REPORT TO THE NEW YORK CITY COUNCIL

Borden Avenue Veterans' Shelter Report (2026)

Part 3: Public Safety, Emergency Response, and Community Impact


Key Findings

  • Approximately 1,365 emergency calls were associated with the Borden Avenue Veterans' Residence between August 2024 and December 2025.
  • Emergency responses averaged more than two incidents per day, requiring repeated deployment of taxpayer-funded public resources.
  • Incidents included:
  • Ambulance responses
  • Emotionally Disturbed Person (EDP) incidents
  • Violent EDP incidents
  • Assaults
  • Suspected overdoses
  • Medical emergencies
  • Harassment complaints
  • Disputes and injuries
  • Public arrest records identified more than 70 arrests over a three-year period from September 2022 through December 2025.
  • Approximately 60% of publicly available emergency-call records contained no recorded disposition, representing approximately 819 incidents without a documented public outcome.
  • Repeated emergency responses create significant financial impacts involving NYPD, FDNY EMS, hospitals, courts, and other community resources.


Emergency Response Activity

The Borden Avenue Veterans' Residence operates as New York City's only federally funded Department of Veterans Affairs Grant and Per Diem (GPD) transitional housing program. Unlike a traditional emergency shelter, the GPD program is intended to provide veterans with a stable recovery environment focused on healthcare access, employment preparation, independent living skills, and permanent housing placement.

Emergency-response records reviewed for this report identified approximately 1,365 emergency calls associated with Borden Avenue during a sixteen-month period from August 2024 through December 2025. These calls required responses from the NYPD, FDNY Emergency Medical Services, hospitals, and behavioral health professionals.

While emergency calls are expected within programs serving vulnerable populations, the volume of responses raises questions regarding whether the environment supports the stability necessary for veterans transitioning from homelessness, incarceration, and medical or behavioral health challenges.


Public Safety Concerns

Emergency records demonstrate that responses extended beyond routine medical assistance. Reported incidents included behavioral health crises, assaults, disputes, suspected overdoses, and criminal complaints.

Public records identified more than 70 arrests over a separate three-year period, including felony and misdemeanor offenses. These incidents required additional involvement from law enforcement, prosecutors, public defenders, courts, probation services, parole systems, and correctional agencies.

The report also notes that the New York State Sex Offender Registry identifies at least a dozen registered sex offenders associated with the Borden Avenue address. This creates additional concerns regarding supervision, safety procedures, and transparency within a congregate living environment serving veterans with complex histories.

At a recent Veterans Advisory Board meeting, a representative connected with the New York State Department of Corrections and Community Supervision expressed concern regarding the safety and appropriateness of Borden Avenue as a placement option for veterans transitioning from incarceration.


Missing Dispositions and Accountability

One of the most significant transparency issues identified involves emergency-call outcomes.

Approximately 60% of publicly available emergency-response records contained no recorded disposition. Based on the approximately 1,365 calls reviewed, this represents roughly 819 incidents where available records do not identify whether the response resulted in:

  • Arrest
  • Hospital transport
  • Psychiatric admission
  • Criminal investigation
  • Referral to another agency
  • No further action

The lack of complete outcome information limits the ability of oversight agencies, policymakers, and the public to evaluate whether incidents are properly documented and addressed.

This is particularly significant in a facility serving individuals who may be under probation or parole supervision, where criminal activity or repeated violent incidents could affect continued community placement.


Cost to the Community

The financial impact of emergency activity extends far beyond the operating budget of Borden Avenue.

Each emergency response requires taxpayer-funded services, including:

  • NYPD officers from the 108th Precinct
  • FDNY EMS crews
  • Emergency department staff
  • Psychiatric evaluation services
  • Prosecutors and defense attorneys
  • Court personnel
  • Correctional resources

The report estimates that repeated emergency responses may represent millions of dollars in additional community costs when considering police response, ambulance dispatch, emergency healthcare, psychiatric services, arrests, and criminal justice involvement.

These costs exist in addition to the millions already allocated annually for facility operations, including more than $1 million for contracted security.


Impact on Veteran Recovery

The VA Grant and Per Diem Program is designed to provide a structured environment where veterans can rebuild their lives. Recovery depends upon stability, safety, trust, and confidence that the program is preparing residents for successful transition into permanent housing.

Repeated exposure to emergency incidents, violence, medical crises, and instability may negatively affect veterans recovering from PTSD, substance-use disorders, homelessness, or incarceration.

The report concludes that public safety should be evaluated not only as a security concern, but as a fundamental component of successful veteran recovery. A transitional program's success should ultimately be measured by whether veterans leave with the support, resources, and stability necessary to remain permanently housed.