupportprogramsbyprovidingalocaloption

tocityandcountycommercialpropertytaxexemptionsofupto$15,000fromappraisedvalueforentitiesthatprovideorpayforreduced-costhousing,orsubstanceabuseandmentalhealthresidentialtreatmentservicestoveterans.Theexemptionwouldbeworthupto$15,000fromtheappraisedvalueofapropertyperveteranwhoreceivesatleast$5,000invaluefromsuchservicesinacalendaryear(withamaximumappraisedvalueexemptionof$300,000percommercialproperty).(Nosignificantfiscalimplicationtothestate;indeterminatecosttolocalgovernmentbasedonlocaladoption)

o CreateaplatformthroughtheTexasVeteransCommission(TVC)fornonprofitsandbusinessesto“adopt”ahomelessveteranandassistinhousing,employment,and/ormentalhealthandsubstanceabusechallenges.

• Challengeveteran’sorganizations,foundations,municipalitiesandcommunityorganizationstoendveteranhomelessnessinTexas.

3.IncreasingOptionsforVeterans’Healthcare

• Recommendation:ReauthorizeandFullyFundtheMentalHealthProgramforTexasVeteransattheHealthandHumanServicesCommission.($10millionforthebiennium).

• FurtherSupportTVCeffortstoaddresslongwaittimesforveteransatU.S.DepartmentofVeteransAffairs(VA)facilities.DoublethefundingforTVC’sefforttocombattheVAbacklog($6.5million)

• SupportandcultivateaTexasmodelforcaringforveteransthatallowsveteranstousefederalVAbenefitstovisitaprivatehealthprovider.(Nosignificantfiscalimplicationtothestate).

o Texasveteransshouldbegiventheabilitytotakethemoneythatthegovernmentspendsonthemanduseittobuyhigh-quality,privateinsurance.Additionally,veteransshouldbeentitledtousethesefundsonprivatehealthcareproviders.

o Afederal-statepartnershipbetweentheVAandTexascouldcreatebetteroutcomesforTexasveterans.

• Enhanceveterans’accesstomentalandbehavioralhealthresources,includingcounselingservices,bytelehealth,.(Nosignificantfiscalimplicationtothestate).

4.LegalServicesforVeterans

• Enhancestategrantstoorganizationsprovidinglegalservicestoveteransfrom$1.5millionperyearinthe2018-19bienniumto$3millionperyearinthe2020-21biennium($3millionadditional).

o Thetoplegalproblemslistedbyveteransincludeproblemsaccessingmilitarybenefits;jobproblems,includinghiringandpayment;debtcollection,includingphoneharassment;childvisitation,custody,orsupport;andgettingorkeepingSocialSecuritybenefits.

• Expandopportunitiesforstate-employedattorneystoofferprobonoservicestoveterans.(Nosignificantfiscalimplicationtothestate).

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o TheVeteransCommissionshouldbedirectedtoexpandtheexistingTexasVeteransLegalAssistanceProjecttoincludereferralstostate-agency-employedattorneyswillingtoprovideprobonoservices.

o Recognizingattorneyswhoassistveteransinneedwithprobonolegalservices,thestateshouldrewardthemwithContinuingLegalEducation(CLE)creditandbarfeewaivers.

5.BaseRealignmentandClosure(BRAC)Process

• Toprovideoversightandleadership,createatemporaryGovernor’sCommitteetosupporttheU.S.MilitaryinTexasinpreparingforthepossibleupcomingdecisionsoftheBaseRealignmentAndClosureCommittee.(Nosignificantfiscalimplicationtothestate).

o AtemporarycommitteewouldbeappointedbytheGovernorandhavethefollowingcomposition:

§ 22Texas-residentveterans,communityleadersandbusinessleaders,includingthreeeachwhoservedasofficersatFortHood,FortBliss,andJointBaseSanAntonio;andonefromeachoftheotherU.S.militaryinstallationsinTexas.

o ItwouldbethedutyoftheGovernor’sCommitteetosuggestchallengestothecontinuedutilityofthefifteenU.S.MilitaryinstallationsinTexas–basedontheeightcriterialaidoutbytheDepartmentofDefenseforthe2005BRACround-andtoofferstrategiestoovercometheseissues

6.TexasMilitaryForces

• Tocontinuebuildingarapidresponsemilitaryforcetodealwiththestate’smanychallenges,theGovernorshouldleadarecruitmentdrivetodoubletheranksoftheTexasStateGuardtoaforceof5,000members.(Indeterminatebutlowfiscalimplicationtothestate).

o Recentnaturaldisastersillustratethestate’sneedforamorerobuststatewideforcethatcanrapidlyrespondandthat–unliketheNationalGuard–cannotbecalledintonationalservice.AmuchlargerStateGuardof5,000memberswouldbeabletobettermeetthestate’shomelandsecurityandemergencymanagementneeds.

o FromJanuary2003untilMay2016,theTexasMilitaryDepartment(TMD)hasassistedTexansin34tropicalweathermissions,43floodmissions,29aviationfiremissions,26groundwildfiremissions,24winterweathermissions,70civilmissions,and32lawenforcementmissions.

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TableofContents1.JobsforTexasVeterans.............................................................................................................................................6

Recommendation:AdjustjobcreationandhiringprovisionsforoftheOfficeoftheGovernorrelatedtoeconomicdevelopmenttoallowaweightof1.2jobscreatedforeachveterannewlyhired...................6Recommendation:Toincreasehiringofveterans,allowforalocaloptioncommercialpropertytaxexemptionforeachnewly-hiredveteran.....................................................................................................................6Recommendation:Toassistveteranentrepreneursinstartingnewbusinesses,providealocaloptionexemptionofupto$30,000intaxrelieffromrenderingandpayingtaxesonbusinessincome-producingpersonalpropertyforthefirstfiveyearsofoperationofaveteran-ownedbusiness.............................................................8Recommendation:AmendTexaslawtoensurethatanymilitaryspouseorveteran’sspousewhoheldalicensedpositioninanotherjurisdictionwouldbeexemptfromstateandlocallicensingrequirements.............10

2.EmpowerVeteransFacingLifeChallenges..............................................................................................................13

Recommendation:Encouragethecreationandoperationofveteransupportprogramsbyprovidingalocaloptioncityandcountycommercialpropertytaxexemptionofupto$15,000fromappraisedvalueforentitiesthatprovideorpayforreduced-costhousing,orsubstanceabuseandmentalhealthresidentialtreatmentservicestoveterans.(Nosignificantfiscalimplicationtothestate;indeterminatecosttolocalgovernmentbasedonlocaladoption).....................................................................................................................................15Recommendation:ToendveteranhomelessnessinTexas,challengecities,veteranorganizationsandnon-profitstogethomelessveteransintosheltersandlong-termhousing....................................................16

3.Veterans’Healthcare...............................................................................................................................................18

Recommendation:ReauthorizeandFullyFundtheMentalHealthProgramforTexasVeteransattheHealthandHumanServicesCommission....................................................................................................................18Recommendation:EnhancefundingfortheTVCefforttocombatVAbacklog.......................................19Recommendation:BecauseTexasisanationalleaderinservingourveterans,supportandcultivateaTexasmodelforcaringforveteransthatallowsveteranstousefederalVAbenefitstovisitaprivatehealthprovider……...............................................................................................................................................21Recommendation:Eliminatebarrierstotelehealthcaregivingformentalandbehavioralhealthpurposes……………......................................................................................................................................24

4.LegalServicesforVeterans.....................................................................................................................................27

Recommendation:Enhancestategrantstoorganizationsprovidinglegalservicestoveteransfrom$1.5millionperyearinthe2018-19bienniumto$3millionperyearinthe2020-21biennium................................27Recommendation:Encouragestate-employedattorneystoofferprobonoservicestoveteransbystateagencypolicymakingandbycoordinationwiththeTexasVeteransCommission.Recognizingattorneyswhoassistveteransinneedwithprobonolegalservices,thestateshouldrewardthemwithContinuingLegalEducation(CLE)creditandbarfeewaivers...............................................................................................................28

5.BaseRealignmentandClosure................................................................................................................................29

Recommendation:Toprovideoversightandleadership,createatemporaryGovernor’sCommitteetosupporttheU.S.MilitaryinTexasinpreparingforthepossibleupcomingdecisionsoftheBaseRealignmentAndClosureCommittee................................................................................................................................................31

6.StateGuard.............................................................................................................................................................33

Recommendation:Toprovidearapidresponsemilitaryforcetodealwiththestate’smanychallenges,includinghurricanes,theGovernor,asCommander-in-Chiefofthestate’smilitaryforces,shouldleadarecruitmentdrivetodoubletheranksoftheTexasStateGuardtoaforceof5,000members............................................33

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1.JobsforTexasVeterans

Recommendation:AdjustjobcreationandhiringprovisionsforoftheOfficeoftheGovernorrelatedtoeconomicdevelopmenttoallowaweightof1.2jobscreatedforeachveterannewlyhired. TheGovernor’sOfficeadministersseveralincentiveprogramstoencouragejobcreationandeconomicdevelopmentinTexas.Manyoftheseprograms,suchastheTexasEnterpriseFundandtheTexasEnterpriseZoneProgram,disbursefundsinpartbasedontheirabilitytocreatejobs.Forexample,pastrecipientsofTexasEnterpriseFunddisbursementshavetypicallycreatedmorethan75jobsinurbanareasormorethan25inruralareas.1Similarly,toqualifyforTexasEnterpriseZonebenefits,atleast25percentofabusiness’snewpermanenthiresmustberesidentsofadesignatedzoneofeconomicdistress;beeconomicallydisadvantagedindividuals;beorveterans.

TexasmustenhancetheeconomicdevelopmentprogramwithintheofficeoftheGovernortoencouragethehiringofveteransintheprivatesectoroftheTexasworkforce.Toencouragethehiringofveterans,theGovernor’sOfficecanmakespecialfurtherprovisionforcreatingveteranjobs,suchasbyconsideringeachveteranhiredtocountfor1.2full-timeequivalentjobpositionsinhiringnumbersofanyTrusteedFundsincentiveprogramwithajobcreationprovision.2Jobcreationisamajorgoalofincentiveslikethe“deal-closing”TexasEnterpriseFund.Thestatecanchoosetoprioritizeveteranjobcreationbyacommitmenttocontinuingtoattractveteranemployerstothestate.Thiscommitmentcouldalsobecodifiedbyamendingthedefinitionof“newpermanentjob”insection2303.401oftheGovernmentCodetoincludeaweightof1.2jobscreatedforeachveterannewlyhired.

Recommendation:Toincreasehiringofveterans,allowforalocaloptioncommercialpropertytaxexemptionforeachnewly-hiredveteran.Note:Thefollowingincludesmaterialupdatedfromtheproposal“Toincreaseemploymentofveterans,allowforalocaloptionpropertytaxexemptionforeachnewly-hiredveteranbyacommercialpropertyowner”fromthe2014TexansforGregAbbott“JobsforVets”Proposal.3

Asveteransleavethemilitaryandenterintothecivilianlaborforce,itiscriticaltoensurethatasmanyveteransaspossibleenjoythedignityofwork,andprovideforthemselvesandtheirfamilies.Ofthealmost1.7millionveteransinTexasin2016,35,000-about3.6%ofthoseinthecivilianlaborforce-

1“TexasEnterpriseFund,”GoBiginTexas,onlineat:https://businessintexas.com/services/texas-enterprise-fund2Someofthischangemayberegulatory,andsomemayrequirelegislativeaction.FortheTexasEnterpriseZone2Someofthischangemayberegulatory,andsomemayrequirelegislativeaction.FortheTexasEnterpriseZoneProgram,thiswouldrequireachangetothedefinitionsof“newpermanentjob”and“retainedjob”atGovernmentCodeSec.2303.401.3Onlineat:http://www.gregabbott.com/wp-content/uploads/2014/07/Jobs-for-Vets.pdf

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areunemployed,4abetterratethanthe5.0%unemploymentinthetotalcivilianlaborforce.5Moreover,735,000veteransinTexasarenotinthelaborforce;thatistosay,therealunemploymentratemaybehigherthanthestatisticalunemploymentrate.6Whilesomeofthisstructuralunemploymentmayreflectveteranswithdisabilities,theretired,andotherswhoarenotinterestedinemployment,itmayalsoreflectveteranswhoarenolongerseekingworkafterbeingunabletofindanappropriateposition.7

Texasshouldauthorizecitiesandcountiestoadoptlocal-optionpropertytaxexemptionsforcommercialpropertyownerswhoemployhonorablydischargedveterans.Thiswouldonlyapplytonewlyhiredveterans,aftertheeffectivedateoftheexemption,andtheveteranemployeemustbeemployedforatleastoneyearbeforethepropertyownercanclaimtheexemption.Thiswouldbethefirstpropertytaxexemptionrelatedtoemployment.8Theproposalwouldonlycoverveteranshiredforafull-timeposition,whichwouldbedefinedtomeantheequivalentoffortyhoursofworkperweekormore.

