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Council staff reminds attendees to silence electronic devices, not approach the dais, and sign up for public testimony with the Sergeant-at-Arms.
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New York City Council
Oversight - Support and Programs for LGBTQ+ Veterans
Read summaries and jump into the video at the segment start.
Council staff reminds attendees to silence electronic devices, not approach the dais, and sign up for public testimony with the Sergeant-at-Arms.
Chair Frank Morano opens the hearing, introduces himself as chair of the Veterans Committee, and thanks attendees joining in person, via Zoom, and on cable television.
Morano introduces the oversight topic of programs and services for LGBTQ+ veterans, emphasizing that veterans' issues should be nonpartisan and highlighting bipartisan cooperation on the committee.
Morano details unique challenges facing LGBTQ+ veterans including higher rates of PTSD, sexual assault victimization, and lingering effects post-DADT repeal, vowing the committee will not accept the status quo.
Morano outlines his goals for the hearing: developing a playbook for legislative action, public awareness, and fixing problems facing LGBTQ+ veterans.
Morano congratulates retired Sergeant First Class Dominic Pepe from Woodhaven for his induction into the New York State Veterans Hall of Fame.
Morano recounts the legacy of James Jimmy Zappalordi, a gay Vietnam War veteran murdered in Staten Island, whose case became the borough's first officially designated hate crime and inspired the NY State Hate Crimes Act of 2000.
Morano presents statistics on LGBTQ+ service members discharged between 1980 and 1993 and under DADT, noting over 13,000 were denied benefits, recognition, and dignity despite their service.
Morano discusses ongoing inequities including the 2025 transgender service ban, higher rates of mental health challenges, suicide, PTSD, chronic illness, and military sexual trauma among LGBTQ+ veterans.
Morano highlights major data gaps, noting 89% of VA records lack gender identity information, making LGBTQ+ veterans largely invisible in official counts, with national estimates around 1 million and NY State estimates around 70,000.
Morano introduces Intro 914, his bill requiring a study and recommendations on the feasibility of a pilot program for reconsolidation of traumatic memories (RTM) therapy for veterans.
Morano explains Intro 914 was originally introduced by former chair Bob Holden, passed committee but never voted on by full council. He expresses openness to amending the bill based on testimony and notes the therapy has been controversial.
Morano introduces Intro 928, sponsored by Minority Leader David Carr, which would amend the administrative code to establish an LGBTQ liaison within the Department of Veterans Services, and invites Carr to speak.
Carr thanks Morano for his leadership of the Veterans Committee, praises his energy and determination, and discusses the importance of supporting veterans who risked their lives for the nation. He also thanks Commissioner Mata for engagement on Staten Island veteran issues.
Carr discusses the history of Don't Ask, Don't Tell, noting that between WWII and DADT's 2011 repeal, an estimated 114,000 service members were discharged based on sexual orientation, and argues everyone should be allowed to serve openly.
Carr explains that veterans discharged under DADT received less than honorable discharges, denying them GI education benefits, VA health benefits, burials in VA National Cemeteries, and other essential benefits.
Carr describes the burdensome process for veterans to correct discharge records, requiring assembly of old records, attorney assistance, waits of 18+ months, and costly court appeals, with unclear numbers of NY veterans still impacted.
Carr discusses Local Law 4 of 2022 which extended city veteran benefits to LGBTQ-discharged veterans and required DVS to offer discharge upgrade assistance. He explains Intro 928 would codify an LGBTQ liaison, require annual reporting, and help address the data problem by encouraging veteran self-identification.
Morano acknowledges Councilmember Carmen De La Rosa for her effectiveness and mentorship, and Councilmember Phil Wong for his perfect attendance record and recent district visit, joking about a bagel competition.
Morano thanks committee staff including legislative counsel Hannah Cohn, policy analyst Maknur Butte, financial analyst Margaret Barnsley, community associate Sebastian Neme, data analyst Colby Porter, Mohamed Shadid, and Kyla Dash, as well as his own staff.
Morano introduces four DVS representatives, and committee counsel administers the oath to the administration witnesses before testimony begins.
Commissioner Yesenia Mata introduces herself, thanks the committee for its partnership, and states that today's hearing is about ensuring LGBTQ+ veterans know they are welcome and that DVS is here to support them.
