NYHealth Submits Testimony to the New York City Council Committee on Veterans Oversight – Serving Post-9/11 Veterans

Testimony of Camille Okonkwo
Policy and Research Associate
New York Health Foundation

Submitted to the New York City Council Committee on Veterans
Oversight - Serving Post-9/11 Veterans
April 23, 2026

Thank you, Chairperson Morano, and members of the Committees, for the opportunity to testify on behalf of the New York Health Foundation (NYHealth). NYHealth is a private, independent, statewide foundation dedicated to improving the health of all New Yorkers, including the approximately 120,000 veterans who call New York City home.

For over 15 years, NYHealth has worked to understand and support the health needs of New York's veterans. We do this through grantmaking, policy analysis, advocacy, research, and convenings. Our work has identified service gaps and helped develop innovative community-based programs that meet veterans where they are. Over the years, we have had the opportunity to partner closely with City agencies and partners to ensure New York's veterans receive high-quality, culturally competent care and support.

NYHealth has largely focused its efforts on New York's Post-9/11 generation of veterans, who are distinct due to their more recent experiences on active duty and in transitioning to civilian life. Post-9/11 veterans have now been part of our communities for more than two decades, and as they have evolved over time, so too have their needs-shifting from immediate reintegration challenges to longer-term concerns around health, mental health, economic stability, and aging.

A persistent challenge in this work is a lack of timely data that reflects specific veteran populations, including P9/11 veterans. Veterans are often treated as a monolith, masking important differences across race, gender, and other identities.[1] Through our needs assessments and targeted research, we are among the few organizations helping to fill this gap. Policymakers need more and better information to serve our veterans and use resources most effectively. Without data on veteran sub-groups, these differences, as well as the needs they reflect, are not adequately understood.

Who Are Post-9/11 Veterans?

The Post-9/11 veteran cohort represents a fundamental shift in the veteran population. Compared to earlier generations, these veterans are:

• More racially and ethnically diverse: Nearly 40% of recently separated veterans in New York identify as non-White.[1]
• More highly educated: Roughly half have a college degree or higher, due in large part to the Post-9/11 GI Bill.[2]^,[3]
• More likely to be women: Women are the fastest-growing segment of the veteran population, making up a significantly larger share than in prior eras.[4] Women now make up approximately 9% of the veteran population, up [5]^,[6]

NYHealth has invested heavily to help close knowledge gaps. In 2024, we partnered with the RAND Corporation to conduct a needs assessment of recently separated veterans in New York-the first comprehensive review of veterans' health and social service needs in 14 years. This assessment underscores the scope of need among the newest cohort of Post-9/11 veterans:

• One in three accessed mental health care in the past year.
• One in four likely has PTSD or depression.
• One in five did not receive needed mental health care.
• One in three is under 45.
• More than 60% reported having a disability and
• Nearly one in four experienced food insecurity in the past year.[8]

Recently separated veterans reported relatively high insurance coverage and access to ) health care, with 76% able to access VA services. Yet barriers to utilization remain; 75% of recently separated veterans report not knowing what benefits they are eligible for. The same proportion do not know where to get information on their benefits. Almost half of recently separated veterans (46%) believe that housing assistance and loans are helpful, but only one-fifth (19%) have used these benefits. These gaps in awareness are among the most consistent barriers identified across our work.[9]

Suicide and Deaths of Despair

Suicide remains one of the most urgent challenges facing veterans in New York, and Post-9/11 veterans are at heightened risk. NYHealth's research has found that in New York City, veterans die by suicide at roughly twice the rate of civilians.

Citywide, veterans aged 18-34, a group that largely overlaps with the Post-9/11 generation, have the highest suicide rates. Deaths of despair, which include suicide, alcohol-related disease, and drug overdose, are also significantly higher among veterans than among nonveterans. These disparities highlight the compounded risks facing veterans living in the city.[10]

Statewide, similar trends persist. Veterans die by suicide at more than twice the rate of the general population. Suicide rates among veterans aged 18-34 have nearly doubled from 2018 to 2023.[11]

Risk factors vary significantly by age as well as by race and ethnicity, gender, and geography.[12] Research from Columbia University shows that social determinants of health, such as financial strain, unemployment, neighborhood characteristics, and trauma exposure, compound suicide risk.[13]

Justice Involvement and Risk

While most military veterans transition back to civilian life without major difficulties, some encounter significant challenges post-service, including mental health conditions, substance use, and difficulties navigating complex systems of care. These challenges are particularly relevant for Post-9/11 veterans, who are younger and more likely to experience conditions such as PTSD, depression, and service-connected disabilities.

For some veterans, these challenges increase the risk of involvement in the justice system.[14] About half of incarcerated veterans report a mental health diagnosis at some time in their lives, compared to one-third of incarcerated civilians.[15]

Veterans Treatment Courts (VTCs) offer a promising intervention, providing treatment-focused alternatives to incarceration. New York City is fortunate to have VTCs operating in all 5 boroughs. Providing VTCs with the resources they need is one way to help veterans get their lives back on track.