Eachnewly-hiredveteranwouldqualifytheownerofacommercialpropertyfora$15,000reductionontheassessedtaxablevalueoftheircommercialproperty;nottoexceed$300,000perpropertyor20%ofthecommercialproperty’stotalassessedtaxablevalue,whicheverisless.Theexemptionwouldbeadoptedlocally.Theproposalwouldincentivizebusinessownerstoemployhonorablydischargedveterans.

CurrentTexaslaw9providesforarangeofpropertytaxexemptions,someofwhichmaybeadoptedbylocaltaxingjurisdictions.Theseexemptionsincludethoseforresidentialhomesteads,disabledveterans,andtherecentlyapprovedexemptionforthesurvivingspouseofapeaceofficerkilledinthelineofduty.Alloftheseexemptionshavetheirmerits,butnoneisstructured(asisthebenefitdescribedhere)tostrengthenveteranlaborforceparticipation.

4“EmploymentSituationofVeterans-2016,”BureauofLaborStatistics,March22,2017.Onlineat:https://www.bls.gov/news.release/pdf/vet.pdf5“TexasEconomyataGlance,”BureauofLaborStatistics.Onlineat:https://www.bls.gov/eag/eag.tx.htm6BLS,infra.7“MakingSenseofUnemploymentData,”ScottA.Wolla,St.LouisFederalReserve,February2016.Onlineat:https://research.stlouisfed.org/publications/page1-econ/2016/02/01/making-sense-of-unemployment-data/.Providesthat:

Those classified as not in the labor force are not working and not looking for work. So, they are notemployedandalsonotconsideredunemployed.Forexample,manyfull-timecollegestudentschoosenottowork so they can focuson their studies. Someparents choose to stayhome to care for their youngchildren.Andmanyolderadults retirebecause theysavedandhaveenough financial resourcesandnolongerhavetowork.Ineachcase,thesepeoplehaveexcludedthemselvesfromthelaborforcebecausethey do not wish to be employed. Even though they do not have jobs, they arenotconsideredunemployed.Anothergroupclassifiedasnotinthelaborforceisdiscouragedworkers.Thesearepeoplewhodonothaveajobandarenolongerlookingforworkbecausetheythinktherearenojobsavailableto them. Such discouragement is likely to occur during arecessionas people lose jobs and then havedifficultyfindinganotherone.Theylikelywillnotstartlookingforworkuntiltheyseesignsthatthelabormarkethasimproved.Becausetheyareneitheremployednoractivelyseekingemployment,theyarenotcountedaspartofthelaborforce.

8“TexasPropertyTaxExemptions,”OfficeoftheComptroller,January2016.Onlineat:https://comptroller.texas.gov/taxes/property-tax/docs/96-1740.pdf.9IncludingTexasTaxCode11.13.

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Texaslaw10alsoprovidespropertytaxexemptionsspecificallyforveteransandtheirfamilies.Statuteprovidesforapartialpropertytaxexemptionforanypropertyownedbydisabledveteransandsurvivingspousesandchildrenofdeceaseddisabledveterans,aswellasapartialexemptionforresidencehomesteadsdonatedtodisabledveteransbycharitableorganizations.Theamountoftheseexemptionsisdeterminedaccordingtopercentageofservice-connecteddisability.

ThebilltorealizethisproposalshouldhaveaneffectivedateofJanuary1(soevenifabillgoesintoeffectSeptember1,thetaxingentitydoesnothavetostartcountinguntilJanuary1ofthefollowingyear).Localappraisalsdistrictswouldbechargedwithmakingsureoftheexemptionsandenforcingviolations,aspartoftheregularappraisalprocess.Theproposalwouldincentivizebusinessownerstoemployhonorablydischargedveterans.Itisalsoimportantthataspartoftheproposal,TexasadoptanauditingmodelwherebytheComptroller’sOfficeoranotherthirdpartywouldchecktherecordsofsomeofthebusinessesapplyingfortheexemptioninrandomlyselectedcountiesforeachfiscalyear.Appraisaldistrictscurrentlyhavetheresponsibilityfordeterminingeligibilityformanypropertytaxexemptions,butthecomptrollerhasarolein,forexample,determiningwhetheranorganizationischaritableforpropertytaxexemptionpurposes.11Inthiscase,theaddedscrutinywillencourageaccountabilityinimplementationoftheprogram.

Recommendation:Toassistveteranentrepreneursinstartingnewbusinesses,providealocaloptionexemptionofupto$30,000intaxrelieffromrenderingandpayingtaxesonbusinessincome-producingpersonalproperty12forthefirstfiveyearsofoperationofaveteran-ownedbusiness.

Texasmustcontinuetocreatemoreopportunitiesforourcountry’sheroes.TheCensusBureau’s“SurveyofBusinessOwnersandSelf-EmployedPersons,”lastconductedin2012,foundthatoutof2,356,748firmsintheStateofTexas,213,590wereveteranowned:aveteran-ownershiprateof9.1%ofallfirms.13Incomparison,asof2014,7.6%ofallTexansaged18andolderwereveterans.14ThishighownershipratedemonstratesthatTexashasalreadycreatedastrongclimateforveteranentrepreneurship,whichcannowbefurtherenhanced.Mostveteran-ownedbusinessesaresmallandcouldseerealimpactfromanincentiveofthissize,asaccordingtotheU.S.SmallBusinessAdministration,asofthelatestavailabledatain2012,fewerthan10%ofveteran-ownedbusinesseshad10ormoreemployees.

10(TaxCodeSections11.131,11.132,11.22and11.23(a))11TaxCodeSec.11.184(e)12Tangiblepersonalproperty,definedatTaxCode171.1012(3)(A),isaformof“goods”underTaxCode1012(1),withtheonlyotherformbeingrealestate.Anewveteran-ownedbusinessisasdefinedatTaxCode171.0005.13U.S.CensusSurveyofBusinessOwners(SBO),onlineat:https://www.census.gov/programs-surveys/sbo.html14“VeteransinTexas:ADemographicStudy,”TexasWorkforceInvestmentCouncil,onlineat:https://gov.texas.gov/uploads/files/organization/twic/Veterans_in_Texas_2016_Update.PDF

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Source:U.S.CensusBureau’sSurveyofBusinessOwners15

Oneareawheresupportforveteranbusinessownersisappropriateisintherealmofproperty

taxation.Texasbusinessownersmust,forpropertytaxpurposes,report,orrender,income-producingpersonalproperty,whichincludesfurniture,fixtures,equipment,inventory,machineryandvehicles.Arenditionidentifies,describesandgivesthelocationoftheirtaxableproperty.Ownersofbusinesseswithmorethan$15,000invaluemustfilearenditionthatincludeseithertheowner’sgoodfaithestimateoftheproperty’smarketvalue,ortheproperty’shistoricalcostnewanditsyearofacquisition.

Undertheexemption,aqualifyingbusinessownerwouldbeentitled,forthefirstfiveyearsoftheirfirm’soperation,toupto$30,000intaxrelieffromrenderingandpayingpropertytaxesfortheirbusiness’sincome-producingpersonalproperty.Anycoveredentitywithlessthan$30,000totalinincome-producingpropertywouldbeexemptedentirelyfrompayingpropertytaxontheseitems,asthesizeofthetaxreliefwouldbegreaterthanthetaxotherwisewouldhavebeen.Forasmallbusinesswithalotofphysicalinventory,suchasarestaurant,thistaxreliefcouldbethedifferencebetweenanunaffordabledreamandathrivingenterprise.

In2015,actingonarecommendationofferedbyGovernorAbbottinhis2015BicentennialBlueprint“JobsforVeterans”setofproposals,the84thLegislaturepassedSenateBill1049(Campbell,sp:Sheets),exemptingtaxableentitiesthatqualifyas“newveteran-ownedbusinesses”fromtheeffectsofthefranchisetaxforthefirstfiveyearsofthebusiness’operation.16AstheGovernorhasnoted:

15“Veteran-OwnedBusinessesandTheirOwners:DatafromtheU.S.CensusBureau’sSurveyofBusinessOwners,”JosephSobota,OfficeofAdvocacyU.S.SmallBusinessAdministration,April2017.Onlineat:https://www.sba.gov/sites/default/files/advocacy/435-veteran-owned-businesses-report.pdf16SenateBill1049(84-R),TexasLegislatureOnline.Availableat:http://www.capitol.state.tx.us/tlodocs/84R/analysis/html/SB01049F.htm

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Whilewe are fortunate in Texas to not pay a personal income tax,we are paying asconsumers and employees when it comes to the business franchise tax. Every dollarpaidinbusinessfranchisetaxescouldinsteadbeinvestedinhigherwagesornewjobs.Texasmust promote smarter tax policies that energize the Texas economy by drivingdownthecostofdoingbusiness.17ThepolicyembodiedinSB1049encouragesentrepreneurshipamongveteransbyreducingthe

costofdoingbusinessandsimultaneouslyrewardingthemfortheirservicedefendingourcountry.Thefiscalimpactwasmodest,reflectinga$2.8millionrevenuelossfromthePropertyTaxReliefFund.

Similarly,in2015theLegislatureconsideredHouseBill2043(Sheets,84-R),whichwouldhaveprovidedbusinessownersemployingatleastoneveteranwithupto$15,000inrelieffrompropertytaxesonrealpropertyusedfortheoperationofabusiness.However,thebillneverreceivedahearingintheHouseWaysandMeansCommittee.Thisproposalshouldbeexpandedonbyprovidinganexemptionforveteran-ownedbusinessesonreportingincome-producingpersonalpropertyforpropertytaxpurposesforthefirstfiveyearsofthebusiness’soperation.

Inordertoencourageveteranentrepreneurship,veteran-ownedbusinessesshouldbegrantedupto$30,000intaxrelieffromthepropertytaxonincome-producingpersonalpropertyforafive-yearperiod.Aveteran-ownedbusinesswould,undertheexistingdefinition18inTexaslaw,berequiredtobeabusinessinwhicheachownerisaveteran.Thispreventsanybusinessfromaddingaveteranasa“strawman”ownertoreceivebenefits.Thedecisiontoenacttheexemptionwouldbeatlocaloption,andthebilltorealizethisproposalshouldhaveaneffectivedateofJanuary1(soevenifabillgoesintoeffectSeptember1,thetaxingentitydoesn’thavetostartcountinguntilJanuary1ofthefollowingyear).

Recommendation:Promoteadditionaloccupationallicensingreformstomaximizeemploymentopportunitiesformilitaryfamilies.Note:Thefollowingincludesmaterialupdatedfromtheproposalto“Facilitateemploymentofskilledveteransbywaivingexaminationandfeerequirementsforveteransobtaininglicensesissuedbystateagencies”fromthe2014TexansforGregAbbott“JobsforVets”Proposal.19

Despiteitsreputationasaneconomicleader,Texasfinishestowardthebackofthepackintermsofitslicensinglaws.Manyactivitiescurrentlyrequireastate-issuedlicensebeforetheycanbelegallyperformedinTexas,andmanymunicipalitiesrequirelicensedprofessionalstopayadditionaloccupationalor“registration”feesatthelocallevel.Furthermore,thecriminalandcivilpenaltiesin

17Gov.GregAbbott,“FranchisetaxreliefisessentialtoTexaseconomy,”AustinAmericanStatesman,April14,2015,availableonlineathttp://www.mystatesman.com/news/news/opinion/abbott-franchise-tax-relief-is-essential-to-texas-/nks9N/?icmp=statesman_internallink_invitationbox_apr2013_statesmanstubtomystatesmanpremium#e39f1c18.3584106.735702.18TaxCode171.000519Onlineat:http://www.gregabbott.com/wp-content/uploads/2014/07/Jobs-for-Vets.pdf

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Texasforviolatinglicensingregulationsoroperatingwithoutalicenseareparticularlyharshand,inmanycases,unjustified.Penaltiesforviolatinginteriordesignlicensingregulations,forinstance,donotevenincludecivilpenalties.AllknowingviolationsofinteriordesignlicensingprovisionsareClassCMisdemeanorcriminalviolations,whicharepunishablebyjailconfinementforuptooneyearandafineupto$4,00020.Likewise,auctioneerscommitaClassBMisdemeanoriftheyoperatewithoutalicense.ClassBmisdemeanorsarepunishablebyjailconfinementforupto180daysandafineupto$2,000.21

