Community Service: A Description of AmeriCorps, Foster Grandparents, and Other Federally Funded Programs

Community Service: A Description of AmeriCorps, Foster Grandparents, and Other Federally Funded Programs

Order Code RL30186
CRS Report for Congress
Received through the CRS Web
Community Service: A Description of
AmeriCorps, Foster Grandparents, and
Other Federally Funded Programs
Updated March 18, 2002
Ann Lordeman
Specialist in Social Legislation
Domestic Social Policy Division
Alice D. Butler
Technical Information Specialist
Domestic Social Policy Division
Congressional Research Service ˜ The Library of Congress

Community Service: A Description of
AmeriCorps, Foster Grandparents, and
Other Federally Funded Programs
Summary
The major federally funded community service and volunteer programs in this
country are authorized under two statutes: the National and Community Service Act
of 1990, as amended (NCSA), and the Domestic Volunteer Service Act of 1973, as
amended (DVSA). In general, the programs authorized by these statutes are
administered by the Corporation for National and Community Service, an independent
federal agency.
NCSA authorizes four programs: AmeriCorps Grants, the National Civilian
Community Corps, Learn and Serve America, and the Points of Light Foundation.
AmeriCorps Grants is the largest of the NCSA programs, funded at $240 million for
FY2002. In addition, NCSA also authorizes the National Service Trust.
DVSA authorizes Volunteers in Service to America (VISTA) and the National
Senior Volunteer Corps. The Corps consists of the Retired and Senior Volunteer
Program (RSVP), the Foster Grandparent Program, and the Senior Companion
Program. The Foster Grandparent Program is the largest of the DVSA programs,
funded at $107 million for FY2002.
While all of these programs encourage community service and volunteer
activities, they vary considerably in terms of their specific program focus, age and
income eligibility requirements, participant benefits, and allocation of funds. For
example, AmeriCorps Grants participants serve the community in general, must be 17
years of age or older, have no income eligibility requirements to meet, and receive
educational awards (from the National Service Trust). AmeriCorps funds are
allocated by formula to state commissions on national and community service, on a
competitive basis to programs first selected by the state commissions, and through
national competition.
In contrast to AmeriCorps, Foster Grandparent Program participants specifically
serve children, must be 60 years of age or older, and must be low income in order to
receive a stipend of $2.65 an hour for an average of 20 hours of service a week.
Funds are awarded to public agencies and private organizations who apply directly to
the Corporation.
Funding for NCSA programs is contained in the Veterans Affairs and Housing
and Urban Development Appropriations Act. For FY2002, $402 million was
appropriated, not including $5 million for the Office of the Inspector General.
Funding for DVSA programs is contained in the Labor, Health and Human Service,
and Education Appropriations Act. For FY2002, $329 million was appropriated.
Authorization of appropriations for the NCSA and DVSA programs expired at
the end of FY1996. Programs authorized under both statutes continue to be funded
through appropriations legislation.

Contents
National and Community Service Act (NCSA) Programs . . . . . . . . . . . . . . . . . . 4
AmeriCorps Grants — Title I-C . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
National Civilian Community Corps (NCCC) — Title I-E . . . . . . . . . . . . . 7
National Service Trust — Title I-D . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
Learn and Serve America — Title I-B . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
School-Based Programs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
Community-Based Programs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
Higher Education Programs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
Points of Light Foundation — Title III . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
Domestic Volunteer Service Act (DVSA) Programs . . . . . . . . . . . . . . . . . . . . 11
Volunteers in Service to America (VISTA) — Title I-A . . . . . . . . . . . . . . 11
Special Volunteer Programs — Title I-C . . . . . . . . . . . . . . . . . . . . . . . . . 12
National Senior Volunteer Corps — Title II . . . . . . . . . . . . . . . . . . . . . . . 12
Retired and Senior Volunteer Program (RSVP) — Title II-A . . . . . . 13
Foster Grandparent Program (FGP) — Title II-B . . . . . . . . . . . . . . . 13
Senior Companion Program (SCP) — Title II-C . . . . . . . . . . . . . . . . 14
Funding Trends . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14
Additional Reading . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18
List of Tables
Table 1. Programs Authorized by NCSA . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Table 2. Programs Authorized by DVSA . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Table 3. Key Features of NCSA and DVSA Programs . . . . . . . . . . . . . . . . . . . 3
Table 4. Corporation for National and Community Service Appropriations,
FY1994-FY2002 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15

Community Service: A Description of
AmeriCorps, Foster Grandparents, and
Other Federally Funded Programs
The major federally funded community service and volunteer programs in the this
country are authorized by the National and Community Service Act of 1990, as
amended (NCSA), and the Domestic Volunteer Service Act of 1973, as amended
(DVSA). Table 1 shows the programs authorized by NCSA. These programs are
all funded under the Veterans Affairs and Housing and Urban Development (VA-
HUD) Appropriations Act.
Table 1. Programs Authorized by NCSA
Title I-B
Learn and Serve America
Title I-C
AmeriCorps Grants
Title I-E
National Civilian Community
Corps
Title III
Points of Light Foundation
Table 2 shows the programs authorized by DVSA. These programs are all
funded under the Labor, Health and Human Services, and Education (L-HHS-ED)
Appropriations Act.
Table 2. Programs Authorized by DVSA
Title I-A
Volunteers in service to America
(VISTA)
Title I-C
Special Volunteer Programs (i.e.,
Homeland Security)
Title II National Senior Volunteer Corps
Title II-A
Retired and Senior Volunteer Program
Title II-B
Foster Grandparent Program
Title II-C
Senior Companion Program
All of the programs shown in Tables 1 and 2, except for the Points of Light
Foundation, are administered by the Corporation for National and Community