Key Gaps and Recommendations

We know this: Post-9/11 veterans are at heightened risk for adverse outcomes, including suicide and justice involvement. Broadly, all veterans' services must be viewed through a suicide prevention lens, and planning must consider the ever-evolving needs of the most recent veterans.

To better serve Post-9/11 veterans, we urge the City to consider the following recommendations.

Improve Data Collection. Data gaps across veteran subpopulations constrain meaningful analysis and hinder effective policymaking. The Council should:

• Expand the City's disaggregated reporting on suicide and deaths of despair among veterans.
• Strengthen mortality review processes, including proposals to establish or enhance a suicide mortality review committee.
• Include veteran status in research efforts to improve transparency and accountability. Recently, the City Council voted to amend New York City's suicide reporting to explicitly include veteran status, among other demographics. If signed, the amendment to Introduced Bill 0291-2026 is an important step in gaining visibility for veteran suicides, including by sex and race/ethnicity.
• Encourage and support the widespread, consistent adoption of culturally competent screening for veteran status across health and social service settings to increase the number of veterans who self-identify.

Support Student Veterans During a Critical Transition Period. Transitioning from military to civilian life can be a particularly vulnerable period. Research shows that the first year after separation, sometimes referred to as the "deadly gap", carries the highest risk of suicide among younger veterans.[16] Increasing numbers of veterans are enrolling in post-secondary education and need tailored support. The Council should:

• Ensure access to culturally competent services on campus. Many veterans' first contact with a mental health provider is on a college campus. But when student health center staff lack an understanding of military culture and aren't attuned to the unique challenges veterans face, it can prolong or delay their treatment.

• Promote access to peer mentors. Sometimes, you don't need a health care professional; you just need someone who can relate to you, veteran to veteran, when navigating life as a student veteran. New York State has invested over $20 million to expand the successful Joseph P. Dwyer Peer Support Program across the State.

Equip the broader health system and community providers. As the VA increasingly purchases care from private providers, New York's broader health care system must be prepared to meet the unique needs of Post-9/11 veterans. The Council should:

• Strengthen access to mental health services in the community. To meet veterans where they are, NYHealth has invested in expanding access to best-in-class mental health providers, such as the Headstrong Project and the NYU Langone Military Family Center-both founded here in New York City.

• Ensure that private providers are trained to recognize military service history and understand the distinct physical and behavioral health challenges veterans may face. research with RAND found that only 2.3% of New York State's civilian health care providers met all seven criteria for 'readiness' to provide high-quality, timely, and culturally competent care to veterans.[17]

Strengthen outreach and engagement. Because some veterans who have served do not self-identify as veterans, traditional outreach methods may miss those most in need. The Council should:

• Expand community-based outreach strategies to meet younger veterans where they are. For example, we have partnered with New York Cares and the New York City Department of Veterans' Services (NYC DVS) to operate Mission: VetCheck. This program uses peer-based outreach to provide veterans with wellness check-ins, suicide screenings, and referrals to critical resources. The program has reached thousands of veterans and built a robust referral network for behavioral health, benefits counseling, and housing support.[18] The City should explore opportunities to expand upon this program model to meet the specific needs of veterans.
• Consider ways to not only connect our newest veterans to services, but also to meaningfully engage them and center their voices in shaping the policies and programs designed to serve them and build responsive, effective systems of care.

Conclusion

Post-9/11 veterans represent a generation that is more diverse and more educated, and that faces complex, interconnected challenges. Addressing these challenges will require better data, stronger coordination, and a strong emphasis on suicide prevention.

At NYHealth, we remain committed to building that evidence base and to ensuring that those who have served receive the care and support they deserve. I hope you will look to the New York Health Foundation as a partner and resource for this work. You can learn more about our veterans' health work on our website, www.nyhealthfoundation.org.

[1] Grogan N, Moore E, Peabody B, Seymour M, Williams K. 2020. New York State Minority Veteran Needs Assessment. Center for a New American Security. Commissioned by the New York Health Foundation. Available at: https://s3.us-east-1.amazonaws.com/files.cnas.org/documents/CNAS-Report-MVS-NY-Assessment-final.pdf.

[2] Ringel JS, Lejeune J, Phillips J, Robbins MW, Bradley MA, Wolf J, Timmer MJ. 2024. Understanding Veterans in New York. RAND Corporation. Commissioned by the New York Health Foundation. Available at: https://www.rand.org/content/dam/rand/pubs/research_reports/RRA3300/RRA3304-1/RAND_RRA3304-1.pdf.

[3] Ringel JS, Lejeune J, Phillips J, Robbins MW, Bradley MA, Wolf J, Timmer MJ. 2024. Understanding Veterans in New York. RAND Corporation. Commissioned by the New York Health Foundation. Available at: https://www.rand.org/content/dam/rand/pubs/research_reports/RRA3300/RRA3304-1/RAND_RRA3304-1.pdf.