Stateagenciesthatissuelicensesarerequiredtogivecredittomilitaryservicemembersandveteransfortheirmilitaryservice,training,oreducationtowardmeetinglicensingandapprenticeshiprequirements.22Anystateagencythatissuesalicensemust,withrespecttoanapplicantwhoisamilitaryservicememberormilitaryveteran,creditverifiedmilitaryservice,training,oreducationtowardthelicensingrequirements,otherthananexaminationrequirement,foralicenseissuedbythestateagency.23 Similarly,in2015,theLegislaturepassed,andGovernorAbbottsignedintolaw,SenateBill807(Campbell,sp:Sheets),whichrequiresanystateagencythatissueslicensestowaivestatelicenseapplicationandexaminationfeesforcertainmilitarymembers,veterans,andtheirspouses.Thefeewaiversapplytomilitaryservicemembersorveteranswhoseservice,training,oreducationsubstantiallymeetsalltherequirementsforthelicenseandtoservicemembers,veterans,ormilitaryspouseswhoholdacurrentlicenseissuedbyanotherjurisdictionforwhichthelicensingrequirementsaresubstantiallyequivalenttothoseinTexas.TheTexasDepartmentofLicensingandRegulationnowadvertisesthesewaiversonlineviaits“militaryoutreach”webpage.24Thisbenefitsinterstatelicenserecognitionaswellasthosewithmilitarytrainingforavarietyoflicensedprofessions,includingforeducators.25

Similarly,effectiveSeptember1,2015,theTexasEducationAgency(TEA)nowwaivescertainfeesforeligiblemilitaryservicemembers,militaryveterans,andmilitaryspouses,includingthestandardcertificaterequiringcompletionofaneducatorpreparationprogram.26ThechangewaspromptedbySB807(Campbell,84R),althoughitslanguagedoesnotexplicitlyrefertoeducators.Thereisstillroomtoimproveontheinterchangeabilityofeducatorcertificatesbyextendingthewaivertoveterans’spouses.27

20TexasOccupationsCodeSec.1053.35121TexasOccupationsCodeChapter1802SubchapterG22TexasOccupationsCodeChapter5523TexasOccupationsCode55.00724“InformationforMilitaryServiceMembers,VeteransandSpouses,”TexasDepartmentofLicensingandRegulation,onlineat:https://www.tdlr.texas.gov/military.htm25Foreducatorsandotherprofessionals,thecurrentlicensingbenefitforspouseswastriggeredbySB807(Campbell,84(R)),whichiscodifiedatOccupationsCode55.009.ThelegislativesolutionistograntthebenefitofOccupationsCode55.009(2)–licenseequivalencyortransfers-toveterans’spouses,andofOccupationsCode55.009(1)–recognitionofmilitarytraining,whichmightnotincludefeewaivers-tobothcurrentmilitaryspousesanveteransspouses.26“TexasEducators:MilitaryCommunity.”TexasEducationAgency,onlineat:https://tea.texas.gov/Texas_Educators/Certification/Military_Community/27Tobetterillustrate,considertheexclusionofveterans’spousesandpartiallyofmilitaryspousesfromthebenefitofOccupationsCodeChapter55.009:Notwithstandinganyotherlaw,astateagencythatissuesalicenseshallwaivethelicenseapplicationandexaminationfeespaidtothestateforanapplicantwhois:

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Whilethesepoliciesarecritical,additionaloccupationallicensingreformsareneededtomaximizeemploymentopportunitiesformilitaryfamilies.Statelawshouldbefurtheramendedintwokeyareas.First,thelicensingfeewaiversinSB807shouldbeextendedtoincludeanyrelevantlocalfees.Second,thestateshouldprovideforlicensingreciprocityforveterans,theirspouses,andformilitaryspouseswhoholdacurrentlicenseissuedbyanotherjurisdictionforwhichthelicensingrequirementsaresubstantiallyequivalenttothoseinTexas.

Extendingthisoccupationallicensingrelieftothesefamilieswouldshowthestate’scommitmentstowelcomingmilitaryfamiliesintothestateandensuringastrongjobclimate.Texascanendthesebarrierstoemploymentformilitaryandveterans’spouses,becominganevenbetterenvironmentforveteranstoseekopportunitiesandbringtheirprofessionaltalentandexpertisetoourstate.

(1)amilitaryservicememberormilitaryveteranwhosemilitaryservice,training,oreducationsubstantiallymeetsalloftherequirementsforthelicense;or(2)amilitaryservicemember,militaryveteran,ormilitaryspousewhoholdsacurrentlicenseissuedbyanotherjurisdictionthathaslicensingrequirementsthataresubstantiallyequivalenttotherequirementsforthelicenseinthisstate.

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2.EmpowerVeteransFacingLifeChallenges

HomelessnesscontinuestoposeachallengeformajorcitiesinTexas,and,tragically,someofthesehomelessresidentsareveterans.WhiletherehavebeenmajoreffortsbycitieslikeAustin,Houston,andSanAntoniotocombatthisissue,hundredsofveteransarestilllivingonthestreets.TheU.S.DepartmentofHousingandUrbanDevelopment’s(HUD)2016HomelessAssessmentreported1,768homelessveteransinTexas.28 SeveralTexascitieshavebeenparticipatingintheMayorsChallengetoEndVeteranHomelessness,ajointinitiativeoftheWhiteHouse,HUD,theDepartmentofVeteransAffairs(VA),theUSInteragencyCouncilonHomelessness,andtheNationalLeagueofCities.29SanAntonio,30Houston,31andAustin32allclaimtohaveeffectivelyendedveteranhomelessnessthroughasystembasedonpreventionstrategiesandrapididentification,outreach,engagement,housingplacementandsupportiveservicesofferedtoveteranswhodobecomehomeless.33Incontrast,despiteanationwidedeclineinhomelessness,theGreaterDallasareasawa21%increasein2016.34TheMetroDallasHomelessAlliancebelievesthattheincreaseispartlyduetogettingamoreaccuratecount,aswellastoadecreaseinaffordablehousinginthecurrentrealestatemarket.35Therewere3,810homelesspeoplecountedinGreaterDallasinthe2016point-in-timecount,ofwhich304wereveterans.36 28“The2016AnnualHomelessAssessmentReport(AHAR)toCongress,”TheU.S.DepartmentofHousingandUrbanDevelopment.Onlineat:https://www.hudexchange.info/resources/documents/2016-AHAR-Part-1.pdf29“MayorsChallengetoEndVeteranHomelessness,”U.S.CouncilInteragencyCouncilonHomelessness.Onlineat:https://www.usich.gov/solutions/collaborative-leadership/mayors-challenge30“CityofSanAntonioEffectivelyEndsVeteranHomelessness,”CityofSanAntonio,May13,2016.Onlineat:https://www.sanantonio.gov/Commpa/News/ArtMID/1970/ArticleID/7436/City-of-San-Antonio-Effectively-Ends-Veteran-Homelessness31“HoustonEndsVeteranHomelessness,”OfficeofPolicyDevelopmentandResearch(PD&R)U.S.DepartmentofHousingandUrbanDevelopment.Onlineat:https://www.huduser.gov/portal/home.html32“Austin:Plantohouseallhomelessveteransaccomplished,”ClaireRickeandCalilyBien,KXAN,August19,2016.Onlineat:http://kxan.com/2016/08/19/austin-plan-to-house-all-homeless-veterans-accomplished/33“MayorsChallengetoEndVeteranHomelessness,”U.S.CouncilInteragencyCouncilonHomelessness.Onlineat:https://www.usich.gov/solutions/collaborative-leadership/mayors-challenge34“FinalReport,”DallasCommissiononHomelessness.Onlineat:http://dallascityhall.com/government/citymayor/PublishingImages/pages/Homeless-Commission/Final%20Report%20Dallas%20Commission_112216%20Final.pdf35“NumberofhomelesspeoplelivingonthestreetsofDallas,Collincountiesisupdrastically,”TashaTsiperas,DallasMorningNews,March9,2017.Onlineat:https://www.dallasnews.com/news/social-justice-1/2017/03/09/number-homeless-people-living-streets-dallas-collin-counties-drastically-increased-year36Ibid.

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VeteransHousedasaResultofMayorsChallengeParticipation

TexasParticipants #ofVeterans

Austin(2014-2016) 682

SanAntonio(2014-2016) 1335

Houston(2012-2016) >4920

Sources:AustinStatesman37,CityofSanAntonio38,CityofHouston39

Often,thesesuccessesowedmuchtosupportfromprivateentities:forexample,$2millioncommittedbytheUnitedServicesAutomobileAssociation(USAA)wasdonatedtothreelocalveteranorganizationsassistingwiththeMayorsChallengeandwasusedtowardsestablishingareal-timesystemforhelpingveteransfindservices,morepermanenthousing,andhelpingveteransaccessnecessaryservicesasquicklyaspossible.40

Inaddition,TVCoffersavarietyofemploymentservicesandeducationalresources.TVCmustensurethatveteranscanaccessservicestowhichtheyareentitledbeyondjustdisabilitybenefits.Hence,TVCmustincreaseawarenessfortheseservices.Thisincludesoutreachtoincreasetheuseof2-1-1TexasInformationandReferralNetwork(TIRN)byVeteransandtheirfamilies,aswellasincreasedcoordinationandsharedinformationamongagenciesthatinteractwithveterans(TVC,TDHCA,HHSC,etc.).

Currentstatuterequireseachcountywithapopulationofover200,000(ofwhichthereare23)toemployaVeteransCountyServiceOfficer.41Statelawispermissiveforthosecountieswithapopulationunder200,000;theymayemployaVeteransCountyServiceOfficer,butarenotrequiredtodoso.AspartoftheirSelf-EvaluationReportfortheSunsetCommission,TVCsuggestedthattheroleof

37“HUDcertifiesAustinhasendedhomelessnessamongveterans,”JamesBarragan,Austin-AmericanStatesman,August19,2016.Onlineat:http://www.mystatesman.com/news/local/hud-certifies-austin-has-ended-homelessness-among-veterans/F0udmHNqxsMyHinnv0kotL/38“CityofSanAntonioEffectivelyEndsHomelessness,”CityofSanAntonio.Onlineat:https://www.sanantonio.gov/Commpa/News/ArtMID/1970/ArticleID/7436/City-of-San-Antonio-Effectively-Ends-Veteran-Homelessness39“JPMorganChaseCommits$1MilliontoTheWayHometoFightHomelessnessinHouston,”CityofHouston.Onlineat:http://www.houstontx.gov/mayor/press/jpmorgan-chase-fight-homelessness.html40“USAADonatesOver$2MilliontoHelpFightVeteranHomelessnessinSanAntonio,“MichaelMarks,SanAntonioCurrent,January8,2016.Onlineat:https://www.sacurrent.com/the-daily/archives/2016/01/08/usaa-donates-over-2-million-to-help-fight-veteran-homelessness-in-san-antonio41See,e.g.,“Despitestatelaw,BellCountydoesn’temployveteranserviceofficer,”JeremySchwartz,AustinAmericanStatesman,October26,2013.Onlineat:http://www.mystatesman.com/news/local/despite-state-law-bell-county-doesn-employ-veteran-service-officer/4YSkTRYVMmrMB4HYVfJWGI/

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theVeteransCountyServiceOfficerwithinthecountyshouldberefined,withlessemphasisonclaimsprocessingandagreateremphasisonresourcereferralandplacement.42

Recommendation:Encouragethecreationandoperationofveteransupportprogramsbyprovidingalocaloptioncityandcountycommercialpropertytaxexemptionofupto$15,000fromappraisedvalueforentitiesthatprovideorpayforreduced-costhousing,orsubstanceabuseandmentalhealthresidentialtreatmentservicestoveterans.(Nosignificantfiscalimplicationtothestate;indeterminatecosttolocalgovernmentbasedonlocaladoption)

Texascouldsponsor“VeteranSupportGroup”programs.Thiswouldencouragenonprofitsandbusinessesto“adopt”aveteraninneedofassistancewithhousingandemployment,aswellasthosefacingmentalhealthandsubstanceabusechallenges.Ratherthanrelyingsolelyonsolutionsatthestateandlocalgovernmentlevels,TVCshouldinsteadprovideaplatformtochallengenonprofitstosupportindividualveteransby“adopting”them,therebymonitoringandappropriatelysupportingtheirprogresstoward,wherepossible,employment,housing,andbecomingcontributingmembersofsocietywhoareabletoputtheirskillsandexperiencetogooduse.