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Service.1 The Corporation was created by the National and Community Service Trust
Act of 1993 (P.L. 103-82) under subtitle G of the National and Community Service
Act of 1990. The Corporation was established by combining two independent federal
agencies — the Commission on National and Community Service, which administered
NCSA programs, and ACTION, which administered DVSA programs. The
Corporation, which is also an independent agency, is administered by a chief executive
officer and a bipartisan 15-member board of directors appointed by the President and
confirmed by the Senate.
While all of these programs encourage community service and volunteer
activities, they vary considerably in terms of their specific program focus, age and
income eligibility requirements, participant benefits, and the allocation of funds.
Table 3 on the following page illustrates the variability among the key characteristics
of each of the NCSA and DVSA programs.
The purpose of this report is to provide detailed information on each of the
programs administered by the Corporation. This includes a description of the services
provided, individual eligibility requirements, and the FY2002 funding level. In
addition, Table 4 provides the funding history for NCSA and DVSA programs from
FY1994, the first year of funding for AmeriCorps, through FY2002.
1The Points of Light Foundation is a non-federal independent and autonomous entity that is
not administered by the Corporation although it receives its funding under the Corporation’s
appropriation. A brief description of the Foundation is included in this report.

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Table 3. Key Features of NCSA and DVSA Programs
National Community Service Act Programs
(NCSA)
Domestic Volunteer Service Act Programs (DVSA)
Retired and
National Civilian
Volunteers in
Senior
Foster
Senior
AmeriCorps
Community
Learn and
Service to
Volunteer
Grandparent
Companion
Grants
Corps
Serve America
America
Program
Program
Program
Program focus
Serving the
Serving various
Projects of
Serving poverty
Serving the
Serving children
Serving adults
community
communities in
benefit to both
communities
community
one of five
the community
regions
and students
Amount of
Full time for a
Full time for 10
N/A
Full time for a
Up to 40 hours a
Average of 20
Average of 20
volunteer
term of
months
term of service
week
hours a week
hours a week
service
service
Participant eligibility
Age
17 years or
18 to 24 years
students
18 years or
55 years or
60 years or
60 years or older
older
old
older
older
older
Income
none
none
none
none
none
low income
low income
eligibility
Participant benefits
Living allowance
yes
yes
no
yes
no
no
no
Education
$4,725 for a
$4,725 for a full
none
$4,725 for a full
none
$2.65/hour
$2.65/hour
award/stipend
full time term
time term of
time term of
of service
service
service or a
$1,200 cash
stipend

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National and Community Service Act (NCSA)
Programs
The purposes of the National and Community Service Act of 1990 are to: (1)
meet the unmet human, educational, environment, and public safety needs of the
United States; (2) renew the ethic of civic responsibility and the spirit of community;
(3) expand educational opportunity by rewarding national service participants with an
increased ability to pursue higher education or job training; (4) encourage citizens to
engage in national service; (5) reinvent government to eliminate duplication, support
locally established initiatives, require measurable goals for performance, and offer
flexibility in meeting those goals; (6) expand and strengthen existing service programs
that provide visible benefits to the participants and community; (7) build on the
existing organizational service infrastructure of federal, state, and local programs to
expand service opportunities; and (8) provide tangible benefits to the communities in
which national service is performed.
Major amendments were made to NCSA by the National and Community Service
Trust Act of 1993 (P.L. 103-82). In addition to creating the Corporation to
administer NCSA and DVSA programs, P.L. 103-82 also created a new national
service program referred to as AmeriCorps, a National Service Trust to fund
educational awards to persons participating in AmeriCorps and other select
community service programs, and state commissions on national and community
service to receive Learn and Serve and AmeriCorps funding. Authorization of
appropriations for the NCSA programs (Table 1) expired at the end of FY1996.
These programs continue to be funded, however, through appropriations legislation.
AmeriCorps Grants — Title I-C
The AmeriCorps Grants program, created in 1993, is a network of community
service programs for individuals who are 17 or older.2 AmeriCorps programs must
address educational, public safety, human, or environmental needs through services
that provide a direct benefit to the community. Since FY1997, the Corporation has
established a priority for services to children and youth within each of these four
areas. For FY2002, $240.5 million was appropriated.
Funds are allocated as follows:
State formula programs. One-third of funds appropriated are allocated to
states according to a population-based formula. Fifty percent of this funding must be
used in high need areas. In general, each state has a commission on national service,
whose participants are appointed by the Governor,3 that selects the community service
2This program is also called “AmeriCorps*State and National Direct” by the Corporation, and
is titled National Service Trust Programs in statute.
3Only North Dakota and South Dakota do not have commissions. Programs can apply for
grants directly to the Corporation for National and Community Service in states that elect not
to establish commissions.

