Who is The Forgotten Veteran?
The Forgotten Veteran is incarcerated or homeless.
The Forgotten Veteran struggles with lingering drug/alcohol abuse issues.
The Forgotten Veteran suffers mental illness.
The Forgotten Veteran most likely experienced trauma while serving.
The Forgotten Veteran has unresolved issues with family & friends.
The Forgotten Veteran struggles with suicide ideation.
The Forgotten Veteran is in the shadows but wants to be seen.
The Forgotten Veteran is Me
The Forgotten Veteran
The Forgotten Veteran is justice-involved and homeless, most likely experienced trauma while serving. The Forgotten Veteran is in jail and/or prison. The Forgotten Veteran is sleeping in a shelter, in their car, in a camp, or on the street. The Forgotten Veteran most likely has unresolved drug/alcohol abuses, mental illness, and has experienced chronic homelessness.
"America loves the soldier; not so much the veteran"
The Mission of The Forgotten Veteran
To 'Bridge the Gap' between the incarcerated and homeless veteran and resources while providing information and solutions for the prevention of veteran homelessness and suicide. Most of the links for services and resources will connect to a The Forgotten Veteran.org page.
Quick Links & Affiliations
Executive Summary
Purpose of Review
This report presents an 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 provide information for consideration by the Department of Veterans Affairs Office of Inspector General regarding whether the program is operating consistent with the intended objectives of the VA GPD transitional program.
The VA Grant and Per Diem Program is not a traditional emergency shelter program, permanent housing program, or clinical recovery program. It is a transitional program designed to assist eligible veterans experiencing homelessness by providing temporary supportive housing and access to resources necessary for successful transition back into the community.
Those resources include housing assistance, employment opportunities, financial wellness, healthcare connections, benefits assistance, transportation, independent living skills, and community support.
Because Borden Avenue represents New York City’s only federally funded VA GPD transitional program, its operation has a significant impact on veterans transitioning from homelessness, incarceration, military service, financial instability, and other circumstances requiring structured assistance.
Summary of Findings
This report identifies several areas requiring further review regarding whether Borden Avenue’s current operation aligns with the mission and expectations of the VA GPD program.
Records reviewed indicate significant public investment into facility operations, staffing, contracted services, security, and administration. However, concerns remain regarding whether sufficient resources are directed toward the transitional services necessary for veterans to achieve long-term independence.
Financial information reviewed regarding the Institute for Community Living (ICL), the contracted operator of Borden Avenue, identifies ICL as a nonprofit organization with annual revenue exceeding approximately $200 million. Borden Avenue budget documents identify substantial operational spending, including more than $1 million allocated annually for contracted security.
At the same time, budget categories directly connected to veteran transition activities, including transportation, recreation, community engagement, employment access, and independent living support, appear comparatively limited.
A review of emergency-response data identified approximately 1,365 emergency calls associated with Borden Avenue between August 2024 and December 2025. Incidents included medical emergencies, assaults, emotionally disturbed persons, disputes, injuries, suspected overdoses, and other emergency responses.
Separate arrest records reviewed from September 2022 through December 2025 identified more than 70 arrests connected to the facility, including felony arrests, assault-related incidents, narcotics offenses, weapons-related charges, and other criminal complaints.
These findings do not suggest that serving vulnerable veterans will occur without challenges. Veterans entering transitional programs may experience complex barriers involving trauma, disabilities, unemployment, substance-use issues, medical conditions, and long-term homelessness.
However, the frequency and nature of incidents warrant evaluation regarding whether the environment supports the transition-focused purpose of the GPD program.
Program Oversight Concerns
The review identifies concerns regarding accountability among multiple agencies and organizations involved in veteran homelessness services, including Veterans Affairs, the Department of Homeless Services, contracted providers, and local oversight bodies.
Areas requiring review include:
Successful program evaluation should extend beyond occupancy levels or placement numbers. A veteran’s transition should include preparation for maintaining independence after leaving the program.