[4] U.S. Department of Veterans Affairs. Post-9/11 GI Bill (Chapter 33). https://www.va.gov/education/about-gi-bill-benefits/post-9-11/, accessed April 2026.

[5] Ringel JS, Lejeune J, Phillips J, Robbins MW, Bradley MA, Wolf J, Timmer MJ. 2024. Understanding Veterans in New York. RAND Corporation. Commissioned by the New York Health Foundation. Available at: https://www.rand.org/content/dam/rand/pubs/research_reports/RRA3300/RRA3304-1/RAND_RRA3304-1.pdf.

[6] U.S. Census Bureau. (n.d.). Veteran Status. American Community Survey, ACS 1-Year Estimates Subject Tables, Table S2101. Retrieved April 20, 2026, from https://data.census.gov/table/ACSST1Y2024.S2101?q=veterans+in+New+York&t=Veterans&g=040XX00US36.

[7] U.S. Census Bureau. (n.d.). SEX BY AGE BY ARMED FORCES STATUS BY VETERAN STATUS FOR THE POPULATION 18 YEARS AND OVER [23]. Decennial Census, DEC State Legislative District Summary File (Sample), Table P039. Retrieved April 20, 2026, from https://data.census.gov/table/DECENNIALSLDS.P039?q=decennial+census+veterans+status+by+sex&g=040XX00US36.

[8] Ringel JS, Lejeune J, Phillips J, Robbins MW, Bradley MA, Wolf J, Timmer MJ. 2024. Understanding Veterans in New York. RAND Corporation. Commissioned by the New York Health Foundation. Available at: https://www.rand.org/content/dam/rand/pubs/research_reports/RRA3300/RRA3304-1/RAND_RRA3304-1.pdf.

[9] Ringel JS, Lejeune J, Phillips J, Robbins MW, Bradley MA, Wolf J, Timmer MJ. 2024. Understanding Veterans in New York. RAND Corporation. Commissioned by the New York Health Foundation. Available at: https://www.rand.org/content/dam/rand/pubs/research_reports/RRA3300/RRA3304-1/RAND_RRA3304-1.pdf.

[10] New York Health Foundation. Navigating the Crisis: Deaths of Despair and Suicide Among New York City Veterans. 2024. https://nyhealthfoundation.org/resource/nyc-deaths-of-despair-suicide/, accessed April 2026.

[11] New York Health Foundation. 2026. Data snapshot: Veteran suicide in New York State 2023 update. https://nyhealthfoundation.org/resource/data-snapshot-veteran-suicide-in-new-york-state-2023-update/

[12] New York Health Foundation. Navigating the Crisis: Deaths of Despair and Suicide Among New York City Veterans. 2024. https://nyhealthfoundation.org/resource/nyc-deaths-of-despair-suicide/, accessed April 2026.

[13] Pietrzak RH, Fischer IC, Nichter B, Esterlis I, Krystal JH, Moutier CY, Oquendo MA, Jeste DV, Na PJ. Social Determinants of Health and Suicide Risk in US Military Veterans. JAMA Psychiatry. 2026. 83(3):315-318. doi: 10.1001/jamapsychiatry.2025.3883.

[14] Sayer NA, Noorbaloochi S, Frazier P =, Carlson K, Gravely A, Murdoch M. Reintegration problems and treatment interests among Iraq and Afghanistan combat veterans receiving VA medical care. Psychiatry Services. 201061, 589-597. doi: 10.1176/ps.2010.61.6.589.

[15] U.S. Department of Justice. "Mental Health and Reentry: How Court Services Offender Agency Meets the Challenge of Mental Health Community Supervision." https://cops.usdoj.gov/html/dispatch/05-2022/mental_health_reentry.html#:~:text=Approximately%20half%20the%20people%20in,diagnosed%20with%20a%20mental%20illness\, accessed April 2026.

[16] Sokol Y, Gromatsky M, Edwards ER, Greene AL, Geraci JC, Harris RE, Goodman M. The deadly gap: Understanding suicide among veterans transitioning out of the military. Journal of Psychiatry Research. 2021. https://doi.org/10.1016/j.psychres.2021.113875.

[17] Tanielian, T., Frank, L. S., Farris, C., Batka, C., Farmer, C. M., Robinson, E., Engel, C. C., Robbins, M. W., & Vaughan, C. A. 2018. Ready or not? Assessing the capacity of New York State health care providers to meet the needs of veterans. RAND Corporation. https://nyhealthfoundation.org/resource/ready-not-assessing-capacity-new-york-state-health-providers-meet-needs-veterans/

[18] New York Health Foundation. New York Cares: Maximizing Veterans' Access to New Health Care Benefits, Phase 2. https://nyhealthfoundation.org/grantee/new-york-cares-2/, accessed April 2026.