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programs to receive funding, disseminates information about service opportunities,
and helps recruit participants. In FY2001, 387 programs were funded.4
Set-asides. One percent of funds appropriated is set aside for Indian Tribes
and 1% is set aside for U.S. Territories.
State competitive programs. At least one-third of the funds appropriated are
distributed to programs that are first selected by the state commissions and then
submitted to the Corporation for competitive consideration. In FY2001, 295
programs were funded.5
National direct. According to the authorizing legislation, any funds not
allocated by one of the three methods discussed above are to be awarded to federal
agencies and other applicants directly by the Corporation. Since FY1996, however,
the appropriations bills have prohibited funding to federal agencies.6 Since FY1997,
the appropriations bills have “capped” the amount that can be allocated for national
grants.7 Eligible applicants for national grants include national nonprofit
organizations, Indian Tribes, public or private nonprofit organizations including labor
organizations, subdivisions of state and institutions of higher education. Eligible
applicants that propose programs operating in more than one state are encouraged to
apply for the national grants. In FY2001, 41 programs received awards.8
In program year 2000-2001, 32,819 individuals participated in the AmeriCorps
Grants program.9 Fifty-three percent were enrolled in full-time terms of service and
43% were enrolled in part-time terms of service.10 Based on a random sample of
4Corporation for National Service. FY2003 Budget Estimate and Performance Plan,
Activities Authorized by the National and Community Service Act, February 2002. p. 27.
(Hereafter cited as CNS, FY2003 Budget Estimate NCSA).
5Ibid., p.27.
6Grants for national service initiatives were received, for example, by the Departments of
Agriculture and Interior for the Youth Conservation Corps (YCC); Defense/Navy for the
Seaborne Conservation Corps; Health and Human Services for the Model Health Service
Corps; and Veterans Affairs for the Collaboration for Homeless Veterans.
7For FY1997 through FY2000, this cap was $40 million; for FY2001 it was $45 million; and
for FY2002 it is $47 million.
8CNS, FY2003 Budget Estimate NCSA, p.27.
9According to the Corporation, these data are taken from the National Service Trust data base,
as of January 16, 2002. Because AmeriCorps grants programs funded in a particular fiscal
year have significantly different starting and ending points, it is impossible to precisely specify
the starting and ending points of a particular program year. Generally speaking, most
programs operating in program year 2000-2001 started between August and November 2000
and ended approximately 12 months later. Some programs have different starting and ending
dates, and others take place over 2 years. This information was provided by the Corporation
for National and Community Service on January 24, 2002.
10Correspondence from the Corporation on January 25, 2002. The terms of service for 4%
of participants for program year 2000-2001 are unknown.

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participants for the most recent year data are available (program year 1998-1999),11
approximately 49% were white, 27% were African-American, 16% were Hispanic,
4% were Asian/Pacific Islanders, and 4% were American Indian. Of participants
serving as of December, 2001, 75% were under the age of 30, 17% were between 30
and 45 years of age, and 8% were older than 45 years of age.12
In general, programs receiving AmeriCorps funding must provide full-time
participants with a living allowance of at least $9,600, and no more than twice that
amount.13 The Corporation provides a maximum of 85% of the minimum living
allowance (i.e., $8,160) and the programs pay a minimum of 15% (i.e., $1,440) from
non-federal funds. If needed, participants receive health coverage and child care
assistance. Corporation funds may be used to pay up to 85% of health care costs and
100% of child care costs. The Corporation also pays 67% of other program costs
(e.g., operating and administrative costs). For FY2002, a state commission applying
for an AmeriCorps grant must ensure that the average cost per full time equivalent
participant be not more than $12,400 in Corporation funds, exclusive of the education
award, child care costs or any commission administrative costs.14
Within the AmeriCorps Grants program, there is a separate Education Awards
Program, also referred to as education only awards, in which sponsoring
organizations cover all costs, e.g. participant subsidies, except for the education
awards (discussed in the section on the National Service Trust), and $400 per full time
equivalent participant for operating costs, which are provided by the Corporation.15
The Corporation encourages, but does not require, sponsoring organizations to
provide a living allowance to participants. In addition, sponsoring organizations are
not required to provide participants either child care or health care. The program,
begun in FY1997, “seeks to broaden the network of national service programs and
strategies and to increase the number of communities using AmeriCorps members to
better meet their education, public safety, environmental, and other human needs.”16
For the 1999-2000 program year, grants were made to provide more than 9,500
individuals with the opportunity to participate at a cost to the Corporation (exclusive
of the education award) of $2.2 million. Calculated on a full-time equivalent basis this
amounted to $413 per each of the 5,295 full time equivalent participants.17
11The survey was conducted by Westat, a research corporation based in Rockville, MD. This
data is unpublished and was provided by the Corporation on July 10, 2000.
12Correspondence from the Corporation on January 25, 2002.
13Corporation for National and Community Service. AmeriCorps 2002 Application
Guidelines [for states], p.17.
14Corporation for National and Community Service. AmeriCorps*State Commission
Administrative Guidance Fiscal Year 2002, p. 26.
15Corporation for National and Community Service. Education Awards Program 2002
Application Guidelines, p. 4. (Hereafter cited as CNCS, Education Awards Program 2002
Application Guidelines.) See: [http://www.americorps.org/resources/guidelines2002.html].
16Ibid., p. 4.
17Correspondence from the Corporation on January 24, 2002.