Additional Areas Reviewed
This report also examines broader issues affecting veterans participating in transitional services, including:
Limited access for women veterans and veteran families to VA GPD transitional services in New York City.
The proposed conversion of the Bellevue Intake Facility into a comprehensive Veterans Transitional Program serving male veterans, women veterans, and veteran families near the Manhattan Veterans Affairs Medical Center.
The role of the Veterans Advisory Board, Veterans Task Force, and New York City Council Committee on Veterans in reviewing concerns and ensuring documented follow-up.
The importance of veterans with lived experience participating in program evaluation and oversight.
The need to protect vulnerable veterans from isolation, inconsistent access policies, or potential exploitation.
Conclusion
The Veterans Affairs Grant and Per Diem Program was established because ending veteran homelessness requires more than providing temporary shelter. The program is intended to create a structured transition that provides veterans with the tools, resources, and connections necessary to successfully return to the community.
The issues identified at Borden Avenue Veterans’ Residence require evaluation not only of facility operations, but whether the complete purpose of the GPD transitional program is being fulfilled.
Public investment, contracts, staffing levels, and available beds represent only portions of program performance. The primary measurement must remain whether eligible veterans leave the program prepared for independent living, connected to appropriate resources, and positioned to maintain long-term stability.
This report respectfully requests review of whether the current operation of New York City’s only VA GPD transitional program provides veterans with the full range of transitional support intended under the Veterans Affairs Grant and Per Diem Program.
Assessment of the Veterans Affairs Grant and Per Diem Program and Borden Avenue Veterans’ Residence
Review of Program Implementation, Transitional Services, and Alignment With VA GPD Objectives
Purpose of Review
This section evaluates whether the operation of the Borden Avenue Veterans’ Residence (BAVR) aligns with the intended purpose of the Department of Veterans Affairs Grant and Per Diem (GPD) Program.
The VA GPD program is a transitional program designed to assist eligible veterans experiencing homelessness by providing temporary supportive housing and access to resources necessary to successfully transition back into the community.
The GPD program should not be evaluated solely as a shelter program, permanent housing program, or clinical recovery program. While housing placement is an important outcome, the broader purpose of GPD is preparing veterans for independent living by providing access to supportive resources.
Those resources include:
· Housing assistance
· Employment opportunities
· Financial wellness
· VA healthcare access
· Benefits assistance
· Transportation
· Community engagement
· Independent living preparation
Borden Avenue serves a unique role as New York City’s only VA-funded GPD transitional program. As a result, the effectiveness of the facility impacts how New York City serves veterans transitioning from homelessness, incarceration, military service, financial instability, and other barriers affecting independence.
Program Implementation Review
The purpose of a transitional program is to address the circumstances that contributed to a veteran becoming homeless and provide a structured pathway back into the community.
A successful GPD program begins transition planning when the veteran enters the program. Services should focus on identifying barriers, connecting resources, developing stability, and preparing the veteran for life after leaving the facility.
The effectiveness of the program should therefore be measured by whether veterans obtain:
· Sustainable housing connections
· Stable income or employment pathways
· Financial skills
· Healthcare continuity
· Community support systems
The review of Borden Avenue identifies concerns regarding whether the program has consistently operated as a veteran transitional program or primarily as a Department of Homeless Services shelter model serving veterans.
A traditional shelter system focuses on immediate needs, including temporary placement, meals, and facility operations.
A VA GPD transitional program requires additional emphasis on preparing veterans for successful reintegration into the community.
Access to Transitional Resources
Access to resources is a critical component of the GPD program.
Veterans experiencing homelessness often enter programs after significant disruptions involving employment, finances, family support, healthcare, and community connection.
A successful transition requires rebuilding these foundations before permanent placement occurs.
Concerns reviewed regarding Borden Avenue include whether veterans received sufficient access to:
· Employment preparation and workforce programs
· Financial education and budgeting support
· Transportation to VA appointments and community resources
· Veteran service organizations
· Peer support and mentorship
· Community partnerships
Limited access to these resources may negatively affect a veteran’s ability to successfully transition.