Therearecountlessveteran-focusedcorporationsandnonprofitscommittedtoensuringthosewhoservedourcountryreceivethecareandresourcestheyneedupontheirreturn.TVCcurrentlyawardsgrantstoorganizationsthatassistinhousingveterans.43TVCandTexascitiescanbuildontheMayorsChallengetoEndVeteranHomelessnesstobringstakeholderstogether,includingthesocialservicesandhousingcommunities,tobettercoordinateveteranservices.Resourcescanbeutilizedtoenactpoliciestoprovidehousingassistance,suchasdevelopingmoreaffordablehousingunits;rentforrapidre-housingofpersonsexperiencinghomelessness;housingcounseling;rentalapplicationfeesandrentaldeposits;andincentivizingexistingaffordablehousingdeveloperstosetasideunitsforveteranswhereverpossible.

However,employmentandhousingalonecannotfullyresolvethechallengestheseveteransface.Substanceabuseandmentalhealthtreatmentwillbecriticalcomponentsofanyprogram,civicorstate,thatseekstorehabilitatehomelessveterans.AccordingtotheVA,inthewarsinIraqandAfghanistan,about1in10returningsoldiersseenintheVAhaveaproblemwithalcoholorotherdrugs.44Inparticular,morethan2in10veteranssufferingfrompost-traumaticstressdisorderalsostrugglewithsubstanceabuseissues.45Whilemanyprovidersofferingtreatmentandservicestotheseveteransarecharitablenonprofitsexemptfromtaxation,othersarefor-profitbusinesses:drug,alcoholandotheraddictiontreatmentintheUnitedStatesisamajorindustryworth$35billionin2014,with

42TexasVeteransCommissionSelf-EvaluationReport,onlineat:https://www.sunset.texas.gov/public/uploads/files/reports/Texas%20Veterans%20Commission%20Self-Evaluation%20Report.pdf43“HousingForTexasHeroes,”TexasVeteransCommission.Onlineat:https://www.tvc.texas.gov/grants-funding/housing-for-texas-heroes/44“PTSDandSubstanceAbuseinVeterans,”U.S.DepartmentofVeteransAffairs.Onlineat:https://www.ptsd.va.gov/public/problems/ptsd_substance_abuse_veterans.asp45Ibid.

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over14,000treatmentfacilitiesandgrowingandatotalof2.5millionpersonsreceivedtreatment.46Inasingle-daycountin2015,35,293individualsinTexaswereenrolledinsubstanceusetreatment,adecreasefrom36,875individualsin2011.47

Inordertoincentivizetheprovisionofkeyservicesforveteransinneed,Texasshouldcreatealocaloptioncityandcountycommercialpropertytaxappraisedvalueexemptionofupto$15,000perveteranwhoreceivesatleast$5,000worthofbenefitsinagivenyear,foramaximumexemptionof$300,000,toanyentitythatprovideshousing,substanceabusetreatment,ormentalhealthcounselingatnocosttotheaffectedveterans.Toqualify,thetreatmentorhousingprovider–orentitythatpaysforsuchtreatmentorhousing--musthavesavedthegivenveteranatleast$5,000incoststhroughsuchbenefits.

Recommendation:ToendveteranhomelessnessinTexas,challengecities,veteranorganizationsandnon-profitstogethomelessveteransintosheltersandlong-termhousing.

Endingveteranhomelessnessiswithinourreach.TheU.S.DepartmentofHousingandUrbanDevelopment’s2016HomelessAssessmentreported1,768homelessveteransinTexas.Giventhevastarrayofpublicprogramsandprivateresources,endingveteranhomelessnessisachievable.

Considerrecentprogressinthepublicsector.Albuquerque’s“There’sABetterWay”program,whichhirespanhandlersfordayjobsbeautifyingthecity,wascreatedbyAlbuquerque’sMayorRichardBerry,aformerRepublicanstaterepresentative.48Theprogramwaslaunchedinpartnershipwithalocalnonprofitsupportingthehomeless.Theshelterhelpsconnectpanhandlerswithotherdaylaborjobsinthecommunityandvariousresources.Sincetheprogram’sinceptionin2015,thecityhasprovided3,498dayjobs,connected368peoplewithadditionalwork,housed21people,cleaned599blocks,andremoved175,201poundsoftrash.49

Inadditiontotheworkprogram,Albuquerquelaunchedanawarenesscampaigninformingthehomelessthattheycancallthecity’s311serviceifthey’reinneedofshelterorfood,andencouragingdriverstodonatetocommunityprogramsinlieuofgivingmoneytopanhandlers.Thecitycreatedacentralizeddonationwebsitethatallowspeopletodonatetoshelters,theworkprogram,andotherhomelessnesssupportservices.SimilarprogramshavebeenadoptedinAnchorage,Honolulu,Denver,Tucson,Chicago,andseveralothercitiesthroughouttheUnitedStates.

46“TheU.S.AddictionRehabIndustry,”BharatBookBureau,August14,2014.Onlineat:https://www.bharatbook.com/healthcare-market-research-reports-510384/healthcare-industry-healthcare-market-research-reports-healthcare-industry-analysis-healthcare-sector2.html47“BehavioralHealthBarometerTexasVol.4,”SubstanceAbuseandMentalHealthServicesAdministration,2015.Onlineat:https://www.samhsa.gov/data/sites/default/files/Texas_BHBarometer_Volume_4.pdf48“ThisRepublicanmayorhasanincrediblysimpleideatohelpthehomeless.Anditseemstobeworking,”ColbyItkowitz,WashingtonPost,August11,2016.Onlineat: https://www.washingtonpost.com/news/inspired-life/wp/2016/08/11/this-republican-mayor-has-an-incredibly-simple-idea-to-help-the-homeless-and-it-seems-to-be-working/?utm_term=.c1012861a9f849“There’sABetterWay,”CityofAlbuquerque.Onlineat:https://www.cabq.gov/mayor/priorities-initiatives/initiatives/theres-a-better-way

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InMay2017,AmarillolaunchedapilotoftheHomelessOutreachProvidingEncouragement(HOPE)programtocombattheirhomelessnessissue.50SimilartotheAlbuquerqueprogram,homelessindividualsarerecruitedtoworkonbeautificationprojectsaroundAmarilloandarethenassessedbyacasemanagertoidentifytheirneeds.Fromthere,theindividualisconnectedwithresourcesthatmeettheiruniqueneedswiththegoalofsecuringhousingforthem.Theprogramhas,sofar,helpedplacetwelveformerlyhomelessindividualsinpermanenthousing.51

UndertheleadershipofCityCouncilwomanEllenTroxclair,theAustinCityCouncilonAugust31stapprovedapilotprogramsimilarto“There’sABetterWay”toprovideAustin’shomelessandpanhandlingpopulationwithopportunitiestowork.52ResidentsInSearchofEmpowerment(RISE)ATXwillworkinpartnershipwithlocalnonprofitstorecruitinterestedindividualsandassistinconnectingthemtoadditionalresources,suchashousing,mentalhealthservices,andpermanentemployment.ThepilotprogrambeginsonJanuary1,2018.Theprogramwillalsopaymorethanthe$9offeredtoparticipantsinAlbuquerque:$13.50anhour,whichtheAustinCityCouncilhasadoptedasa“livingwage”forotherpurposes.53Theresolutioninitiallyproposedupto$125,000infundsforthepilotprogrambutthefinalversiondidnotincludeaspecificcost;theCouncilwillnextconsiderfundingafterthepresentationofaJanuary2018reportonprogramimplementation.

TheDallasCityCouncilconsideredasimilarproposalinMay2017butultimatelyrejecteditinhopesofinsteadadoptingaprogramthroughanoutsidevendororagency.54DallasCityCouncilmembersexpressedconcernwithallocatingfundsforadministrationofaprogramwithoutatangiblewaytomeasureitssuccess.Creatingmetricsfortheprogramcouldeasethespendingconcernoflocalofficials.Programsuccesscouldbemeasuredbynumberofindividualsservedcomparedtothosewhogoontosecurepermanentemploymentandhousing.

Thebenefitsofaprogramlikethisaretwo-fold.Itprovidesworkforthehomelessasanalternativetopanhandlingandconnectsthemwithavailableresources.Whilethisprogramshouldbefocusedlocally,Texascouldhelpendveteranhomelessnessonceandforallbychallengingveteranorganizations,localgovernments,andnon-profitorganizationstomarshalresourcestogetveteransoffthestreets.Theresourcesarethere.IfeverymajorTexascityreplicatedthe“There’saBetterWay”program,andifeveryveteran’sorganizationcommittedresourcestogettingveteransoffthestreet,eradicatingthehomelessveteranpopulationiswithinreach.

50“Amarillo’sHomelessOutreachProvidingEncouragement(HOPE),”CityofAmarillo.Onlineat:http://amarillo.gov/?p=982751“ThereishopeforAmarillo’shomeless,”AmarilloGlobe-News,August,30,2017.Onlineat:http://amarillo.com/editorial/opinion/2017-08-30/editorial-there-hope-amarillo-s-homeless52“NewpilotprogramwillofferemploymenttoAustin’shomelessandpanhandlingpopulations,”ChristopherNeely,CommunityImpact,August31,2017.Onlineat:https://communityimpact.com/austin/city-county/2017/08/31/new-pilot-program-will-offer-employment-austins-homeless-panhandling-populations/53“Austinexploresanewapproachtohelpingthehomeless,”JackCraver,AustinMonitor,September11,2017.Onlineat:https://www.austinmonitor.com/stories/2017/09/austin-explores-a-new-approach-to-helping-the-homeless/54“DallasKicksPanhandlingProgramtoTheCurb,”KenKalthoff,NBCDFW,May24,2017.Onlineat:http://www.nbcdfw.com/news/local/Dallas-Kicks-Panhandling-Program-to-The-Curb-424179913.html

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3.Veterans’Healthcare

Recommendation:ReauthorizeandFullyFundtheMentalHealthProgramforTexasVeteransattheHealthandHumanServicesCommission.

In2014,GovernorAbbottinhis“HealthyTexans”plancalledforthestatetooffer“designatedmentalandbehavioralhealthscreeningdaysforveteransandservicemembersnearmilitaryinstallations.”55In2015,theLegislaturerespondedtothiscallbypassingHouseBill19(SusanKing,sp:Campbell),whichrequiredTVCandtheDepartmentofStateHealthServices(DSHS)toprovidestatewidecoordinationfortheadministrationofthestate'sMentalHealthProgramforVeterans.Furthermore,theLegislatureincludedinthe2016-17statebudgetDSHSRider62,appropriating$10millionforthepurposeofadministeringtheMentalHealthProgramforVeterans.Inthecurrent2018-19budget,substantivelythesame$10millionfundingforthebienniumwasmadeasprovidedforbyHealthandHumanServicesCommission(HHSC)Rider174(HHSChavingsinceabsorbedmanyformerfunctionsofDSHS).

Inthegeneralpopulation,seventoeightpercentofAmericanssufferfrompost-traumaticstressdisorder(PTSD).56Inthemilitarypopulation,expertsbelievethat11-20percentofveteransofthewarsinIraqandAfghanistan,tenpercentofGulfWarveterans,and30percentofVietnamveteranssufferfromPTSD.57OneRANDstudyfoundthatonlyhalfofservicemembersreturningfromthewarsinIraqandAfghanistanhavesoughttreatment.58ForthosewhodoseekhelpforPTSDormajordepression,onlyhalfreceivewhatresearcherscallminimallyadequatetreatment.59AccordingtotheArmedForcesHealthSurveillanceCenter,“[m]entaldisordersaretheleadingcauseofhospitalbeddaysandthesecondleadingcauseofmedicalencountersforactivecomponentservicemembersintheU.S.military,”andthatnumberincreasedby87percentfrom2000to2011.60

Suicideriskisaparticularconcernforveterans.Thoughveteranscompriseonly10percentofthepopulation,theyaccountfor20percentofsuicides.61Fortunately,utilizingprovenmethodsoftreatingmentalhealthissuesmeanslesseningsuiciderisk;astudyconductedbytheMillenniumCohortStudyfoundthatmentalhealthandsubstanceabuseissuesweresignificantlyrelatedtosuiciderisk,whilecombatordeploymentexperiencewasnot.62

55HealthyTexans,TexansforGregAbbott,onlineat:https://www.gregabbott.com/wp-content/uploads/2014/09/Greg-Abbotts-Healthy-Texans-Plan.pdf56“PTSD:NationalCenterforPTSD,”U.S.DepartmentofVeteransAffairs.Onlineat:https://www.ptsd.va.gov/public/PTSD-overview/basics/how-common-is-ptsd.asp57Ibid.58“OneInFiveIraqandAfghanistanVeteransSufferfromPTSDorMajorDepression,”RAND,April17,2008.Onlineat:https://www.rand.org/news/press/2008/04/17.html59Ibid.60“MedicalSurveillanceMonthlyReport,”ArmedForcesHealthSurveillanceCenter,Julyy2013.Onlineat:http://www.afhsc.mil/viewMSMR?file=2013/v20_n07.pdf61“Veterans'accesstomentalhealthservicesneedsfixing,”Ret.Lt.Col.SteveBrozak,CNNMoney,November11,2013.Onlineat:http://money.cnn.com/2013/11/11/news/economy/veterans-mental-health/62“Suicide,MentalDisorders,andtheUSMilitary