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National Civilian Community Corps (NCCC) — Title I-E
The National Civilian Community Corps (NCCC) was originally authorized
under the Department of Defense Authorization Act for Fiscal Year 1993 (P.L. 102-
484).18 NCCC is a federally operated 10-month residential program for youth ages
18-24 who are citizens, nationals, or lawful permanent resident aliens of the United
States. NCCC participants address needs in the areas of education, public safety,
environment, human needs and disaster relief.19 For FY2002, $25.0 million was
appropriated.
Corps participants live in one of five regional campuses in Washington, DC
(Capital Region), Perry Point, MD (Northeast Region), Charleston, SC (Southeast
Region), Denver, CO (Central Region), and San Diego, CA (Western Region).
Participants may be temporarily relocated from their campuses to projects in
communities throughout their region of the country.
In program year 2000-2001,20 1,002 individuals participated in NCC service.21
Based on a random sample of participants for the most recent year data are available
(program year 1998-1999), 73% were white, 6% were African-American, 7% were
Hispanic, 4% were Asian, and 1% were American Indian, and the race/ethnicity is
unknown for the remaining 9%.22 Of participants serving in December 2001, 29%
were 19 years of age or younger, 68% were between 20 and 24 years of age, and 3%
were 25 years old. Females comprised 71% of the participants.23
Corps participants receive a living allowance of $4,000 annually, health
insurance, and assistance in paying child care costs.24 As discussed in the section on
the National Service Trust, participants are eligible to receive an educational award
upon successful completion of service.
National Service Trust — Title I-D
The National Service Trust, created in 1993, is a special account in the U.S.
Treasury from which educational awards are made for eligible participants in
18This program is called AmeriCorps*NCCC by the Corporation, and the Civilian Community
Corps in statute.
19Participants are on 24-hour call to the Federal Emergency Management Agency for natural
disasters.
20The program year for NCCC starts in October and ends in November of the following year.
NCCC allows members to enter service in October and January; members must complete 10
months of service. Approximately 60% of members enter in the October class and 40% enter
in January. This information was provided by the Corporation on January 24, 2002.
21CNS, FY2003 Budget Estimate NCSA, p. 71.
22The survey was conducted by Westat, a research corporation based in Rockville, MD. This
data is unpublished and was provided by the Corporation on July 10, 2000.
23Correspondence from the Corporation on January 25, 2002.
24Information provided by the Corporation in July 2000 and verified January 24, 2002.

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AmeriCorps Grants, the National Civilian Community Corps and VISTA.25 To
receive an award, a participant must: (1) successfully complete the required term of
service for the program in which he or she is enrolled; (2) have been at least 17 years
old at the time the service period began; (3) at the time the award is used, has
received a high school diploma or equivalent, is enrolled at an institution of higher
education in a program leading to a recognized credential and maintains satisfactory
progress, or has received a waiver from these requirements; and (4) be a citizen or
national of the United States or lawful permanent resident alien of the United States.
The educational award for a full time term of service (i.e., 1,700 hours in a
period of generally 10 to 12 months) is $4,725 and half of that amount (approximately
$2,362) per part time term of service of at least 900 hours. An individual can earn a
maximum of two full or partial educational awards.26 Awards are made at the end of
the service term in the form of a voucher that must be used within 7 years after
successful completion of service. Awards are paid directly to qualified postsecondary
institutions or lenders in cases where participants have outstanding loan obligations.
Awards can be used to repay existing or future qualified education loans or to pay for
the cost of attending a qualified college or graduate school or an approved
school/work program. Educational awards are taxed as income in the year they are
used. For program year 1999-2000, the Corporation estimates that 40,334 individuals
were enrolled in approved positions leading to an educational award.27
The appropriations bills for FY1998 through FY2002 have contained up to $5
million of the Trust funds in each fiscal year for the National Service Scholarship
Program. This program, also referred to by the Corporation as the President’s
Student Service Scholarship program, was begun in FY1997 under the Corporation’s
demonstration authority to recognize outstanding service by juniors and seniors in
public or private high schools. Students who have demonstrated a sustained
commitment of at least 100 hours in a 12 month period can receive a scholarship of
$1,000 for college costs. The Trust provides $500 of the scholarship with the
remainder coming from local sponsors, such as school districts, community
foundations, local businesses, and religious and civic organizations.28 High school
principals work with representatives of community organizations, teachers, and
students to determine how applications will be solicited and how scholarship
25The National Service Trust is also used to pay interest on qualified student loans of
participants who have obtained forbearance (i.e., postponement) in the repayment of their
loans while participating in AmeriCorps, the National Civilian Community Corps, or VISTA.
26While individuals may earn no more than two educational awards, they may serve a
maximum of three terms in a combination of the three programs, subject to the statutory limits
of each program (e.g., all 3 years could be served in VISTA, but only 2 years could be served
in NCCC or AmeriCorps Grants with a third year in another program). See: Corporation for
National and Community Service. 2001 Program Director’s Handbook for AmeriCorps
State and National Programs, pp. 56-59. See:
[http://www.americorps.org/resources/handbooks.html].
27CNCS, FY2002 Budget Estimate NCSA, p. 16.
28The Corporation uses funds appropriated under Subtitle H (Investment for Quality and
Innovation) to cover the costs of marketing and delivering the program.

