The Crisis of Homeless Veterans at Borden Avenue Veterans' Residence

Introduction

New York City is facing a critical crisis with homeless veterans struggling to secure stable housing. Despite the availability of millions of dollars in federal funding aimed at assisting these veterans, systemic issues, including bureaucratic inefficiencies, financial mismanagement, and substandard shelter conditions, continue to prevent veterans from finding permanent housing. The city’s Department of Homeless Services (DHS), which oversees programs such as the Grant and Per Diem (GPD) initiative, has been under scrutiny for its failure to manage and efficiently allocate resources for veterans. This report outlines the current state of veterans’ housing programs, identifies the core issues affecting these programs, and provides key recommendations for improving the situation.

Veteran Housing and Enrollment Data

One of the primary programs for housing veterans in New York City is the Grant and Per Diem (GPD) program, which provides housing for veterans in need. The Borden Avenue Veterans Residence (BAVR), located in Long Island City, is the only GPD facility in the city. This centralized facility is critical for providing shelter and services to veterans experiencing homelessness. However, the facility is facing significant challenges, with limited capacity and deteriorating conditions.

Enrollment in the GPD program has fluctuated over the past few years, with the total number of enrollees showing a slight decrease over time. From fiscal year 2023 (FY 23), which saw 243 enrollees, to fiscal year 2025 (FY 25), which had only 164 enrollees, the numbers have steadily dropped. This suggests that fewer veterans are entering the program, which could be due to a variety of factors such as changes in eligibility requirements, a reduction in available services, or the growing complexity of the application process. In addition, the program's monthly enrollment data, ranging from 116 to 159 veterans between July 2022 and January 2025, shows a general decline, reaching 124 enrollees in January 2025, down from a peak of 159 in December 2022.

While the program’s overall enrollment is declining, the number of veterans successfully exiting the program has improved. In FY 2023, 61% of veterans successfully exited the program, while 64% exited successfully in FY 2024. Notably, FY 2025 (as of January 2025) showed a significant improvement with a 72% success rate for exits. However, despite this improvement, the number of veterans exiting unsuccessfully has also increased, with 41 unsuccessful exits in FY 2024 compared to 31 in FY 2023. These statistics indicate that while the program’s success rate is increasing, more attention is still needed to address the barriers that prevent veterans from completing the program successfully.

Challenges Facing the GPD Program:

1. Mismanagement of Federal Funding: One of the most pressing issues is the mismanagement of federal funds allocated for veteran housing programs. The Borden Avenue Veterans Residence, which receives over $3.8 million in federal funding annually, has been plagued by financial inefficiencies. Reports requested through the Freedom of Information Act (FOIA) have revealed that over $400,000 in allocated funds remain unaccounted for each year. This financial mismanagement comes at a time when veterans in the GPD program are enduring poor living conditions, including a leaking roof, constant noise, and inadequate lighting. These substandard conditions highlight a deeper systemic issue with how funds are distributed and utilized within the shelter system.
2. Food Insecurity and Shelter Conditions: Veterans residing at Borden Avenue frequently report food insecurity, which further exacerbates the challenges they face in their daily lives. Meals provided to veterans are often insufficient and lacking in nutritional value, with veterans describing meals as cold and unappetizing. The kitchen at Borden Avenue is closed to residents for non-veteran culinary school classes hosted by a local non-profit, and food donations are not allowed into the facility. These restrictions prevent veterans from receiving additional support from local charities, leaving them reliant on inadequate shelter provisions. Furthermore, staff at Borden Avenue are reported to use the facility's library for staff-only events and meals, further marginalizing veterans and denying them access to essential resources.
3. Bureaucratic Red Tape and Inefficient Voucher Processing: Veterans seeking stable housing often face a complex web of bureaucratic hurdles when attempting to access housing assistance. The HUD-Veterans Affairs Supportive Housing (HUD/VASH) program, which is intended to provide rental assistance and case management to veterans, is fraught with delays. Veterans must navigate multiple agencies, including the Department of Veterans Affairs (VA) and the New York City Housing Authority (NYCHA), which often results in long wait times for assistance—sometimes stretching into months or even years. Case managers, particularly within the Department of Homeless Services, lack incentives to process housing applications efficiently, leading to many veterans being trapped in transitional shelters with no clear path to permanent housing.
4. Retaliation and Limited Access to Resources: Veterans who speak out against poor conditions at Borden Avenue often face retaliation, including removal from housing programs and transfer to less secure shelters. This creates an atmosphere of fear, where veterans are afraid to voice their concerns about subpar living conditions. Additionally, veterans are often denied access to essential resources such as the internet and library services. These services are crucial for job applications, housing searches, and communication with VA-related appointments. Veterans must request permission to access these services, which creates an unnecessary barrier to their independence.
5. Mental Health and Suicide Prevention: Mental health challenges are another major concern for homeless veterans in New York City. Veterans make up only 7% of the U.S. population but account for 22% of suicides. The stress of homelessness, combined with inadequate mental health services and the challenges of navigating the housing system, significantly contributes to the mental health crisis among veterans. Bureaucratic red tape and the limited ability for external organizations to provide support within shelters further restrict access to mental health care. This lack of support increases the risk of suicide and other mental health crises among veterans.

Recommendations for Reform: To address the issues faced by homeless veterans in New York City, several reforms must be implemented:

1. Expand CityFHEPS Voucher Eligibility: One immediate solution to alleviate the housing crisis for veterans is to expand CityFHEPS voucher eligibility. This would allow veterans to receive housing assistance without the requirement to first enter shelters. Removing this barrier would ensure that veterans can quickly access permanent housing without being forced into temporary shelters.
2. Improve Voucher Processing Efficiency: The inefficiency in processing housing applications must be addressed. Case managers should be incentivized to process applications promptly, and a dedicated team should be established to assist with paperwork and voucher processing. This would reduce the amount of time veterans spend in transitional housing and expedite their move to permanent residences.
3. Improve Shelter Conditions and Food Services: Improving shelter conditions should be a top priority. Veterans need access to adequate nutrition, clean living spaces, and resources like the internet and libraries. Work stipend programs should also be introduced to allow veterans to regain their independence while contributing to the upkeep of the shelter. Allowing greater community involvement through food donations and outreach programs would provide veterans with a sense of connection and support.
4. Address Corruption and Financial Mismanagement: Greater transparency and oversight are essential to address corruption and mismanagement within DHS and affiliated non-profits. Independent audits should be conducted regularly, and strict regulations on executive compensation should be implemented to ensure that funds are being used effectively to support veterans, rather than for administrative overhead.
5. Enhance Mental Health and Support Services: Mental health services for veterans must be expanded to meet the needs of this vulnerable population. Barriers to accessing care should be removed, and external organizations should be allowed to provide critical support services within shelters. Additionally, increased funding for mental health services would help prevent the high rate of suicide among homeless veterans.

Conclusion: New York City’s homeless veterans are facing a broken system that fails to provide the care and support they deserve. The issues of mismanagement, poor shelter conditions, and bureaucratic inefficiencies continue to hinder the success of housing programs designed to help them. Immediate action is needed to address these problems. By improving program efficiency, enhancing shelter conditions, and ensuring greater oversight of financial resources, we can provide homeless veterans with the stability, dignity, and support they need to rebuild their lives. It is not only a moral imperative but a necessary step to honor the sacrifices made by those who served our country.

Prepared by:

Timothy Pena
257 West 29^th St. #13C
New York, NY 10001
tim.pena@vetjuspro.com 
(602)663-6456