Item - 2024.EC13.8

The Economic and Community Development Committee recommends that: 

1. City Council adopt the updated City of Toronto Interdivisional Protocol for Encampments in Toronto (IDP) in Attachment 3 to the report (May 14, 2024) from the General Manager, Toronto Shelter and Support Services, and direct City staff to implement the IDP immediately.

2. City Council authorize the General Manager, Toronto Shelter and Support Services to make any necessary clarifications, refinements, minor modifications, technical amendments to the City of Toronto Interdivisional Protocol for Encampments in Toronto (IDP) in Attachment 3 to the report (May 10, 2024) from the General Manager, Seniors Services and Long-Term Care.

3. City Council direct the General Manager Toronto Shelter and Support Services to report back on the development of a coordinated, multi-sectoral approach to supporting individuals experiencing homelessness with complex needs, in collaboration with other relevant City Divisions, health care partners and community partners. 

4. City Council reiterate its requests to the Government of Canada and Government of Ontario to establish and implement an intergovernmental and cross-departmental strategy for large scale asylum seeker arrivals and the immediate opening of a regional reception centre and interim housing strategy.

5. City Council request the Government of Ontario to fulfill the cost-matching requirement to secure 2024 federal budget funding to address the urgent issue of encampments and unsheltered homelessness.

6. City Council request the Government of Canada and Government of Ontario to provide the City of Toronto with a Canada-Ontario Housing Benefit allocation in 2024/25 of $54 million to enable 300 households to move out of homelessness each month into permanent housing and relieve pressure on the City's emergency shelter system.

7. City Council request the Government of Canada to create a dedicated Housing Benefit for refugees and asylum claimants, funded by immigration ministries allowing for quick access to housing and preventing homelessness for asylum seekers.

8. City Council request the Government of Ontario to develop a regional approach to homelessness in the Greater Toronto Area including ensuring that local governments can provide adequate and accessible shelter space for their residents.

9. City Council request the Government of Ontario to improve the adequacy of social assistance by increasing social assistance rates so that recipients are better able to meet their basic needs, including the cost of living (and housing) in Toronto.

10. City Council reiterate the Board of Health’s request to the Government of Ontario to fund low-barrier crisis stabilization spaces for people with mental health and/or substance use related issues that operate 24 hours per day, seven days per week across the city as part of a full continuum of evidence-based services, treatment and wrap around supports.

11. City Council request the Government of Ontario to provide ongoing and sustainable funding for shelter services to support individuals experiencing homelessness.

12. City Council reiterate its request to the Government of Ontario to expand on its recent commitment to partner with the City of Toronto and create new supportive homes for people experiencing or at risk of homelessness, to meet the City’s HousingTO Action Plan target of creating 18,000 new supportive homes by 2030.

13. City Council urge the Government of Canada to establish a National Encampment Response Plan as recommended in the Federal Housing Advocate's February 2024 final report.

14. City Council direct the General Manager, Toronto Shelter and Support Services to report back through the 2025 Budget process on the costs for:

a. Up to three concurrent 24/7 Community Safety Teams for large encampments; and

b.  Increasing shelter and respite capacity across the City, including temporary modular and micro-shelter options, required to fully accommodate everyone living in an encampment.

15. City Council direct the General Manager, Toronto Shelter and Support Services, to develop and implement key actions to increase access to safe, secure housing and shelter for people who are living outdoors, and respond to the unique housing needs of shelter-seekers, including:

a. Convening a roundtable meeting with refugee-serving organizations and agencies to develop a work plan to build out shelter and housing options for refugee claimants arriving in Toronto that meets their unique shelter and support needs; and,

b. Providing recommendations for a pilot program of enhanced, multi-sectoral case management support for people living outdoors with complex mental and physical health needs, including working in partnership with the Medical Officer of Health, Gerstein Crisis Centre, Family Service Toronto, and other health organizations, hospitals, and community agencies; and reporting back to the Economic and Community Development Committee in the third quarter of 2024.

16. City Council request the Government of Ontario to immediately allocate $54 million to the City of Toronto for the Year 5 administration of the Canada-Ontario Housing Benefit program, to meet demand and continue to support transitions for people living outdoors and in our shelter system to permanent housing.