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Problematically,manyservicemembersfeartheywillbepenalizedortheircareerswillbestallediftheyseekmentalhealthtreatmentthroughtheirpostorbase.OneNavyCommandernotes,“[m]anyservicemembersfearthatseeingapsychologistwillsinktheircareers…Theyworry—oftenneedlessly—thattheirproblemswillgetbacktotheirbosses,endangertheirsecurityclearancesandevenresultintheirseparationfromtheservice.”63Themilitaryhasputforthseveralmajoreffortsovermanyyearsattemptingtoremovethestigmaandtreattrauma.64 ThenewprogramatHHSChasbeenabletohelpmanyTexasveteransfacingmentalhealthissues.InFiscalYear2017,theHHSCprogramwasabletoserve152,691veteranswithoneofthreeformsofassistance:counselingbymentalhealthprofessionals,peer-to-peer-services,orservicescoordinatedforveteransinvolvedinthejusticesystem.65Fundingfromtheprogramhasalsotrained6,074communitysupportpeersinsuchcriticalmentalhealthinitiativesassuicideawareness,mentalhealthfirstaidforveterans,andtheVeteransCourtAdvocacyMentorProgram.66EffectiveSeptember1,2017,TVChiredaWomenandRuralVeteranCoordinator,seekingtoprovideagreateremphasisonwomenandruralveterans’mentalhealthneeds.67Thisprogramexpandspointsatwhichveteransmayaccessmentalhealthservices,suchaslocalmentalhealthauthorities(LMHAs)andlocalbehavioralhealthauthorities(LBHAs),aswellasthroughgrantsfordirectservicestolocalandnonprofitorganizations,suchasCatholicCharitiesofCentralTexasandForthWorth,DallasCountyCommunitySupervisionandCorrectionsDepartment,andProjectAmistad.68

Thisprogramshouldbereauthorizedandcontinuetobefullyfunded.Astheprogrammatures,HHSCshouldensurethattheMentalHealthProgramforTexasVeteransisfullycoordinatingwithTVCandotherprogramsservingTexasveterans.Increasedcoordinationwillnotonlyhelptoensurethatthestate’sresourcesarebeingmaximizedandthatservicesarenotbeingduplicated,butcanalsohelpidentifyveteranswhohavecomeintocontactwithotherstateagenciesorprograms,suchasTDHCAorthecriminaljusticesystem,andmaybeinneedofmentalorbehavioralhealthservices.

Recommendation:EnhancefundingfortheTVCefforttocombatVAbacklog.

TheTexasVeteransCommission(TVC)wascreatedin1927toadvocateforTexasveteransandtheirfamilies.WiththecontinuedclaimsofbacklogatthefederalVeteranAffairs(VA),theneedfortheStateofTexasandTVCtoadvocateforTexasveteranspersists,andindeedourstatehastakenthelead

TimetoFocusonMentalHealthServiceDelivery,”CharlesC.Engel,M.D.,August7,2013.Onlineat:https://jamanetwork.com/journals/jama/article-abstract/172425463“Themilitary'swaronstigma,”SadieF.Dingfelder,AmericanPsychologicalAssociation,2009.Onlineat:http://www.apa.org/monitor/2009/06/stigma-war.aspx64“MilitaryLookstoRedefinePTSD,withoutStigma,LarryAbramson,NevadaPublicRadio,May14,2012,onlineat:http://www.npr.org/2012/05/14/152680944/military-looks-to-redefine-ptsd-without-stigma65“ReportOntheMentalHealthProgramforVeterans,”TexasDepartmentofHealthandHumanServices,December2017.66Ibid.67Ibid.68 Ibid.

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incombatingthisbacklog.ByJuly2012,thebacklogofVAclaimsinTexashadgrowntoover68,000.69Thatmonth,TexasleadersdirectedTVCtoestablishaStrikeForceandfullydevelopedclaimsteamaimedateliminatingtheVAclaimsbackloginTexas.TVCwasappropriatedaninitial$1.5millionandoperatedthisprogramoutoftheHoustonandWacoregionalofficesanddeployedstafftounderservedareas.70Bythe2018-19biennium,thisappropriationhadincreasedtoover$13.5million.

Inthefirsteighteenmonthsofoperation,theStateStrikeForceTeams,comprisedofexpertVAclaimscounselors,reviewedover35,000cases,andtheclaimsteamsubmittedmorethan15,700newclaims,whichtheVApledgedtocompletewithin90days.71TheseeffortsreducedthebacklogoffederalveteransdisabilityclaimsinTexasbyabout50%,withapproximately$78millioninretroactivepaymentsand$27millioninnewmonthlyawards.72FundsshouldthereforecontinuetobeappropriatedtoTVCtocombatthebacklogandensureTexasveteransreceivebenefitstheyareowed.

TheclaimsbacklogforTexaswasdownto32,732casesbythefourthquarterof2017–whichislessthan50%ofthebacklogin2012,whentheTVCbeganitscurrentefforts.73However,a2017studyfromthefederalGovernmentAccountabilityOfficefoundthatthedisabilityappealsbacklogislikelytoworsenincomingyearswithoutaninfluxofnewstaff,indicatingthatcontinuingattentionfromtheStateofTexasisneededtoprotectourveterans.74TheTVC’seffortshouldbefurtherassistedbybringingthetotalappropriationto$20millionforthe2020-21biennium,anincreaseofapproximately$6.5million,oralittlelessthanonehalfofthecurrentfundinglevels.75

69“TheTexasLegislatureLeadstheWay:EmpoweringAgencyResponse-BeatingBacklogsandHelpingHealthcare,”NationalConferenceofStateLegislatures.Onlineat:http://www.ncsl.org/documents/summit/summit2014/onlineresources/KyleMitchellSlides.pdf70“AwardsRecognizeExcellenceinStateVeteransAffairsPrograms,”JasonCain,VantagePoint,February21,2014.Onlineat:http://www.blogs.va.gov/VAntage/12712/awards-recognize-excellence-in-state-veterans-affairs-programs/71“TexasVeteransHealthCareStrikeForceTeam,”TexVet,October10,2014.Onlineat:https://www.texvet.org/events/texas-veterans-health-care-strike-force-team72“TheTexasLegislatureLeadstheWay:EmpoweringAgencyResponse-BeatingBacklogsandHelpingHealthcare,”KyleMitchell,TexasVeteransCommission,2014.PostedbytheNationalConferenceofStateLegislaturesonlineat:http://www.ncsl.org/documents/summit/summit2014/onlineresources/KyleMitchellSlides.pdf73“VeteransBenefitsAdministrationReports:ClaimsBacklog,”U.S.DepartmentofVeteransAffairs.Onlineat:https://www.benefits.va.gov/reports/mmwr_va_claims_backlog.asp74“Onceafixedissue,theVAdisabilityclaimsbacklogisontheriseagain,”LeoShaneIII,MilitaryTimes,March24,2017.Onlineat:https://www.militarytimes.com/news/pentagon-congress/2017/03/24/once-a-fixed-issue-the-va-disability-claims-backlog-is-on-the-rise-again/75TheTexasVeteransCommission’smostrecentLARindicatesthatthereare157.5FTEsforstrategyA.1.1.,whichisdedicatedtoveteranclaims.However,thisdoesnotnecessarilymeanthataproportionateincreaseinstaff,ratherthanotherpossibleusesoffunding,iswhat’scalledfor.

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Recommendation:BecauseTexasisanationalleaderinservingourveterans,supportandcultivateaTexasmodelforcaringforveteransthatallowsveteranstousefederalVAbenefitstovisitaprivatehealthprovider.

Tofillinthegaps,TexasveteransshouldbegiventheabilitytotakethemoneyallocatedtothemfortheirhealthcarewithintheVASystemanduseittobuyhigh-quality,privateinsurance,andtoaccesscarefromprivatehealthcareproviders.A2014pollbyConcernedVeteransforAmericaofmorethan1,000veteransfoundthat88percentagreedthateligibleveteransshouldbegiventhechoicetoreceivemedicalcarefromanysourcethattheythemselveschoose.76And95percentagreedthatitwas“extremely”or“veryimportant”tohavetheoptiontoseekthebestpossiblecare,evenifthatcarewasprovidedbyanon-V.A.facility.77

UndercurrentSecretaryDavidShulkin,theVAhasinitiatedplanstorevampthecurrentVeteransChoiceProgram(VCP)-whichcurrentlyauthorizesveteranstovisitacommunityprovideriftheylivemorethan40milesawayfromaVAmedicalfacilityorifthewaittimeforcareis30daysorlonger.78Texasshouldsupportremovingtheserestrictionsandexpandingaccesstoprivatecare.TheVA’sredesignedprogram,whichwillbecalledtheVeterans’CoordinatedAccessRewardingExperience(CARE)Program,willallowforaveterantovisitaprivateproviderifrecommendedbyaVAclinicianataninitialappointment.79Expandedchoiceprogramsdomorethanallowaveterantoseethedoctorofhisorherchoice-theyrelieveastrainedpublicsystem.AccordingtoShulkin’slatest“StateoftheVA”,veteransstillhavetowaitover60daysfornewappointmentsatabout30VAfacilitiesnationwideas1in6primarycareclinicsisovercapacity–meaningthatmanyveteransarestillsimplynotbeinghelpedquicklyenough.80

InAugust2017,thePresidentsignedtheVAChoiceandQualityEmploymentActof201781whichauthorized$2.1billioninadditionalfundsfortheVCP.TheVAexplainsthattheseadditionalfunds“represent[s]ashort-term,temporaryfundingsolutionforVCPthatwillenableVAtoincreasethenumberofappointmentsscheduledandensurepaymentsaremadetocommunityproviders.”82Thelegislationallowsmedicalfacilitiestousethe“ChoiceFirst”businessprocesstoreferVeteransto

76“ShouldtheVeteransHealthCareSystembePrivatized?,”PhillipLongmanandAvikRoy,NewYorkTimes,June28,2016.Onlineat:https://www.nytimes.com/roomfordebate/2016/06/28/should-the-veterans-health-care-system-be-privatized?mcubz=077Ibid.78“ShulkinoffersfirstglimpseatnewVAChoiceplan,”NicoleOgrysko,FederalNewsRadio,June8,2017.79Ibid.80‘Fact-checkingTrump'sclaimsaboutanimprovedDepartmentofVeteransAffairs,”CBSNews,July28,2017.Onlineat:https://www.cbsnews.com/news/fact-checking-trumps-claims-about-an-improved-department-of-veterans-affairs/81S.544-AbilltoamendtheVeteransAccess,Choice,andAccountabilityActof2014tomodifytheterminationdatefortheVeteransChoiceProgram,andforotherpurposes.Onlineat:https://www.congress.gov/bill/115th-congress/senate-bill/54482“ExtensionofVeteransChoiceProgramFunding,”U.S.DepartmentofVeteransAffairs,August2017.Onlineat:https://www.va.gov/opa/choiceact/documents/Fact_Sheet_Extension_VCP_Funds.pdf

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communityproviderswhenservicesareunavailable,effectivelyallowingadditionalveteranstousetheprivatecareoptionsoftheirchoice.83

Indeed,manyproposalshavegoneevenfurtherinsuggestingthattheVAsystemshouldberestructuredtomorerobustlyallowforveteranstoaccesstheprivatehealthcaremarket.Forexample,inFebruaryof2015,abipartisanpolicytaskforcecalled“FixingVeteransHealthCare”,,ledbyformersenatorDr.BillFrist,CongressmanJimMarshall,formerVAUnderSecretaryforHealthDr.MichaelKussman,andCo-FounderoftheFoundationforResearchonEqualOpportunityAvikRoy,agreedasaprincipleofVAreformthat:

Veteransshouldbeabletochoosewheretogettheirhealthcare.Basedoneligibility,veteransshouldhavetheoptiontotaketheirearnedhealthcare fundsandusethemtoaccesscareattheVAorinthevoluntary(civilian)healthcaresystem.BecauseprivatehealthcareissomewhatcostlierthanVHA-basedcare,mostveteranswhochoosethisoptionwillbeexpectedtoshareinsomeofthecostsofsuchcare,throughco-paysanddeductibles.84Thismodelofreformwouldgiveveteranstheoptiontoseekprivatehealthcoveragewiththeir

VAfunds.JustastheGIBillallowsservicemembersandeligibleveteranstousetaxpayerdollarstopursueaneducationattheaccreditedacademicinstitutionoftheirchoice,thisproposalwouldallowaveteran’shealthcaredollarstobeusedataprivatecaregiveroftheveteran’schoice.85 AnothercomprehensivereformproposalwasofferedbyaVA-sponsored2015researchreportbytheRANDCorporationcalled“ResourcesandCapabilitiesoftheDepartmentofVeteransAffairstoProvideTimelyandAccessibleCaretoVeterans.”86RANDsuggestedanumberofpolicyimprovementsthatcouldleadtomoretimelyandaccessiblecare.Amongmanyotherproposals,RANDsuggestedconsideringincreasingaccesstovirtualcare,formalizingfullnursingpracticeauthoritythroughouttheVA,andintegratingVAcarewiththeDepartmentofDefenseMilitaryHealthSystemutilizedbyactivepersonnel.