Mata addresses terminology nuances, noting city administrative code references LGBTQ+ populations specifically. She discusses her own service as an Army Reserve captain and the diversity of veterans across race, ethnicity, religion, gender identity, and sexual orientation.
Mata states DVS supports the goals of Intro 914A but notes the need for amendments to ensure operational feasibility, and fully supports Intro 928, noting DVS has already designated two LGBTQ liaisons: Dana Parrott and Michael Lopez.
Mata presents statistics on LGBTQ+ veteran populations, noting approximately 1.9 million LGBTQ+ adults who are veterans nationally including 37,000 transgender veterans, with LGBTQ+ veterans more likely to have served in the post-9/11 era.
Mata discusses challenges faced by LGBTQ+ veterans including discrimination, housing instability, barriers to health care, social isolation, and the impact of DADT and transgender service restrictions. She notes 36% of LGBTQ+ veterans avoid VA services due to perceived bias.
Mata discusses DVS exploring a certificate of eligibility for LGBTQ+ veterans and highlights the discharge upgrade and legal services program (DULS), noting 38 LGBTQ+ veterans sought legal assistance in FY2026. She mentions partnerships with SAGE Vets and Stonewall Veterans Association.
Morano asks how many veterans have interacted with each LGBTQ liaison over the last 12 months. Mata explains DVS does not ask gender identity questions directly, and Nicole elaborates that liaison Dana attends community events in addition to one-on-one client work.
Morano asks how DVS measures the effectiveness of existing liaisons. Mata says DVS is working on better intake processes to capture gender identity and demographic data, noting the lack of such data is appalling.
Morano asks what operational changes Intro 928 would create given DVS already has two liaisons. Mata and Nicole explain the bill would add reporting requirements beyond just discharge upgrades, capturing broader community needs and outreach data.
Morano asks how many outreach events specifically targeted LGBTQ+ veterans were conducted. Nicole reports three targeted events in the last fiscal year plus monthly Veterans Mental Health Coalition meetings covering LGBTQ+ topics.
Wong asks about veterans reluctant to identify as LGBTQ+ due to past discrimination. Mata discusses the need for awareness campaigns led by directly impacted individuals and the challenge of self-identification, noting DVS lacks specific data.
Wong asks how DVS plans to find LGBTQ veterans for the certificate of eligibility if identification is difficult. Nicole explains the certificate would serve as a safe space where veterans can verify service without showing DD-214s that reveal DADT discharges.
Wong asks about outreach to health clinics like those on Flushing Avenue. Mata and Noah Bray explain DVS connects veterans to VA, NYC Health and Hospitals, Pride Health Centers, and Northwell, emphasizing the importance of building rapport through claims agents.
Wong asks if DVS needs help connecting to LGBTQ nonprofits. Mata welcomes the support, discusses staff training on organizing with LGBTQ+ community, and mentions revamping partner intake processes.
Morano asks about the 38 LGBTQ+ veterans who sought discharge upgrade assistance in FY26. Nicole reports about 20 cases remain pending and 8 discharge upgrades were completed in the last two fiscal years.
Morano asks about average case duration and barriers. Nicole explains cases take one to three years, with barriers including scattered records, agency reluctance to share information, and trauma requiring mental health support during the process.
Morano asks how many potentially eligible veterans remain unaware of the discharge upgrade program. Mata and Nicole discuss the need for better awareness campaigns and note an anticipated increase due to the trans ban, with targeted messaging being developed.
Morano asks about the certificate of eligibility. Nicole explains it would cover four city benefits requiring DD-214 presentation, allowing veterans to present a certificate instead of a discharge paperwork showing DADT-related status.
Morano asks if legislation is needed for the certificate and how eligibility is determined. Nicole confirms it falls under DVS's charter authority, requires no new legislation, and would be executed by the LGBTQ+ claims liaison with a target of mid-next year for implementation.
Morano asks how DVS has implemented Local Law 4 of 2022, which requires DVS to assist LGBTQ+ veterans seeking discharge upgrades. Nicole describes partnerships with VAP and NILAG, timely referrals, and plans for more direct outreach to contractors.
Morano asks why male veterans contacted DVS for discharge upgrade assistance at higher rates than other genders. Mata attributes this to self-identification challenges and the need for better awareness campaigns, especially for women and LGBTQ+ veterans.
Morano asks why Navy veterans contacted DVS for discharge upgrades at higher rates. Nicole hypothesizes it relates to outreach targeting but says DVS is looking at how different tactics might affect the numbers.
