Purpose and Scope

The Borden Avenue Report 2026 examines the Borden Avenue Veterans' Residence (BAVR) at 21-10 Borden Avenue in Long Island City, Queens, and the federal, municipal, nonprofit, advisory, and oversight systems responsible for serving Veterans experiencing homelessness there. The report focuses on Borden Avenue's participation in the U.S. Department of Veterans Affairs Grant and Per Diem (GPD) Program, its operation by the Institute for Community Living (ICL) under contract with the New York City Department of Homeless Services (DHS), and whether the combined system provides adequate transitional support, safety, accountability, and a meaningful pathway to permanent housing.

A Transitional Program

Records reviewed for the report identify 154 authorized GPD beds at Borden Avenue and classify them as Service Intensive. Reported enrollment declined from 124 Veterans in June 2024 to 107 in August 2024. Those figures establish reported enrollment, but do not by themselves establish how many physical beds were vacant or immediately available. Because GPD is transitional rather than permanent housing, the report evaluates whether Veterans receive individualized assistance, connection to VA and community resources, preparation for independent living, and measurable progress toward stable housing.

Public Safety and Program Conditions

Part 9 analyzes approximately 1,365 emergency calls associated with 21-10 Borden Avenue between August 2024 and December 2025 and 82 arrest entries between September 2022 and December 2025. The records include medical emergencies, emotionally disturbed person calls, assaults, suspected overdoses, disputes, injuries, and other reported incidents. Emergency calls do not establish provider wrongdoing, and arrests do not establish guilt. Their frequency nevertheless makes residential safety and incident response legitimate subjects for independent review.

Funding, Services, and Outcomes

Borden Avenue operates through substantial public resources involving both New York City and the federal government. The report does not presume that overlapping funding constitutes duplication or misuse. Instead, it asks what services public funds purchase, whether those services are documented as delivered, and whether expenditures are connected to Veteran outcomes. The report similarly distinguishes program activity from program success: occupancy, case-management contacts, expenditures, and discharges are operational measures; successful transition to stable permanent housing is the principal outcome.

Government Responsibility and Oversight

Responsibility is divided among several organizations. VA administers GPD requirements, federal funding, and monitoring; DHS administers the City's contractual relationship with ICL; and ICL operates Borden Avenue. DVS, the Continuum of Care Veterans Task Force, Veterans Advisory Board, City Council Committee on Veterans, and independent oversight bodies have different advocacy, coordination, legislative, audit, or investigative functions. The report evaluates each according to its documented authority while emphasizing that referral between organizations should not substitute for resolution.

Principal Recommendations

• VA review of whether Borden Avenue remains consistent with its authorized Service Intensive GPD model and individualized Veteran needs.

• A comprehensive federal financial and programmatic review of GPD funding associated with Borden Avenue.

• Coordinated reconciliation of emergency calls, arrests, serious incidents, EMS information, provider records, DHS records, and applicable VA incident reporting.

• Independent review of GPD utilization, admissions, housing outcomes, negative exits, transfers, and unverified destinations.

• DHS review connecting municipal contract expenditures to documented service delivery and measurable Veteran outcomes.

• Periodic independent and unannounced review of ordinary facility conditions, including confidential opportunities for Veterans to speak with reviewers.

• Development of appropriate Veteran-specific transitional capacity for women Veterans and consideration of Veterans with dependent children.

• A formal evaluation of Borden Avenue's continued suitability as New York City's GPD transitional location.

EVIDENTIARY CAUTION
The recommendations do not constitute findings that criminal conduct, financial fraud, regulatory violations, or contractual violations occurred. Where records leave material questions unresolved, the report recommends investigation, reconciliation, and independent verification rather than assumption.

The Measure Is the Veteran's Transition

The report ultimately concerns what happens to the Veteran who enters the program homeless. A successful transitional system should provide safety, dignity, individualized assistance, access to earned VA resources, preparation for independent living, meaningful community participation, and a sustainable permanent home. Public funding, provider operations, government oversight, and program activity should therefore be judged by how effectively they contribute to that transition.

Source note: This Executive Summary condenses the report framework and findings reflected in Part 1 and the report's Findings and Recommendations. Detailed evidence, qualifications, source links, and methodology appear in the individual Parts.