Currentlawgenerallyauthorizesveteranstovisitacommunityprovideriftheylivemorethan40milesawayfromaVAmedicalfacility,orifthewaittimeforcareis30daysorlonger.87TexasshouldworkwithCongresstoshowthenationhowtheVAcouldbereformedtomaximalimpactforveteransandcaregiversbyallowingallTexasveteranstovisittheprovideroftheirchoice.Texasisastrongcandidatetoexploresuchamodel.Thestateishomeofthenation’ssecondlargestveteranpopulation88andalthoughavastinfrastructureofVAfacilitiesstretchesacrossthelengthandbreadthof

83Ibid.84“FixingVeteransHealthCare:ABipartisanPolicyTaskForce,”ConcernedVeteransofAmerica,February2015.Onlineat:http://fixing-veterans-health-care.legacy.cloud-pages.com/accounts/fixing-veterans-health-care/original.pdf85Ibid.86“ResourcesandCapabilitiesoftheDepartmentofVeteransAffairstoProvideTimelyandAccessibleCaretoVeterans,”RANDCorporation,2015.Onlineat:https://www.rand.org/content/dam/rand/pubs/research_reports/RR1100/RR1165z2/RAND_RR1165z2.pdf87“ShulkinoffersfirstglimpseatnewVAChoiceplan,”NicoleOgrysko,FederalNewsRadio,June8,2017.88“NationalCenterforVeteransAnalysisandStatistics,”U.S.DepartmentofVeteransAffairs.Onlineat:https://www.va.gov/vetdata/veteran_population.asp

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thestate,veteransinsomepartsofTexasstillhavetotravelhundredsofmilestoreachtheclosestVAfacility,ascaneasilybeseeninthemapbelow:

MapofVAFacilitiesinTexasbasedonVADirectory89

TheRioGrandeValley,withitsinsufficienttraditionalVAmedicalinfrastructure,willparticularlybenefitandcouldnowleadthenationifCongressauthorizesmorefundingforincreaseduseofprivatecare:amodelthatcouldlaterbeexpandedthroughoutthestateand,ultimately,thenation.AkeypartnerinthiseffortwouldbethenewmedicalschoolattheUniversityofTexasRioGrandeValley,withwhichtheVAalreadyhasalocalpartnership.90TheVAalsopartnerswithValleyBaptistMedicalCenterandDoctorsHospitalatRenaissanceinEdinburg.91

Asanationalleaderinservingourveterans,thisstatestandspoisedtocreateandsupportanewTexas-specificmodelforensuringourveteransreceivethequalityhealthcaretowhichtheyareentitled.VAbenefitsshouldbeallocatedforveteranstopurchaseinsuranceorutilizetheprivateprovideroftheirchoicewiththesebenefits.Inadditiontoincreasingaccesstohealthcareservices,allowingthisflexibilitycouldalsohelpaddresstheaforementionedissueofthesometimesperceived 89U.S.DepartmentofVeteransAffairsDirectory,FacilitiesinTexas.Onlineat:https://www.va.gov/directory/Guide/fac_list_by_state.cfm?State=TX&dnum=All90“TopVAofficialwelcomescollaborationwithUTRGVtoserveValleyveterans,”GailFagan,theUniversityofTexasRioGrandeValley,September1,2015.Onlineat:http://www.utrgv.edu/en-us/about-utrgv/news/press-releases/2015/september-15-top-va-official-welcomes-collaboration-with-utrgv/index.htm91Ibid.

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stigmaofseekingmentalhealthassistancewithinthemilitary.Theabilitytopursuebehavioralhealthservicesoutsideofthemilitaryandveterans’healthsystemcouldencourageveteranswhowouldnototherwiseseeksuchcaretodoso.Afederal-statepartnershipbetweentheVAandTexastooverseethismodelcouldcreatebetterhealthoutcomesforTexasveterans.

Texasshouldencouragethefederalgovernment,tothemaximumextentpossible,toremovebarriersrequiringveteranstousetheirbenefitsatVAfacilities.Forinstance,underthecurrentVCP,whenaveteranaccessescarefromanon-VA“community”provider,anyprescriptionwrittenasaresultofthatvisitmayonlybefora14-daysupplyofthemedication,andmaybefilledatanon-VApharmacy.92Forveteransbattlingchronicphysicalillnessesorongoingbehavioralormentalhealthissues,adherencetomedicationtherapyiscrucial.Forcingtheseveteranstoobtainanewprescriptionorrefilleverytwoweeksplacesanundueburdenonindividualsalreadydealingwithextenuatingcircumstancesandveryprobablyincreasesthelikelihoodoflapsesincriticalmedicationtherapy.Thisisaprimeexampleofabarrierthatshouldberemovedtoallowaveterantotreatavisitwitha“communityprovider”likeaVAappointmentandreceivearegular30,60,or90-supplyofamedication,astheproviderdeemsappropriate,tobefilledatthepharmacyoftheveteran’schoice.

Healthcareisaverypersonalissue,andoneinwhichtheroleofgovernmentshouldbeminimized.VeteransshouldbeallowedtoutilizetheirVAbenefitstopurchaseprivatesectorhealthinsuranceand/orselecttheprovidersoftheirchoiceinwhichtoestablishamedicalhomeandreceiveongoingcare.Theveteranshouldbeempoweredtomakethesechoices.

Recommendation:Eliminatebarrierstotelehealthcaregivingacrossstatelinesformentalandbehavioralhealthpurposes.

Onemajorfocusofanyreformtoveteranshealthcareshouldbeincreaseduseoftelehealthandremoteaccesstomentalandbehavioralhealthprofessionals.TheVAalreadytookamajorstepinthisdirectioninSeptemberof2017byissuingaproposedruletoallowVAproviderstotreatpatientsinanystateremotelyviatechnology,aprocessknownas“telehealth”or“telemedicine,”regardlessofwheretheyarelicensedtopractice.93Currently,VAproviderscanwaivestatelicensingrequirementsifboththephysicianandthepatientareinafederallyownedfacility.Withthedevelopmentofanewmobileapp,theVAwantstoreachveteransintheirhomestoexpandaccesstomentalhealthservicesandmakeiteasierforthosewithlimitedmobilitytogetnecessarymedicalcare.94

TheU.S.HouserecentlypassedtheVeteranE-HealthandTelemedicineSupport(VETS)Actof2017,whichwouldcodifytheproposedVArulesandpermitVAphysicianstopracticetelemedicine 92U.S.DepartmentofVeteransAffairs,VeteransHealthAdministration,“10ThingsAboutTheVeteransChoiceProgram.”Onlineat:https://www.va.gov/health/NewsFeatures/2017/July/Things-to-Know-About-the-Veteran-Choice-Program.asp93“VAproposedrulewouldoverridestatelicensingrestrictionstoexpandaccesstotelehealth,”EvanSweeney,FierceHealthcare,September29,2017.Onlineat:http://www.fiercehealthcare.com/regulatory/va-telehealth-practice-restrictions-state-law-proposed-rule94Ibid.

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acrossstatelines.95Texashasalsotakenrecentstepstoexpandtheuseoftelehealth.Inthe85thSession,theGovernorsignedSenateBill1107(Schwertner,sp:Price),whichovercomesanumberofregulatorybarrierstotheuseofthetelehealthandtelemedicineinTexas,andestablishesaplatformfromwhichallTexans,includingveterans,canmakegreateruseoftechnologytoaccesshealthcareproviders.

Thebenefitsoftelehealthhavebeenproveninmanyotherareas.Forexample,theTexasTechUniversityHealthSciencesCenter,whichhasprovidedtelehealthservicestoinmatesintheTexasDepartmentofCriminalJusticesince1994,conductsover4,500prisontelemedicineconsultationsayearforthe23prisonunitsforwhichTTUHSCiscontractedtoprovidemedicalcare.96TheU.S.militaryalsoconsiderstelehealthtobea“strategicenablerthathelpstheMilitaryHealthSystemonitsmissionofglobalhealthengagement.”97Justrecently,theimmediatevalueofSB1107andtelehealthwasrecognizedintheaftermathofHurricaneHarvey,whichravagedSoutheastTexasandleftthousandsofTexanswithoutaccesstomedicalcareorneededmedications.Multipletelehealthcompaniessteppedintoprovidefreecarethatwouldnothavebeenotherwiseavailabletothoseaffectedbythestorm,notingthat,withoutthepriorpassageofSB1107,theywouldnothavehadtheinfrastructureinplacetostandupimmediateoperations.98

Similarly,theTMD,whichincludestheArmyandAirNationalGuardsandtheTexasStateGuard,hasidentifiedaneedtoincreasetheavailabilityofmentalhealthcounselingservicesacrossstatelines.99InitsSeptember2017SunsetSelf-EvaluationReport,theTMDreportsthatTraditionalServiceMemberslivinginneighboringstatesdonothaveaccesstomentalhealthcounselingwhenathome.ThismainlyaffectsEastandWestTexasServiceMemberswholiveinLouisianaorNewMexico,butbelongtoTexasunits.100Tohelpaddressthisissue,TMDrecommendsamendingthestate’sbehavioralhealthlicensinglawtoallowitsservicememberstoreceivetele-mentalhealthcounselingservicesacrossstatelines.101

Texasshouldworktoremovebarriersthatpreventveteransfromreceivingnecessarymentalandbehavioralhealthservices.ThisbeginswithsupportingandhelpingexpeditefinaladoptionoftheproposedVAruleandworkingwithCongressionalleaderstoencouragepassageoftheVETSAct,allowingveteranstoaccesstelehealthcareacrossstatelinesviatheVA’snew“AnywheretoAnywhere”

95SeeH.R.2123,115thCongress.Onlineat:https://www.congress.gov/bill/115th-congress/house-bill/212396CorrectionalTelemedicine,TexasTechUniversityHealthSciencesCenter.Onlineat:https://www.ttuhsc.edu/telemedicine/tdcj.aspx97“DOD'sJonathanWoodson:Telehealthastrategicgoalforthemilitary,”DanBowman,FierceHealthcare,March20,2014.Onlineat:http://www.fiercehealthcare.com/it/dod-s-jonathan-woodson-telehealth-a-strategic-goal-for-military98“InTexas,HurricaneHarveyresponseeffortsprovidea‘definingmoment’fortelehealth,”EvanSweeney,FierceHealthcare,September5,2017.Onlineat:https://www.fiercehealthcare.com/mobile/harvey-s-response-efforts-provide-a-defining-moment-for-telehealth 99 TexasMilitaryDepartmentSelf-EvaluationReportfortheSunsetCommission,onlineat:https://www.sunset.texas.gov/public/uploads/files/reports/Texas%20Military%20Department%20Self-Evaluation%20Report.pdf 100 Ibid. 101 Ibid.

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initiative.102WhiletheCaliforniaMedicalBoardhasvoiceddissentfortheruleonthegroundsthatitwouldsupersedestatelicensurelaws,ithasotherwiseenjoyedbroadsupport,includingfromtheAmericanAcademyofFamilyPhysicianswhich,inthepast,hasopposedsimilarmeasures.103Thisisacommonsensereformthatshouldbeembracedbybothfederalandstateleaders.

Thenextstepshouldbetoeasetheprocessforveteranstoaccessmentalorbehavioraltelehealthservicesiftheywishtousetheirbenefitswithnon-VAproviders.

