Federal benefits are defined as grants, contracts, loans or professional or commercial licenses provided directly or indirectly by the United States government. Excluded from the definition are need-based programs such as public housing, welfare, and disability as well as certain entitlements such as veterans' benefits and social security. In certain cases, the Congress provided for restoration of eligibility upon rehabilitation, but did not provide guidance in the law for determining if rehabilitation had been achieved. Because Congress failed in establishing a clear legislative history for the Act and legislated too broadly, it left many difficult policy issues to be resolved by the executive branch and the courts. 41 footnotes.