Morano asks about the FY25 spike in discharge upgrade seekers. Nicole reports no similar trend in FY26 but notes increased need compared to FY22, attributing the spike to better outreach, stronger partnerships, and the federal landscape including the trans ban.
Morano asks about differences in veterans discharged pre vs. post DADT repeal seeking upgrades. Nicole says they are tracking this anecdotally, seeing veterans come in due to the trans ban, and are preparing for increased engagement.
Wong asks about transgender discharges between 2000-2014 and how DVS relays eligibility messages. Nicole and Noah explain the current trans ban discharges for gender dysphoria diagnosis and the challenge of reaching back out to veterans who were discharged for their identity.
Wong asks about surviving spouses of LGBTQ veterans' eligibility for benefits and outreach. Noah Bray says they are creating subject matter experts for surviving spouse claims and that eligibility is typically yes but very nuanced based on individual circumstances.
Wong asks about proving marriage relationships for surviving spouses when paperwork may not exist. Noah confirms this is a challenge and that cases are very individualistic depending on factors like length of cohabitation and age. Nicole notes DVS is not aware of any surviving spouses denied benefits.
Morano asks how many veterans DVS serves self-identify as LGBTQ+. Nicole confirms DVS does not currently collect that information in intake but is exploring updates. Mata emphasizes the importance of holistic data collection.
Mata discusses DVS targets for increasing engagement, emphasizing the need to understand veterans holistically beyond just military status. She wants to develop intake processes that capture gender identity and background with input from LGBTQ+ veteran advocates.
Morano asks what data DVS wishes it had but doesn't collect. Nicole identifies demographic data and the unemployment rate for NYC veterans as key missing data points, noting even BLS only tracks this at the state level.
Mata and Nicole discuss Local Law 37 data collection efforts, including recommendations to improve questionnaire language and working with larger agencies to execute MOUs for timely data sharing across city agencies.
Morano asks how DVS knows whether outreach efforts are succeeding. Mata discusses upgrading referral tracking systems and developing case management to follow outcomes. Nicole notes increased engagement through social media, newsletters, roundtables, and VAB meetings.
Morano asks which partnerships generate the highest referrals. Nicole identifies SAGE as the primary referral source for LGBTQ+ veterans, and notes VA and city agencies like the Office to End Gender-Based Violence and Department of Finance for general referrals.
Morano asks about borough-level partnership network differences. Mata discusses the uniqueness of each borough and the need to better reach non-veteran-designated nonprofits. Nicole highlights staff borough representation as key to forging local relationships.
Donnie Smalls highlights strong housing partnerships in Queens and the Bronx, and work with Councilmember Yusef-Salaam in Manhattan. Noah Bray praises the Vallone Initiative, library community, VFW, and American Legion as key claims-side partners across boroughs.
Morano asks about trauma treatment needs unique to LGBTQ+ veterans. Nicole identifies gaps in VA-provided services and mentions conversations with the Staten Island Pride Center about non-traditional therapies available to veterans.
Morano asks if DVS has encountered veterans who might benefit from RTM therapy. Nicole says DVS believes veterans could benefit but, as a non-healthcare agency, believes the pilot study would be non-feasible for DVS and suggests Health and Hospitals as a better partner.
Morano asks if DVS differentiates PTSD treatment by trauma type. Nicole explains it depends on severity and crisis level, with sustained support evaluated based on eligibility criteria. Noah describes how claims agents connect veterans to specialized mental health partners.
Morano asks about coordination with DOHMH and Health + Hospitals. Nicole describes connections to Pride Health Centers in each borough except Staten Island, providing local LGBTQ+ affirming healthcare access for veterans.
Morano asks about health disparities requiring additional attention. Nicole identifies increased chronic illness among LGBTQ+ veterans and the need for more accessible HIV and STI testing through expanded partnerships.
Morano asks about efforts to connect military sexual trauma survivors to trauma-informed services. Noah describes claims agent training to identify triggers and connect veterans to specialized mental health partners. Nicole highlights coordination with VA MST coordinators and the mayor's office to end gender-based violence.
Morano asks about reducing stigma for MST survivors including LGBTQ+ veterans and male victims. Mata discusses humanizing veterans, creating awareness through social media, and letting veterans know it's okay to seek help. Nicole emphasizes nontraditional engagement like service animal events.