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recipients will be selected. A high school principal may nominate one junior or senior
student per school, per year for the scholarship.29 For program year 2001, an
estimated 7,500 high school students could receive scholarships.30
For FY2002, the Administration did not request any funding for the National
Trust and no appropriations to it were made. The Administration calculated that no
new funds were needed for costs associated with new AmeriCorps members. From
amounts previously transferred to the National Service Trust, $5 million for FY2002
is available for the National Service Scholarship Program.
Learn and Serve America — Title I-B
Learn and Serve refers to three service learning programs authorized since 1990.
Service-learning is designed to involve students in community service projects that
address local needs in education, public safety, human services, and the environment
in ways that benefit both the student and the community. The three programs are:
school-based programs for students, community-based programs for school-age
youth, and higher education innovative programs for community service.31 For
FY2002, $43 million was appropriated. Funds are used for implementing and
operating the programs. By statute, 63.75% of funds are for school-based programs,
11.25% are for community-based programs, and 25% are for higher education
programs. Grants in all three programs are awarded on 3 year cycles, which began
in FY1994. The Corporation estimates that 1.80 million individuals will have
participated in Learn and Serve Programs in FY2000.32
School-Based Programs. These programs help schools create service-
learning initiatives that involve elementary and secondary school students in
community service which is integrated with their academic curricula. Of the funds
available for school-based programs, 3% are set aside for Indian Tribes and territories.
Of the remainder, 75% is awarded to State Education Agencies (SEAs) on a formula
based equally on the number of school-age youth and on the states’ previous year’s
allocation for Title I of the Elementary and Secondary Education Act (ESEA).33 The
SEAs distribute the funds locally on a competitive basis. Twenty-five percent of the
remainder is awarded through a competitive process to SEAs, Tribes, U.S.
Territories, and grantmaking entities.34 A new grantee must provide 10% of the total
29 More information on the scholarships can be obtained from the worldwide web at:
[http://www.nationalservice.org/scholarships].
30CNS, FY2002 Budget Estimate NCSA, p.19.
31The school and community-based programs are authorized under Part I of Title I-B, titled
“Serve America Programs.”
32CNS, FY2002 Budget Estimate NCSA, p.70.
33Title I of ESEA is a major federal elementary and secondary education program for
disadvantaged students.
34The Corporation’s 1999 Guide to Programs and Grants (August 1998, p. 19) defines
grantmaking entities as public or private nonprofit organizations which have experience in
(continued...)

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program cost in non-federal matching funds; this match increases to 20% and 30%,
respectively, in years 2 and 3, and is 50% for any subsequent year the grantee receives
funds under this program.
Community-Based Programs. These programs help community groups
create service-learning initiatives that involve elementary and secondary school
students in community service. Funds are distributed through competitive grants
given by the Corporation to national nonprofit organizations and state commissions.
Funds are then awarded in local competitions. A new grantee must provide 10% of
the total program cost in non-federal matching funds; this match increases to 20% and
30%, respectively, in years 2 and 3, and is 50% for any subsequent year the grantee
receives funds under this program.
Higher Education Programs. These programs help institutions of higher
education and nonprofit organizations to create service-learning initiatives that involve
postsecondary school students in community service which complements their
academic studies. Programs are selected and funded directly by the Corporation
through a national competition. Eligible applicants include public and private non-
profit institutions of higher education, consortia of institutions of higher education,
nonprofit organizations, and public agencies working in partnership with colleges and
universities. Grants are for 3 years (with annual renewal funding contingent upon
program performance and availability of appropriations), and must be matched in cash
or in kind, dollar for dollar. The amount of funding that can be requested in
subsequent years may be reduced each year on a sliding scale to encourage the sustain
ability of programs.
Points of Light Foundation — Title III35
Established in 1990 as a nonprofit charitable organization, the Foundation is by
statute a non-federal independent and autonomous entity whose purposes are to: (1)
encourage every American to help solve critical social problems by volunteering; (2)
identify successful and promising community service projects and disseminate
information about them; and (3) discover new leaders and develop individuals and
institutions that serve as strong examples of commitment to others. In 1991, the
Foundation merged with the National Volunteer Center, a non-governmental
organization, and is now associated with a nationwide network of private volunteer
centers and corporate representatives.
The Foundation is authorized to receive funding as part of the Corporation’s
appropriation and must provide a 25% match with funds raised from the private
sector. The Corporation and Foundation work together to coordinate activities and
support related missions, but the Foundation is not administered by the Corporation.
For FY2002, $10.0 million was appropriated.
34(...continued)
service-learning, have existed for at least 1 year, and will make subgrants in two or more
states.
35For more information on the Points of Light Foundation, see its Internet Web Site at
[http://www.pointsoflight.org].

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Domestic Volunteer Service Act (DVSA) Programs
The purpose of the Domestic Volunteer Service Act of 1973 (DVSA) is to foster
and expand voluntary citizen service in communities throughout the nation in
activities designed to help the poor, the disadvantaged, the vulnerable, and the elderly.
DVSA, as amended, authorizes Volunteers in Service to America (VISTA) and the
National Senior Volunteer Corps. The Corps consists of the Retired and Senior
Volunteer Program (RSVP), the Foster Grandparent Program, and the Senior
Companion Program. Funding for DVSA programs are contained in the L-HHS-ED
appropriations act. Although authorization of appropriations for DVSA programs
expired at the end of FY1996, they continue to be funded through appropriations
legislation.
Volunteers in Service to America (VISTA) — Title I-A
Formerly administered by the ACTION agency (now abolished), this federally
administered program is called AmeriCorps*VISTA by the Corporation, and has been
authorized since 1965 to recruit volunteers (also referred to as members) to serve in
poverty and poverty-related projects. Volunteers, who must be at least 18 years old,
serve full time for at least 1 year, but not more than 3 years.36 To the maximum
extent possible, they live among and at the economic level of the people they serve.
The role of the volunteers is to mobilize community resources, increase the capacity
of the community to solve problems, and ensure that activities initiated or expanded
by the volunteers are sustained by the community when they leave. For example,
VISTA volunteers may work with Habitat for Humanity to recruit persons to build
homes; create a database of volunteer medical professionals who see low-income
patients in their offices; or initiate contacts with foundations, private funders, and
community agencies to secure financial support for local community organizations.
For FY2002, $85.3 million was appropriated.
In program year 2000-2001, 4,477 members completed VISTA service.37 Based
on a random sample of participants for the most recent year data is available (program
year 1998-1999), 60% were white, 26% were African-American, 11% were Hispanic,
2% were Asian, and 1% were American Indian.38 Of VISTA participants serving in
December 2001, 79% were female.39 By statute, the Corporation is required to
encourage participation of those 18 through 27 years of age and those 55 and older.
36The minimum age of 18 is established by Corporation policy; the National and Community
Service Act permits persons age 17 and older to participate in programs that lead to an
educational award. The limit of 3 years of service is also established by the Corporation; the
Domestic Volunteer Service Act sets the limit at 5 years.
37These are members who completed service during the period of October 1, 2000, through
September 30, 2001 (FY2001). In the case of VISTA, the program year is the same as the
fiscal year. This information was provided by the Corporation on January 24, 2002.
38The survey was conducted by Westat, a research corporation based in Rockville, MD. The
data is unpublished and was provided by the Corporation on July 10, 2000.
39Correspondence from the Corporation on January 25, 2002.