WhileSB1107definestelemedicineandtelehealthasservicesprovidedbymedicalprofessionalslicensedbythisstate,therearechangestostatelawthatcouldsimplifyandexpeditetheprocessbywhichalicensedbehavioralhealthprovideringoodstandinginanotherstatecanreceiveTexaslicensureorcertification.ThePsychologyInterjurisdictionalCompact(PSYPACT)wasdevelopedtohelpfacilitatethepracticeoftelehealthservicesbyallowingqualifiedpsychologiststobecomecertifiedtopracticetelepsychologyinparticipatingstates.104Stillarelativelynewconcept,thePSYPACThasbeenadoptedbythreestates(Arizona,Nevada,andUtah),iscurrentlypendingimplementationinIllinois,andhasbeenintroduced,andendorsedbylicensingauthorities,inseveralotherstates.105Thecompactbecomeseffectiveoncesevenstateshaveadoptedthelanguage.106Thecompactlanguagewaspartofalargerbehavioralhealthsunsetbillduringthe85thsessionthatdidnotultimatelypass(HB2898-Gonzales),butthisissueshouldberevisitedbythe86thLegislaturewhentheTexasStateBoardofExaminersofPsychologistsisupforSunset.Texasalreadyparticipatesinothersimilarinterstatehealthprofessionallicensurecompacts,bothfornurses107andforemergencymedicalservicesproviders.108EnteringintothePSYPACTwillimpactonlytelepsychologyservicesandhasthepotentialtopavethewayforadditionalproviderstoserveourveteransandopenupadditionalentrypointsforvitalmentalhealthservices.

102“Amidbroadsupport,theMedicalBoardofCaliforniapushesbackonVA’stelehealthrule,”byEvanSweeney,November2,2017.Onlineat:https://www.fiercehealthcare.com/regulatory/health-it-now-chime-va-david-shulkin-telemedicine-physician-licensing103Ibid.104SeeAssociationofStateandProvincialPsychologyBoards,PsychologyInterjurisdictionalCompact(PSYPACT).Onlineat:http://www.asppb.net/page/PSYPACT105SeeAssociationofStateandProvincialPsychologyBoards,PSYPACTLegislativeUpdate.Onlineat:https://asppb.site-ym.com/mpage/legislative106SeeSection2.046ofHB2898(85R),HouseCommitteeReport.Onlineat:http://www.capitol.state.tx.us/tlodocs/85R/billtext/pdf/HB02898H.pdf#navpanes=0107SeeTexasBoardofNursing.Onlineat:http://www.bon.state.tx.us/licensure_nurse_licensure_compact.asp108SeeNationalRegistryofEmergencyMedicalTechnicians.Onlineat:https://www.nremt.org/rwd/public/document/replica

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4.LegalServicesforVeterans In2015,legalserviceprovidershelped8,000veteranswiththeircivillegalneeds;andonVeteransDayin2016,70legalaidclinics,communityworkshops,andcontinuinglegaleducationseminarswerehostedaroundthestate.109Toplegalproblemslistedfacingveteransincludeproblemsaccessingmilitarybenefits;jobproblems,includinghiringandpayment;debtcollection,includingphoneharassment;childvisitation,custody,orsupport;andgettingorkeepingSocialSecuritybenefits.110Legalaid–professionalassistancefromlawyersthatisfreeorreducedincost-isanessentialelementofaddressingthoseissues.

AwidevarietyofpublicandprivateentitiesoffersomeformoffreelegalservicesforTexasveterans.111TheStateBar’sLawyersforTexasVeteransprogram(TLTV)consistsofahotlinethatreferslow-incomeveteranstolegalaidorganizationsthroughouttheStatethatprovidefreelawyerstoveteransincasesconcerningdisabilities,familylaw,anddenialofbenefits.112TheTexasVeteransLegalAssistanceProject(TVLP)attheTexasVeteransCommissionprovidestelephonecounselingtoallTexasveteranswhoqualify.113Stronglocalprogramexistaswell;forexample,theVeteransLegalInitiative,establishedin2008bytheHoustonBarAssociation,HoustonBarFoundationandHoustonVolunteerLawyers,providesfreelegaladviceandlegalrepresentationtoU.S.veterans.114

Recommendation:Enhancestategrantstoorganizationsprovidinglegalservicestoveteransfrom$1.5millionperyearinthe2018-19bienniumto$3millionperyearinthe2020-21biennium. TheSupremeCourtofTexasmakesgrantstononprofitorganizationsthatofferfreecivillegalservicestolow-incomeTexansthroughtheBasicCivilLegalServices(BCLS)program.Toqualifyforaid,anindividualcannothaveanannualincomeofmorethan125percentofthefederalpovertylevel,or$14,850.115Aslightlyhigherthresholdissufficientforcertainvictimsofcrimeseekingcivillegalservicesinrelationtoaspecificinjury,whomayhaveanannualincomeofupto187.5percentofthefederalpovertylevel,or$22,275.116Since1984,theSupremeCourthasdesignatedtheTexasAccesstoJusticeFoundation(TAJF)toadministertheBCLSprogram. 109“AccesstoJusticeUpdate:What’sthatSound?,”TexasYoungLawyersAssociation,onlineat:http://www.tyla.org/tyla/index.cfm/news1/enews-archive/2016-enews-archive/november-2016/atj-update/110“ServingthoseWhoServed,”RobertLiscordandCatherineElliott,PineTreeLegalAssistance,Inc.,June2013.Onlineat:https://statesidelegal.org/sites/default/files/Veteran%20Legal%20Needs%20Study.pdf111“SearchForLegalResourcesNearYou,”TexVet,onlineat:https://www.texvet.org/legal-search112“TexasLawyersforTexasVeterans,”StateBarofTexas,onlineat:https://www.texasbar.com/Content/NavigationMenu/AboutUs/StateBarPresident/TexasLawyersforTexasVeterans/default.htm113TexasVeteransLegalAssistanceProject,TexasLegalServicesCenter.Onlineat:http://www.tlsc.org/veterans.html114HoustonBarAssociationVeteransLegalInitiative,onlineat:https://www.hba.org/veterans-legal-initiative/115“BasicCivilLegalServices,”LegislativeBudgetBoard,July2016.Onlineat:http://www.lbb.state.tx.us/Documents/Publications/Issue_Briefs/3114_Basic_Civil_Legal_Services.pdf116Ibid.

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Inthe2018-19statebudgetadoptedbythe85thLegislature,$79,567,708wasappropriatedforBCLSgrants.Ofthatsum,SupremeCourtRider10designates$1.5millionperyear-$3millionoverthecourseofthebiennium–“forthepurposeofprovidingbasiccivillegalservicestoveteransandtheirfamilies.”Inordertobettermeettheneedsofveteransinpoverty,theamountofBCLSfundingdedicatedtoveteransshouldbedoubledinthe2020-21budgetto$3millionperyear,or$6millionperbiennium.117

Recommendation:Encouragestate-employedattorneystoofferprobonoservicestoveteransbystateagencypolicymakingandbycoordinationwiththeTexasVeteransCommission.Recognizingattorneyswhoassistveteransinneedwithprobonolegalservices,thestateshouldrewardthemwithContinuingLegalEducation(CLE)creditandbarfeewaivers. AccordingtotheAmericanBarAssociation’sModelRulesofProfessionalConduct,Rule6.1:“Everylawyerhasaprofessionalresponsibilitytoprovidelegalservicestothoseunabletopay.Alawyershouldaspiretorenderatleast(50)hoursofprobonopubliclegalservicesperyear…”118AttorneysworkingfortheStateofTexasshouldbeencouragedtospendsomeoftheseservices-renderedcharitablyontheattorney’sowntimeandnotinthecourseoftheirstateemployment–tosupportveteransinneed. TheVeteransCommissionshouldbedirectedtoexpandtheexistingTexasVeteransLegalAssistanceProjecttoincludereferralstostate-agency-employedattorneyswillingtoprovideprobonoservices.TheselawyerscouldregisterwiththeVeteransCommissionaspro-bonovolunteersandwouldreceivereferralsfromthehotlineasneedsarise.Veteranswithproblemsspecifictothesubject-matterofaparticularstateagencycouldbespecificallydirectedtolawyersatthatagencywhocanprovideguidanceondealingwiththeiragency. Additionally,stateagenciesshouldbedirectedtocreateinternalpoliciesthatencouragestateagencylawyerstoprovideprobonoservicestoveterans.Recognitionshouldbegrantedtotheindividualstateemployeeswhoreportthemosttimespentprovidingprobonoservicestoveterans.Bymobilizingstateattorneysinthismanner,highlycompetentandspecializedattorneyscanbemadeavailabletosupportveteransseekingtonavigatethejusticesystem. Realbenefitsshouldalsobeofferedforattorneyswhoofferprobonolegalassistancetoveteransinneed.SuchattorneysshouldberewardedwithContinuingLegalEducation(CLE)creditandbarfeewaivers.Thistangiblerewardmayspurattorneystodedicatetheirtimetoveteransinneed,ensuringthattheneedsofourveteranpopulationaremet.Byplacingtherightincentivesinplace,Texascanhelpitsveteransmeetthesecrucialneeds.

117NOTE:Animportantquestionthatneedstobeaddressedinthisdocumentiswhatspecificlegalneedsveteransmightbefacing.Thisinformationshouldbesoughtfromstakeholdersorotherinformedindividuals.118AmericanBarAssociation,ABAModelRule6.1,onlineat:https://www.americanbar.org/groups/probono_public_service/policy/aba_model_rule_6_1.html

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5.BaseRealignmentandClosure

SincethefinalyearsoftheColdWar,theU.S.governmenthasdownsizedthenumberofmilitary

basesworldwideinaseriesoffiveBaseRealignmentandClosure(BRAC)rounds.EveryoneoftheseroundshasledtotheclosureorrealignmentofbasesinTexas.Inmostrecent(2005)BRACround,sixofthefifteenbasesstillexistinginTexasreceivedbelowservice-averagemilitaryvaluescores.FederalbudgetcutsmakeanotherBRACroundlikelyinthenextfewyears.ItisimportantthatTexasdoesnotwaitforaBRACroundtoaddressproblemsthatexistwithinstallationsbutinsteadshouldaddressshortcomingsastheyappear.

ThetopmembersoftheSenateArmedServicesCommittee,CommitteeChairmanJohnMcCain(R-Ariz.)andrankingmemberJackReed(D-R.I.),inSeptemberof2017suggestedanewBRACroundin2019.119Inpushingfortheclosureorrealignmentofunneededmilitarybases,theTrumpAdministrationhasnotedthatby2019,theDepartmentofDefensewillhavemorethan20%excesscapacity.

Inconsideringbasesforclosureorrealignmentinthe2005BRACprocess,themostrecent,theDepartmentofDefenseconsideredthefollowingcriteria:120

1. Thecurrentandfuturemissioncapabilitiesandoperationalreadinessofthemilitary;2. Theavailabilityofland,sea,andairresourcesinbothcurrentandpotentialbasinglocations;3. Theabilitytoaccommodatecontingency,mobilization,surge,andfuturetotalforce

requirements;4. Thecostofoperationsandmanpowerimplications;5. Theextentandtimingofpotentialcostsandsavings;6. Theeconomicimpactonexistingcommunitiesinthevicinitiesofexistingmilitaryinstallations;7. Theabilityofinfrastructuretosupportforces,missions,andpersonnel;and,8. Environmentalimpact.

TheUSDepartmentofDefensemaintainsfifteenmilitarybasesinTexas.121173,118–around13

percentoftotalactivedutyU.S.military–arestationedinTexas;onlyCaliforniahasahighernumber.In2015,theTexasMilitaryPreparednessCommission(TMPC),inpartnershipwiththeTexasComptroller’sOffice,conductedaneconomicanalysisquantifyingthemilitarycontributiontotheTexaseconomyat$136.4billioninoutput,$81.26billioninGDP,and$47.98billionindisposablepersonalincome.122

119“McCain,Reedofferamendmentfornewroundofmilitarybaseclosures,”EllenMitchell,theHill,September11,2017.Onlineat:http://thehill.com/policy/defense/350106-mccain-reed-offer-amendment-for-new-round-of-military-base-closures120“MemorandumforInfrastructureExecutiveCouncilMembers.Subject:2005BaseClosureandRealignmentSelectionCriteria.”MichaelW.Wynne,DepartmentofDefense.Onlineat:http://www.brac.gov/docs/criteria_final_jan4_05.pdf121“ActiveDutyMilitaryInstallations,”OfficeoftheGovernorGregAbbott.Onlineat:https://gov.texas.gov/organization/military/installations122“TMPCOverview,”OfficeoftheGovernorGregAbbott.Onlineat:https://gov.texas.gov/uploads/files/organization/military/Updated_TMPC_Overview.pdf

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Seventy-fivepercentofTexasmilitaryinstallationsarelocatedinruralorlow-populationareasthatareeconomicallydependentonmilitarybases.123

Source:TexasMilitaryPreparednessCommission124

In2015,actingonarecommendationofferedbyGovernorAbbottinhis2015Bicentennial

Blueprint“JobsforVeterans”setofproposals,the84thLegislaturepassedSenateBill1358(Campbell,sp:King,Susan),which"increasedtheindependenceofTMPCbymakingitaseparateentitythatis‘administrativelyattached’totheOfficeoftheGovernor."125TheTexasMilitaryValueTaskForce(TMVTF)oftheTexasMilitaryPreparednessCommission(TMPC)ischargedto:

(1) conferwithdefense communities andmilitary installations located in this state to identifystrategies,policies,plans,projects,andotherwaystoimprovebaserealignmentscores;and(2) advise and make recommendations to the commission and legislature on any strategy,policy,plan,project,oractionthetaskforcebelieveswillstrengthenthedefensecommunitiesandmilitary installations in the state and prevent the closure or significant reduction of theoperationsofthemilitaryinstallations.126

TexasmustexecuteitscomprehensivestrategicplantoproactivelydefendTexas-basedfacilities

inadvanceofthenextBRACround,byenhancinginfrastructureandjobstraining/recruitmentnearbasestomakethemmoreattractiveformaintainingasactivemilitaryfacilities.