Veterans leaving homelessness require more than placement into housing. They require preparation to maintain independence after placement occurs.
Location and Connection to Veterans Affairs Services
The relationship between a GPD program and Veterans Affairs services is essential.
Veterans participating in GPD may require access to:
· Primary healthcare
· Mental health services
· Disability benefits assistance
· Specialty care
· Social work support
Borden Avenue’s location requires veterans to travel outside the facility to access many VA services. Transportation therefore becomes a significant component of program effectiveness.
Without reliable access to VA resources, veterans may face additional barriers that delay progress toward independence.
A transitional program should reduce obstacles between veterans and available resources.
Community Engagement and Reintegration
Community connection is an important factor in successful transition.
Many veterans experiencing homelessness have lost connection to employment, family, military identity, and social support networks.
Veteran organizations, volunteers, employers, and community partners can assist by providing mentorship, opportunities, and relationships beyond the facility.
Concerns regarding restricted access for outside organizations require review because community involvement strengthens the transition process.
Preparing veterans to return to the community requires meaningful connection with that community before they exit the program.
Program Outcomes and Accountability
Evaluation of the GPD program should extend beyond the number of veterans housed or the number of available beds.
Important performance measurements include:
· Successful transitions into independent living
· Housing retention after exit
· Employment or income improvement
· Connection with VA healthcare
· Reduced returns to homelessness
· Veteran satisfaction and participation
Program accountability requires determining whether services provided resulted in measurable improvement in the lives of participating veterans.
Conclusion
The Veterans Affairs Grant and Per Diem Program was created to provide eligible veterans experiencing homelessness with a structured pathway back into the community.
The purpose of the program is transition.
The assessment of Borden Avenue Veterans’ Residence should therefore focus not only on shelter operations, but on whether veterans receive the resources necessary to achieve independence after leaving the facility.
A successful GPD program ensures that veterans exit with more than a housing placement. Veterans should leave connected to healthcare, employment opportunities, financial resources, benefits, transportation, and community support.
The effectiveness of New York City’s only VA GPD transitional program should ultimately be measured by whether it fulfills that mission: helping veterans successfully transition from homelessness back into the community.
Part 5 — 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:
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:
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:
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.
According to the U.S. Department of Housing and Urban Development (HUD) estimates that 40,056 veterans are homeless on any given night. Over the course of a year, approximately twice that many experience homelessness. Only 7% of the general population can claim veteran status, but nearly 13% of the homeless adult population are veterans.
Homeless Veteran Demographics
13% of the homeless adult population are veterans
20% of the male homeless population are veterans
68% reside in principal cities
32% reside in suburban/rural areas
51% of individual homeless veterans have disabilities
50% have serious mental illness
70% have substance abuse problems
51% are white males, compared to 38% of non-veterans
50% are age 51 or older, compared to 19% non-veterans
Quick Links & Affiliations
Part 5 — 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:
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:
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:
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.
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The Council on Criminal Justice (CCJ) reports that one third of veterans report having been arrested and booked into jail at least once, compared to fewer than one fifth of civilians. There are more than 181,500 veterans in U.S. prisons and jails. About half of these veterans were experiencing homelessness just prior to, or at the time of, arrest. About half of veterans in prison have a diagnosable mental health condition as a result of military service. Hundreds, if not thousands, of veterans were sexually assaulted while serving this country.
Veteran Sentences Tend to Be Longer
60% of the 181,000 incarcerated veterans are for non-violent charges
16% were serving life sentences compared to 14% of non-veterans
35% of veterans compared to 23% of non-veterans were incarcerated for a violent sexual offense
A total 64% of veterans compared to 48% of non-veterans were imprisoned for all violent offenses
Only 14% of veterans compared to 23% non-veterans are incarcerated for drug offenses
600,000 veterans cannot vote because of felony conviction
$56.9 Billion state’s expenditures on corrections for 2015
43% of veterans and 55% of non-veterans in prison had four or more prior arrests, and
17% were serving sentences of four years or less compared to non-veterans at 21%