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In program year 2000-2001, approximately 48% were 18 through 27 years of age;
10% of the participants were 55 and older.40
Volunteers receive a living allowance of approximately $9,300, and either a lump
sum stipend that accrues at the rate of $100 for each month of service, or the
educational award under the National Service Trust. In FY2001, 59.5% of full-time
members chose the education award. Of members in the summer program, 100%
chose the educational award. In the aggregate, 70% of members chose the education
award during FY2001.41 Participants also receive health insurance, child care
allowances, liability insurance, and eligibility for student loan forbearance (i.e.,
postponement). Travel and relocation expenses can also be paid to participants
serving somewhere other than in their own community.
Special Volunteer Programs — Title I-C
Conference report language (H.Rept. 107-342) for the DVSA FY2002
appropriation includes funding for a new activity, Volunteers in Homeland Security,
under the authority of Section 122 of Title I -C. The language specifies that funds are
to be used to place volunteers in community activities that are targeted specifically at
contributing to homeland defense. Grants will be made to state and community
organizations on a competitive basis in the areas of public safety, public health, and
disaster relief and preparedness. For FY2002, $5.0 million was appropriated.
National Senior Volunteer Corps — Title II
The National Senior Volunteer Corps (Senior Corps) consists primarily of the
Retired and Senior Volunteer Program (RSVP), the Foster Grandparent Program
(FGP), the Senior Companion Program (SCP).42 The premise of the Senior Corps is
that seniors through their skills and talents can help meet priority community needs
and have an impact on national problems of local concern.
In all three programs, project grants are awarded to public agencies, such as
state, county, and local governments, and to private nonprofit organizations. These
entities apply to the Corporation’s state offices for funds to recruit, place, and support
the senior volunteers. The Corporation can generally cover up to 90% of the project
costs, although the Corporation is authorized to provide funds in excess of 90% in
certain circumstances. Under all three programs, the Corporation is required by
statute to make a portion of funds in excess of the previous year’s appropriation
available to existing program sponsors on a competitive basis for Programs of
National Significance. The purpose of Programs of National Significance is to
40Correspondence from the Corporation on February 8, 2002.
41Correspondence from the Corporation on January 24, 2002.
42The National Senior Volunteer Corps was formerly known as the Older American Volunteer
Programs. Included in the Senior Corps is a small senior demonstration program. In the past
7 years, this program has been funded three times: in FY1995 at $1.0 million, and in FY1999
at $1.08 million, and in FY2000 at $1.5 million. The purpose of this program is to
demonstrate innovative activities involving older Americans as volunteers.

CRS-13
supplement the number of an entity’s volunteers in order to address national problems
of local concern.
Retired and Senior Volunteer Program (RSVP) — Title II-A. Formerly
known as the Retired Senior Volunteer Program, RSVP has been authorized since
1969 to serve as a clearinghouse that provides volunteer opportunities for persons 55
and over. Volunteers are matched with opportunities that make use of their skills and
life experiences, including tutoring, planning community gardens, conducting
community safety patrols, coordinating recycling programs, teaching adult education
computer classes, and serving as hospital aides. Volunteers serve without stipends
but are reimbursed for out-of-pocket expenses, such as transportation costs. For
FY2002, $54.9 million was appropriated.
In FY2001, approximately 480,000 volunteers served in 766 projects.43 Of the
volunteers, 89% were white, 8% were Black/African American, 2% were Asian/
Hawaiian/Pacific Islander, and 1% were American Indian/Alaskan Natives. Hispanic
of any race made up 4% of the volunteers. Persons between the age of 55 and 74
accounted for 53% of the volunteers, those between 75 and 84 accounted for 37%,
and those 85 and older accounted for 10%. Women made up 75% of the volunteers.
Foster Grandparent Program (FGP) — Title II-B. This program, started
in 1965 under the authority of the Economic Opportunity Act of 1964, provides
service to children with special or exceptional needs. To serve as a foster
grandparent, an individual must be 60 years of age or older and have an income that
does not exceed 125% of the poverty line, or in the case of volunteers living in areas
determined by the Corporation to be of a higher cost of living, not more than 135%
of the poverty line.44 Volunteers receive stipends of $2.65 an hour. For FY2002,
$106.7 million was appropriated.
In FY2001, a total of 30,200 individuals served as foster grandparents.45 Fifty-
five percent were white, 39% were Black/African American, 3% were Asian/
Hawaiian/Pacific Islander, and 3% were American Indian/Alaskan Natives. Hispanic
of any race made up 10% of the foster grandparents. Persons between the ages of 60
and 74 accounted for 63% of the volunteers, those ages 75-84 accounted for 32%,
and those 85 and older accounted for 5%. Women made up 90% of the volunteers.
Of the over 275,000 children served by the foster grandparents in FY2001, 39%
were 5 years of age or under, 46% were between 6 and 12 years of age, and 15%
were 13 and older.46 Of the children served, 63% had one of five special needs. The
43Corporation for National Service. National Overview 2001 Retired and Senior Volunteer
Program. See: [http://www.seniorcorps.org/research/overview_rsvp01.html].
44Income eligibility levels are based on the poverty guidelines issued yearly by the Department
of Health and Human Services and are published by the Corporation in the Federal Register.
45 Corporation for National Service. National Overview 2001 Foster Grandparent Program.
See: [http://www.seniorcorps.org/research/overview_fgp01.html].
46By statute, children refers to individuals under the age of 21. However, the law provides
that in the case of mentally retarded individuals a program may continue to serve a child past
(continued...)