123“PlayingDefense:LoomingCutsMayAffectTexasCommunities,”PatrickGraves,OfficeoftheTexasComptrollerofPublicAccounts,June11,2013.Availableonlineat:http://www.window.state.tx.us/comptrol/fnotes/fn13Q2/defense.php124Ibid.125SenateBill1358(84R)BillAnalysisfromtheSenateResearchCenter.126“2015-2016TexasMilitaryPreparednessCommissionBiennialReport,”OfficeoftheGovernorGregAbbott.Onlineat:https://gov.texas.gov/uploads/files/organization/military/Biennial_Report_2015-2016_-_For_Print_-_Updated_2017-02-09.pdf

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Source:TexasMilitaryPreparednessCommission127

TMPCreceived$30millioninthe2016-17bienniumforgrantstofundinfrastructure

improvementsandpotentiallypreventTexasfrombeingnegativelyimpactedintheeventofaBRACround.128In2016-17,awardsweremadetoeightdefensecommunities,inamountsrangingfrom$1.5millionto$5.0million.Recentgrantshaveincluded$5milliontotheAlamoAreaCouncilofGovernmentstoimprovewaterinfrastructure,$1.7milliontotheCityofWichitaFallstoforlandacquisitionanddemolitiontoincreaseperimetersecurity,and$3.4milliontotheCityofKilleentoconstructanArmyRadarApproachControlFacility.TMPCwillneedtoconsidersimilarinfrastructureprojectsthatwouldbestprotectTexas’militaryfootprint.

Nevertheless,itmustbeunderstoodthatTexasisincompetitionwithotherstatesthathavelargemilitarypresences.Forexample,theStateofFloridabudgeted$2millionforFY2016-2017fortheFloridaDefenseSupportTaskForcewiththespecificpurpose“toprotect,preserve,promoteandgrowFloridamilitaryinstallationsandmissions.”129

Recommendation:Toprovideoversightandleadership,createatemporaryGovernor’sCommitteetosupporttheU.S.MilitaryinTexasinpreparingforthepossibleupcomingdecisionsoftheBaseRealignmentAndClosureCommittee

AsuccessfulBRACroundwillbedefinedasoneinwhichbaseclosuresareavoided,andrealignment,whenitoccurs,shouldbenefitthestatebyhavingmissionstransferredfromfederalfacilitiesinotherstatestoTexas-basedfacilities.TMPCshouldcontinuetoreceivearobustappropriationforitsstrategicplanningfunctionandDefenseEconomicAdjustmentAssistanceGrantProgram,aswellascontinuedsupportfortheTexasMilitaryValueRevolvingLoanProgram.Itiscrucial

127Ibid.128“TrusteedProgramsWithintheOfficeoftheGovernor,”LegislativeBudgetBoard,pg.7.Onlineat:http://www.lbb.state.tx.us/Documents/SFC_Summary_Recs/85R/Agency_300.pdf129“2015-2016TexasMilitaryPreparednessCommissionBiennialReport,”OfficeoftheGovernor.Onlineat:https://gov.texas.gov/uploads/files/organization/military/Biennial_Report_2015-2016_-_For_Print_-_Updated_2017-02-09.pdf

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theseprogramsareutilizedtomakeinvestmentstargetedatnotonlyimprovingmilitaryinstallationsbutalsoimprovinginstallationsthatarethemostvulnerableinfutureBRACrounds. TMPCshouldexpandontheworkoftheTexasMilitaryValueTaskForcebycontinuingtoidentifypotentialimprovementsformilitaryinstallationsanddefensecommunitieswithacommitteeofveteranswhoformerlyservedasofficersoneachofthefifteenTexasbases.InordertoprepareforthenextBRACround,atemporarycommittee-theGovernor’sCommitteetoSupporttheU.S.MilitaryinTexas-shouldbeappointedbytheGovernorwiththefollowingcomposition:22Texas-residentveterans,communityleadersandbusinessleaders,includingthreeeachwhoservedforatleastthreemonthsasofficersatFortHood,FortBliss,andJointBaseSanAntonio;andonefromeachoftheotherU.S.militaryinstallationsinTexas.MemberswouldalsoconsultwithagenciessuchastheTexasDepartmentofTransportation,theTexasWaterandDevelopmentBoard,theRailroadCommission,thePublicUtilityCommission,theTexasCommissiononEnvironmentalQuality,andtheGeneralLandOffice.

ItwouldbethedutyoftheGovernor’sCommitteetosuggestchallengestothecontinuedutilityofthefifteenU.S.MilitaryinstallationsinTexas–basedontheeightcriterialaidoutbytheDepartmentofDefenseforthe2005BRACround-andtoofferstrategiestoovercometheseissues.Becausethecommitteewillbecomposedofmemberswhohaveservedateachofthebases,theywillhaveinsideknowledgeofchallengesthatmaynotbeobviousandwillbeinanidealpositiontoofferalternatives.TheCommitteeshouldalsobechargedwithworkingwithaffectedlocalgovernmentsandchambersofcommercetoexplorethesurroundingcivilianinfrastructureandcompetingneedsbetweenprivatedevelopment,therightsofprivatelandowners,andmilitarynecessitiessuchasuncompromisedperimetersecurity.

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6.StateGuard

Recommendation:Toprovidearapidresponsemilitaryforcetodealwiththestate’smanychallenges,includinghurricanes,theGovernor,asCommander-in-Chiefofthestate’smilitaryforces,shouldleadarecruitmentdrivetodoubletheranksoftheTexasStateGuardtoaforceof5,000members.Recentcatastrophes,includingseverefloodingin2017(HurricaneHarvey),2015(MemorialDayFlooding),2008(HurricaneIke),and2001(TropicalStormAllison)illustratethestate’sneedforacohesivestatewideforcethatcanrapidlyrespondandthat–unliketheNationalGuard–cannotbecalledintonationalservice.AmuchlargerStateGuardof5,000memberswouldbeabletobettermeetthestate’shomelandsecurityandemergencymanagementneeds.

TheTexasStateGuardcurrentlyhas2,300members,onetenththesizeofthe23,000servicemembersintheTexasAirandArmyNationalGuardforces(thesenumbersdonotcountcivilianadministrators).130Mostrecently,theStateofTexasinitiallycalledup3,000,131androughly12,000StateandNationalGuardmembers,tohandlethecatastrophicfloodinginSoutheastTexascausedbyHurricaneHarvey.132

ThedistinctionbetweentheNationalandStateGuardsishighlysignificant:whiletheNationalGuardmaybecalledintofederalserviceandcomeundertheaegisoftheDepartmentofDefense,theStateGuardisanexclusivelystateentitythatcanneverbefederalizedundernormalcircumstances.TheLegislatureinitiallycreatedtheStateGuardastheDefenseGuard,aforceofabout23,000servicemembers,in1941whentheNationalGuardwascalledupfortheSecondWorldWar;itwasdisbandedin1947butwaspermanentlyreestablishedin1965.133Suchforcesarenotuniversal:only22statesandPuertoRicohavestate-defenseforcesliketheTexasStateGuardthatcannotbefederalizedanddeployedbeyondstateboundaries.134

MembersoftheStateGuardarerequiredtovolunteeraminimumof200hoursannually.Furthermore,“[a]llofficersandenlistedmembersareresponsibleforpurchasingtheiruniforms,patches,rankinsigniaandaccessories.”135TheTexasStateGuardisnotanarmedforceandgenerallydoesnottrainwithorcarryfirearms.Nordoesithaveanylawenforcementauthority.TheStateGuardalsocannotbedeployedabroad,whichisimportantinanerawherelargeportionsoftheNational 1302018-19GeneralAppropriationsActandLegislativeAppropriationsRequest(LAR)for2018-19fortheTexasMilitaryDepartment.131“MoreTexasGuardsmenDeployasHarveyCausesCatastrophicFlooding,”JimGaramone,U.S.DepartmentofDefense,August27,2017.Onlineat:https://www.defense.gov/News/Article/Article/1291284/more-texas-guardsmen-deploy-as-harvey-causes-catastrophic-flooding/132“TexasGovernorActivatesAllofState’sGuardforHarveyReliefEffort,”TexasGovernor’sOffice,U.S.DepartmentofDefense,August28,2017.Onlineat:https://www.defense.gov/News/Article/Article/1291284/more-texas-guardsmen-deploy-as-harvey-causes-catastrophic-flooding/133“WhattheHeckistheTexasStateGuardAnyway?,”MattLargey,KUT,May1,2015.Onlineat:http://kut.org/post/what-heck-texas-state-guard-anyway134Ibid.135“TexasStateGuardFAQ,”TexasMilitaryDepartment.Onlineat:https://tmd.texas.gov/texas-state-guard-faq

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Guardarefrequentlycalledintofederalserviceanddeployedinforeignwarzones.136The1,241-mile-longTexas-MexicoborderisthesecondlongestborderofanystatewithaforeignnationandisfarmoretraffickedthantheAlaska-Canadaborder;itpresentsspecialchallengesthatthestatemustbeequippedtoface.WhiletheDepartmentofPublicSafetyisbyfarthebestpositionedstateforcetoconfrontthesechallenges,duebothtotheiroperationalcapabilitiesandstatutoryresponsibilities,theTexasMilitaryForceshavebeencalleduponbeforetohelpconfrontthesechallenges.

AsCommander-in-Chiefofthestate’smilitaryforces,theGovernorshouldleadarecruitmentdrivetoexpandtheStateGuardtoamembershipof5,000personnel.Thisshouldalsoinvolveachangetothestatebudget,asTexasMilitaryDepartmentRider1currentlysetsaperformancetargetof2,300StateGuardmembers.Thiswillhelpensurethatthestateisequippedtoprotectandserveitscitizensduringnaturaldisasters,alongtheborder,andwheneverandwherevercircumstancesdemandquickanddecisiveaction.

Importantly,thestrainonthecombinedTexasMilitaryForcesinanyseriousemergencywasmadeclearwhenHurricaneHarveynecessitatedthecall-upofthefullTexasNationalGuard.137SinceOctober2015—andnotincludingHurricaneHarveyresponseefforts—TMDServiceMembershavehelpedevacuateorrescuemorethan1,800Texansfromfloodwatersalone.FromJanuary2003untilMay2016,TMDnotesthat“TMDServiceMembershaveassistedcountlessTexanswhileactivein34tropicalweathermissions,43floodmissions,29aviationfiremissions,26groundwildfiremissions,24winterweathermissions,70civilmissions,and32lawenforcementmissions.”138

AlargerStateGuardforceof5,000memberswouldbetterservethestate’suniqueneeds.Ifandwhencalledtostateactiveduty,activatedpersonnelarepaidatarateof$121.00aday,amealper-diem(whenwarranted)of$36.00perday,andamileagereimbursementtoandfromthedeploymentsite.139ThefiscalcostsofexpandingtheranksoftheStateGuardisnot,therefore,likelytobesignificant.Indeed,anycostswouldonlybeincurredcommensuratewiththeseriousnessofthestormorothereventtowhichtheStateGuardisrequiredtorespond.

136Freedman,infra.137“GovernorAbbottactivatesentireTexasNationalGuardinresponsetoHurricaneHarveydevastation,”ElginCourier,August28,2017.Onlineat:http://www.elgincourier.com/news/article_8d0a8f50-8c09-11e7-bfac-bb442e9fde95.html138TexasMilitaryDepartmentSelf-EvaluationReportfortheSunsetCommission,onlineat:https://www.sunset.texas.gov/public/uploads/files/reports/Texas%20Military%20Department%20Self-Evaluation%20Report.pdf139“TexasStateGuardAirComponent:PayandBenefits,”Onlineat:http://www.txsg.state.tx.us/Data/Sites/1/txsgdocs/brochure/aircc-brochure.pdf