Morano asks which city agencies DVS most frequently coordinates with for LGBTQ+ veterans. Nicole identifies the mayor's office to end gender-based violence for MST cases, plus DHS and DSS for housing. Donnie Smalls describes his direct line to the gender-based violence office and creating safe spaces for veterans.
Mata discusses partnerships with the Department of Aging and Disability to support the increasing aging veteran population and veterans with disabilities, noting both commissioners are from Staten Island.
Morano asks about federal and state policy changes DVS is monitoring. Nicole identifies the trans ban with evolving discharge guidelines, the abortion ban in VA hospitals, and proposed cuts to sleep apnea and tinnitus benefits in the Take Care of America's Veterans Act.
Morano asks what the most urgent challenge is and what action the council should take. Nicole identifies discharge upgrades and sustained funding for legal service providers as most urgent. Mata emphasizes the need for better data systems to identify and serve LGBTQ+ veterans.
Wong asks how often DVS meets with federal veteran services officers on Houston Street. Noah Bray reports liaising with them almost daily and visiting the Houston Street office at least every two weeks.
Morano thanks all four DVS representatives for their testimony, energy, and nonpartisan advocacy on behalf of New York City's veteran community.
Morano opens the floor for public testimony, reminding attendees of formal proceeding rules including silence, no video recording from the witness table, three-minute time limit, and written testimony submission procedures.
Morano calls the first public panel: Brian Ellicott-Cook from SAGE, Amelia Cobbs from the New York Health Foundation, and Coco Culhane from the Veteran Advocacy Project.
Brian Ellicott-Cook of SAGE testifies about the SAGE Vets program serving LGBTQ+ veterans age 50+, sharing stories of veterans who found community, housing support, and grief processing. He reports 118 programs with 4,000+ attendees in the past year and supports both Intro 914 (with amendments) and Intro 928.
Amelia Cobbs of the New York Health Foundation testifies about incomplete data collection, worse mental health outcomes for queer veterans, and a suicide rate more than twice the overall veteran population. She notes recent VA policy changes ending gender identity initiatives and the closure of the NYU Military Family Clinic, urging the city to close data gaps and strengthen outreach.
Morano asks Cobbs if there are health care access issues the committee hasn't touched on. Cobbs emphasizes the importance of the city remaining a safe environment and keeping queer veterans a priority population, offering to follow up with colleagues.
Coco Culhane of the Veteran Advocacy Project testifies in support of DVS programs but strongly opposes Intro 914, citing poor research quality, bias in RTM studies, lack of peer-reviewed evidence, conflicts of interest involving Dr. Burke, and the closure of evidence-based programs while city funds go to unproven therapies.
Morano questions Culhane on why a pilot study would be problematic given it would generate data. Culhane argues the city is already funding RTM, evidence-based programs are shutting doors, and no academic institution is willing to fund RTM research, questioning why the city should fund what experts won't.
Morano asks Culhane about alternative treatments that should be prioritized. Culhane defers on medical expertise but mentions CBT and prolonged exposure as established options, emphasizing the importance of letting veterans choose with their providers.
Joe Bellow of NY Metro Vets testifies with concerns about both bills. On Intro 914, he argues DVS is not a healthcare agency and evaluating medical modalities opens a Pandora's box. On Intro 928, he questions why one community gets a codified liaison while others don't, and asks what the liaison would do that DVS doesn't already do.
Morano questions Bellow on Intro 928, asking what mechanism would protect LGBTQ+ liaisons if a future administration eliminated them. Bellow questions whether codifying one liaison opens the door for every subgroup to demand their own, and emphasizes veterans should be served as veterans first.
Timothy Pena of the Veterans Justice Project testifies as a veteran living with HIV who experienced homelessness. He describes fear of disclosure at Borden Avenue Veterans Residence, stigma, 1,365 emergency calls in 16 months, and argues that privacy, dignity, trust, and accountability are as important as housing for vulnerable LGBTQ+ veterans.
Morano delivers closing remarks, thanking all testifiers and noting the low turnout of five public witnesses. He calls for broader veteran participation in future hearings, notes no current council member is a military veteran, and urges advocates to help spread the word about upcoming hearings on mental health and small business issues.
Morano thanks attendees, notes Councilmember Wong stayed for the entire hearing, and adjourns the hearing.