CRS-14
special needs areas were learning disabilities (26%), significantly medically impaired
(13%), developmentally delayed/disabled (10%), abused/neglected (7%), and
emotionally impaired/autistic (7%).
Senior Companion Program (SCP) — Title II-C. Authorized since 1973,
the SCP gives primarily low-income volunteers age 60 and over the opportunity to
provide supportive services to vulnerable, frail adults who are homebound and,
generally, living alone. Volunteers provide companionship, do simple chores, provide
transportation to medical appointments, and offer contact to the outside world.
Volunteers receive an annual physical exam, may receive meals, and are provided with
a stipend of $2.65 an hour. For FY2002, $44.4 million was appropriated.
In FY2001, the number of individuals who served as senior companions was
15,500.47 Fifty-eight percent were white, 35% were Black/African American, 5%
were Asian/Hawaiian/Pacific Islander, and 2% were American Indian/Alaskan
Natives. Hispanic of any race made up 11% of the senior companions. Persons
between the age of 60 and 74 accounted for 64% of the volunteers, those between 75
and 84 accounted for 31%, and those 85 and older accounted for 5%. Women made
up 85% of the volunteers.
Of the nearly 61,300 adults served by the senior companions in FY2001, 12%
were between 22 and 64 years of age, 22% were between 65 and 74, 36% were
between 75 and 84, and 30% were 85 and older. Nearly half of the clients were frail
elderly and 10% had Alzheimer’s disease.
Funding Trends
Table 4 on the following page shows trends for the Corporation for National and
Community Service Appropriations from FY1994, the first year for which the
Corporation received funding. Total funding for the Corporation has increased 29%
from FY1994 through FY2002.
Funding for NCSA programs has increased 10% since FY1994. The largest
funding increases during this period have been for the National Civilian Community
Corps (150%) and for AmeriCorps (55%). Smaller increases or decreases have been
for the Learn and Serve America program, and in the areas of Innovation,
Demonstration, and Assistance; Evaluations; and Program Administration. Other
projects designated in appropriations bills received funding in FY2001 and FY2002.
Funding for DVSA programs has increased 61% since FY1994. The largest
funding increases during this period have been for VISTA (100%), the Foster
Grandparent Program (61%), the Retired and Senior Volunteer Program (60%), and
the Senior Companion Program (49%). Program administration has received a small
increase and a new program of Homeland Security was funded in FY2002.
46(...continued)
the chronological age of 21 if the child was receiving service prior to becoming age 21. Of
all individuals served for FY2001, 1% were 21 years of age or older.
47Corporation for National Service. National Overview 2001 Senior Companion Program.
See: [http://www.seniorcorps.org/research/overview_scp01.html].

CRS-15
Table 4. Corporation for National and Community Service Appropriations, FY1994-FY2002a
(in millions)
FY1994
FY1995
FY1996
FY1997
FY1998
approp.
approp.
approp.
approp.
approp.
National & Community Service Act (NCSA) Programsb
National Service Trust (educational awards)
93.250
116.270
59.000
59.000
70.000d
AmeriCorps
155.500
219.000
215.000
215.000
227.000e
National Civilian Community Corps (NCCC)
10.000
18.000
18.000
18.000
18.000
Learn and Serve America
40.000
46.000
43.000
43.000
43.000
Other Projects
—
—
—
—
—
Points of Light Foundation
5.000
5.830
5.500
5.500
5.500
Innovation, Demonstration & Assistance
31.900
30.000
29.850
30.000
30.000
Evaluations
4.600
5.500
5.000
5.000
5.000
Program Administration
24.750
27.523
24.918
25.000
27.000
NCSA Programs Subtotal
365.000
468.123
400.268
400.500
425.500
Inspector General (OIG)a
0.944
2.000
2.000
2.000
3.000
NCSA and OIG Subtotal
365.944
470.123
402.268
402.500
428.500
Domestic Volunteer Service Act (DVSA) Programsc
VISTA
42.724
47.700
41.235
41.235
65.235
Volunteers In Homeland Security
—
—
—
—
—
Retired and Senior Volunteer Program (RSVP)
34.388
35.708
34.949
35.708
40.279
Foster Grandparent Program (FGP)
66.117
67.812
62.237
77.812
87.593
Senior Companion Program (SCP)
29.773
31.244
31.155
31.244
35.368
Senior Demonstration Program (SDP)
0.0
1.000
0.0
0.0
0.0
Program Administration
31.151
31.160
28.541
27.850
28.129
DVSA Programs Subtotal
204.153
214.624
198.117
213.849
256.604
Total
570.097
684.747
600.385
616.349
685.104

