REPORT TO THE NEW YORK CITY COUNCIL

Committee on Veterans (2026)

Part 9 — Institute for Community Living: Financial Resources, Program Priorities, and Veteran Services



Key Findings

  • The Institute for Community Living (ICL) operates the Borden Avenue Veterans' Residence, New York City's only federally funded VA Grant and Per Diem (GPD) transitional housing program.
  • ICL is one of New York's largest nonprofit behavioral health providers, reporting approximately:
  • $214.3 million in annual revenue
  • $211.8 million in annual expenses
  • $145 million in total assets
  • $131 million in liabilities
  • CEO Joann (Jody) Rudin received $515,814 in salary and $40,373 in additional compensation, bringing reported total compensation to more than $556,000.
  • The CEO's annual salary of $515,814 is approximately equal to the entire FY2024 Borden Avenue food budget of $539,473.
  • The FY2024 Borden Avenue budget identified:
  • $1,088,422 for contracted security
  • $539,473 for food
  • $32,379 for client transportation
  • No dedicated funding for recreation
  • No client stipends
  • No kitchen personnel allocation
  • Veterans have reported concerns regarding nutrition, transportation, VA access, and services intended to support successful transition into permanent housing.

 

A $214 Million Organization Managing New York City's Veteran GPD Program

The Borden Avenue Veterans' Residence operates under the Institute for Community Living, a major nonprofit behavioral health organization providing housing, healthcare, and supportive services throughout New York.

According to financial records reviewed for this report, ICL reported $214.3 million in annual revenue and $211.8 million in expenses. The organization also reported approximately $145 million in assets. CEO Joann (Jody) Rudin's compensation included $515,814 in salary plus $40,373 in additional compensation, exceeding $556,000 in total reported compensation.

These figures provide important context because Borden Avenue represents New York City's only VA-funded transitional housing program dedicated to homeless veterans. The GPD program was designed not simply to provide temporary shelter, but to prepare veterans for successful independent living through structured services.

 

Financial Priorities Compared With Veteran Services

The Department of Veterans Affairs Grant and Per Diem Program emphasizes recovery and transition. Core elements include:

  • Case management
  • Healthcare coordination
  • Employment preparation
  • Transportation assistance
  • Independent living skills
  • Nutrition and wellness
  • Community integration
  • Permanent housing placement

The report compares these objectives with the financial priorities identified within the Borden Avenue budget.

The FY2024 budget allocated more than $1.08 million for contracted security, making security one of the largest operational expenses. At the same time, the reviewed budget identified no dedicated recreation funding, no client stipends, and no kitchen personnel allocation.

The report further notes that Jody Rudin's reported annual salary of $515,814 is approximately equal to the entire yearly food budget of $539,473 allocated for veterans residing at Borden Avenue.

 

Veteran Concerns Regarding Recovery Services

Veterans participating in a GPD program frequently enter after experiencing homelessness, incarceration, PTSD, substance-use disorders, chronic illness, or other barriers to stability.

The report identifies concerns from veterans regarding:

  • Nutritional quality of meals provided at Borden Avenue
  • Limited transportation assistance for VA medical appointments
  • Limited connection to VA healthcare resources, benefits, and programs
  • Limited recreation and community integration opportunities

These concerns are significant because recovery-oriented transitional housing depends upon more than providing a place to sleep. Veterans preparing for permanent housing require access to healthcare, stable nutrition, social support, financial planning, and independent living preparation.

 

Connection to Successful Housing Outcomes

The effectiveness of the VA GPD Program is ultimately measured by whether veterans successfully leave homelessness and remain permanently housed.

The broader report identifies concerns regarding:

  • Borden Avenue's approximately 60% successful exit rate
  • Veterans leaving without clearly documented successful outcomes
  • Possible returns to homelessness
  • Differences compared with higher-performing GPD models

Successful transitions require that veterans leave with established support systems, including VA healthcare connections, income stability, community support, and the skills necessary to maintain housing.

 

Public Accountability

Because ICL receives substantial public funding and operates New York City's only VA GPD transitional housing program, financial transparency and measurable outcomes remain essential.

The evaluation of Borden Avenue requires reviewing not only the amount of money spent, but whether those resources are advancing the purpose of the Grant and Per Diem Program:

Helping veterans recover from homelessness, access services, transition successfully into permanent housing, and maintain long-term stability.

The report concludes that organizational resources, budget priorities, veteran services, and successful housing outcomes should be reviewed together when measuring the effectiveness of New York City's only federally funded VA transitional housing program.