REPORT TO THE NEW YORK CITY COUNCIL

Committee on Veterans (2026)

Executive Summary

Purpose of Review

This report presents a comprehensive assessment of the operation, oversight, and implementation of the Veterans Affairs Grant and Per Diem (GPD) Program at the Borden Avenue Veterans' Residence (BAVR) in Long Island City, New York. The purpose of this review is to evaluate whether New York City's only federally funded VA GPD transitional housing program is operating consistent with the mission established by Congress and the Department of Veterans Affairs.

The VA Grant and Per Diem Program was not designed as a traditional emergency shelter, permanent housing program, or long-term mental health facility. It is a transitional program intended to assist eligible veterans moving from homelessness, incarceration, military service, financial instability, medical challenges, and other barriers into stable permanent housing.

The program's purpose is to provide veterans with the foundation necessary for independence through safe housing, VA healthcare connection, benefits assistance, employment preparation, transportation, financial stability, peer support, independent living skills, and community reintegration.

Because Borden Avenue represents the only VA GPD transitional housing program operating in New York City, its success or failure directly impacts the city's ability to effectively address veteran homelessness.

Summary of Findings

This report identifies concerns regarding whether Borden Avenue's current operating model fully reflects the intended mission of a veteran-focused transitional program.

Financial records demonstrate a significant public investment into Borden Avenue through government funding, contracted services, staffing, security, and administration. The Institute for Community Living (ICL), the contracted operator of Borden Avenue, is a nonprofit organization reporting approximately $214 million in annual revenue.

The FY2024 Borden Avenue budget identified substantial operational expenses, including approximately $1.08 million for contracted security, while several categories directly connected to veteran transition and quality-of-life services appeared limited, including:

$32,379 for client transportation
$0 for recreation
$0 for client stipends
Limited funding identified for community reintegration activities

These priorities raise questions regarding whether available resources are focused primarily on maintaining a shelter environment or creating a successful pathway toward independent living.

Safety, Emergency Response, and Veteran Recovery

A review of public safety records identified approximately 1,365 emergency calls associated with Borden Avenue between August 2024 and December 2025. Incidents included ambulance responses, emotionally disturbed person calls, violent EDP incidents, assaults, suspected overdoses, injuries, disputes, and other emergencies.

Separate arrest records reviewed from September 2022 through December 2025 identified more than 70 arrests over a three-year period, including felony charges and other criminal complaints.

Approximately 60% of reviewed emergency-call records contained no publicly available disposition, creating concerns regarding transparency, incident tracking, and whether appropriate follow-up occurred.

These findings do not suggest that serving veterans with complex needs will occur without challenges. Many veterans entering transitional programs experience PTSD, disabilities, substance-use recovery, incarceration history, medical issues, or long-term homelessness.

However, a recovery-based transitional program must provide an environment where veterans can safely stabilize and prepare for permanent housing.

Access, Equity, and Vulnerable Veterans

This report also examines whether all eligible veterans have equal access to appropriate transitional services.

Issues reviewed include:

Veterans with PTSD and service-connected disabilities
LGBTQ+ veterans
HIV privacy and medical confidentiality
Veterans transitioning from incarceration
Protection from exploitation
Equal access to services

The report further identifies a major service gap involving women veterans and veteran families. While the VA GPD program is intended to serve eligible veterans broadly, New York City's current model does not provide equivalent GPD access for women veterans, women with children, or veteran families.

The proposed Bellevue Veterans Transitional Program is presented as an opportunity to create a comprehensive veteran-centered model serving male veterans, women veterans, families, and veterans requiring direct connection to VA healthcare services.

Program Outcomes and Accountability

The effectiveness of the GPD program must be measured by long-term outcomes, not simply occupancy.

This report reviews concerns regarding:

Successful housing exits
Unsuccessful exits
Veterans returning to homelessness
Long-term housing stability
Reliable reporting

Borden Avenue's reported approximately 60% successful exit rate is compared with other GPD models, including Phoenix's MANA House, which reported successful exits approaching 90%.

The VA Office of Inspector General has previously emphasized that reliable GPD outcome data is essential because inaccurate reporting prevents proper evaluation of whether programs are achieving their intended purpose.

Oversight Responsibilities

The report evaluates the roles of organizations responsible for implementation, advocacy, and accountability, including:

Institute for Community Living (ICL) — program operations and service delivery
Department of Homeless Services (DHS) — contract oversight and compliance
Department of Veterans' Services (DVS) — veteran advocacy and resource coordination
Veterans Task Force — interagency collaboration and lived-experience involvement
Veterans Advisory Board — representation and policy recommendations
New York City Council Committee on Veterans — legislative oversight and corrective action tracking

A recurring finding is the need for stronger documentation showing how concerns raised by veterans result in investigation, corrective action, and measurable improvement.

Conclusion

The Veterans Affairs Grant and Per Diem Program was created because ending veteran homelessness requires more than providing temporary shelter. The mission is to create a structured pathway where veterans regain stability, reconnect with resources, and successfully return to the community.

The findings presented regarding Borden Avenue Veterans' Residence raise questions regarding whether New York City's only VA GPD program is operating as a true transitional recovery program or primarily as a shelter model serving veterans.

The measure of success cannot be based solely on funding, contracts, or occupied beds. Success must be determined by whether veterans leave with healthcare connections, financial stability, independence, community support, and the ability to remain permanently housed.

This report requests a comprehensive review of Borden Avenue's operations, oversight structure, and outcomes to ensure that every eligible veteran receives the full support intended under the Veterans Affairs Grant and Per Diem Program.