CRS-16
FY1999
FY2000
FY2001
FY2002
Programs
approp.
approp.g
approp.i
approp.
National & Community Service Act (NCSA) Programsb
National Service Trust (educational awards)
70.000d
70.000d
69.846d
00.000k
AmeriCorps
237.000f
228.395h
230.492
240.492
National Civilian Community Corps (NCCC)
18.000
17.892
20.954
25.000
Learn and Serve America
43.000
43.000
42.905
43.000
Points of Light Foundation
5.500
7.471
9.978
10.000
Other Projects
—
—
18.959j
19.000l
Innovation, Demonstration & Assistance
28.500
33.500h
28.437
28.488
Evaluations
5.000
5.000
4.989
5.000
Program Administration
28.500
27.895
30.931
31.000
NCSA Programs Subtotal
435.500 f
433.153
457.491
401.980
Inspector General (OIG)a
3.000
3.985
5.000
5.000
NCSA and OIG Subtotal
438.500f
437.138
462.491
406.980
Domestic Volunteer Service Act (DVSA) Programsc
VISTA
73.000
80.574
83.074
85.287
Volunteers in Homeland Security
—
—
—
5.000
Retired and Senior Volunteer Program (RSVP)
43.001
46.117
48.884
54.884
Foster Grandparent Program (FGP)
93.256
95.988
98.868
106.700
Senior Companion Program (SCP)
36.573
39.219
40.395
44.395
Senior Demonstration Program (SDP)
1.080
1.494
.400
.400
Program Administration
29.129
31.129
32.229
32.229
DVSA Programs Subtotal
276.039
294.521
303.850
328.895
Total
714.539f
731.659
766.341
735.875
Source: FY1994 appropriations from transmittal from the Corporation for National and Community Service. FY1995-FY2001 appropriations
from the Corporation’s annual budget submissions to Congress. FY2002 appropriations are from P.L. 107-73.
aThese appropriations reflect any rescissions or other adjustments made to the original appropriations. The FY2002 amount could be modified
through further legislation during FY2002.
bNCSA programs and the Office of the Inspector General (OIG) are funded under the VA-HUD & Independent Agencies Appropriations Act.
cDVSA programs are funded under the Labor-HHS-ED & Related Agencies Appropriations Act.

CRS-17
dFor FY1998, FY1999, and FY2000, the Congress designated up to $5 million of the annual for the National Service Scholarship Program.
e $25 million of this amount was designated for literacy and mentoring program.
f$10.0 million of this was included in the Omnibus Consolidated and Emergency Appropriations Act, 1999 (P.L. 105-277) rather than in the VA-
HUD & Independent Agencies Appropriations Act.
gThe FY2000 amounts reflect a .38% rescission required by P.L. 106-113.
hThese amounts reflect a $5 million transfer from AmeriCorps to Innovation, Demonstration and Assistance to fund a grant to the Girl Scouts.
iThe FY2001 amounts reflect a .22% rescission for NCSA programs as required by P.L. 106-554.
jThis includes approximately $7.5 million for America’s Promise — The Alliance for Youth, Inc., $5.0 million for Communities in Schools, $2.5
million for Parents as Teachers National Center, Inc., $2.5 for Boys and Girls Clubs of America, and $1.5 million for Youth Life Foundation.
kFrom amount previously transferred to the National Service Trust, $5 million is available for the national Service Scholarship Program.
lThis includes $7.5 million for America’s Promise — The Alliance for Youth, Inc.,$5.0 million for Communities in Schools, $2.5 million for
YMCA of the USA, $1.5 million for Parents as Teachers National Center, Inc., $1.5 million for Youth Life Foundation, and $1.0 million for Teach
for America.

CRS-18
Additional Reading
Corporation for National Service. Strengthening Organizational Effectiveness and
Service Delivery. A Report form the Panel of the National Academy of Public
Administration. Washington, undated.
An Evaluation of AmeriCorps, Summary. Submitted by Aguirre International.
Washington, March 9, 1999.
U.S. General Accounting Office. National Service Programs: AmeriCorps*USA —
Early Program Resource and Benefit Information. HEHS-95-222.
Washington, August 29, 1995.
----- National Service Programs: AmeriCorps*USA — First Year Experience and
Recent Program Initiatives. T-HEHS-95-146. Washington, May 21, 1996.
----- National Service Programs: Role of State Commissions in Implementing the
AmeriCorps Program. HEHS-97-49. Washington, February 20, 1997.
----- National Service Programs: Enrollment and Education Award Data on Selected
AmeriCorps Projects. HEHS-97-96R. Washington, March 19, 1997
----- National Service Programs - Status of AmeriCorps Reform Efforts. HEHS-97-
198R. Washington, September 3, 1997.
----- National Service Programs — Two AmeriCorps Programs’ Funding and
Benefits. GAO/HES-00-33. Washington, February 15, 2000.