The General Manager, Toronto Shelter and Support Services gave a presentation on the City's Encampment Approach and Strategy.

Toronto is experiencing a housing and homelessness crisis. Communities across Canada continue to see increases in unsheltered homelessness and encampments since the beginning of the COVID-19 pandemic. Encampments are a symptom of the housing crisis, shelter demand that exceeds availability, increasing costs of living, inadequate income supports, and other social crises such as the drug toxicity and mental health crisis.

The City believes that permanent, adequate, affordable, and supportive housing is the solution to homelessness and is committed to advancing the progressive realization of the right to adequate housing as set out in the Toronto Housing Charter. Encampments do not meet the human right to housing and are not a long-term solution to homelessness. While the City continues to work towards permanent housing solutions, it is critical that we continue to support people living in encampments, who are among the most vulnerable in our city.

The purpose of this report is to present the City’s strategic approach to encampments that is grounded in a human rights approach while supporting the safety and well-being of people living in encampments and surrounding communities. Key components of this approach include:

a. Expanding the enhanced housing-focused outreach and support mode

b. Exploring new service models for people in encampments

c. Enhancing safety in the shelter system for staff and clients

d. Increasing permanent housing opportunities and shelter system flow

This report also provides an update on the City’s implementation of recommendations in the Ombudsman Toronto’s interim and final reports on encampments and seeks City Council approval of the attached City of Toronto Interdivisional Protocol for Encampments in Toronto, updated based on extensive engagement with people with lived experience of homelessness in encampments, and City and community stakeholders and partners.

From a human rights-based approach, and consistent with what we heard from extensive stakeholder engagement, addressing the urgent issue of encampments requires a multi-divisional and sectoral approach and the commitment of all levels of government, community, and other stakeholders to invest in comprehensive public, social and health-related supports.

The Economic and Community Development Committee recommends that: 

1. City Council adopt the updated City of Toronto Interdivisional Protocol for Encampments in Toronto (IDP) in Attachment 3 to the report (May 14, 2024) from the General Manager, Toronto Shelter and Support Services, and direct City staff to implement the IDP immediately.

2. City Council authorize the General Manager, Toronto Shelter and Support Services to make any necessary clarifications, refinements, minor modifications, technical amendments to the City of Toronto Interdivisional Protocol for Encampments in Toronto (IDP) in Attachment 3 to the report (May 10, 2024) from the General Manager, Seniors Services and Long-Term Care.

3. City Council direct the General Manager Toronto Shelter and Support Services to report back on the development of a coordinated, multi-sectoral approach to supporting individuals experiencing homelessness with complex needs, in collaboration with other relevant City Divisions, health care partners and community partners. 

4. City Council reiterate its requests to the Government of Canada and Government of Ontario to establish and implement an intergovernmental and cross-departmental strategy for large scale asylum seeker arrivals and the immediate opening of a regional reception centre and interim housing strategy.

5. City Council request the Government of Ontario to fulfill the cost-matching requirement to secure 2024 federal budget funding to address the urgent issue of encampments and unsheltered homelessness.

6. City Council request the Government of Canada and Government of Ontario to provide the City of Toronto with a Canada-Ontario Housing Benefit allocation in 2024/25 of $54 million to enable 300 households to move out of homelessness each month into permanent housing and relieve pressure on the City's emergency shelter system.

7. City Council request the Government of Canada to create a dedicated Housing Benefit for refugees and asylum claimants, funded by immigration ministries allowing for quick access to housing and preventing homelessness for asylum seekers.

8. City Council request the Government of Ontario to develop a regional approach to homelessness in the Greater Toronto Area including ensuring that local governments can provide adequate and accessible shelter space for their residents.

9. City Council request the Government of Ontario to improve the adequacy of social assistance by increasing social assistance rates so that recipients are better able to meet their basic needs, including the cost of living (and housing) in Toronto.

10. City Council reiterate the Board of Health’s request to the Government of Ontario to fund low-barrier crisis stabilization spaces for people with mental health and/or substance use related issues that operate 24 hours per day, seven days per week across the city as part of a full continuum of evidence-based services, treatment and wrap around supports.

11. City Council request the Government of Ontario to provide ongoing and sustainable funding for shelter services to support individuals experiencing homelessness.

12. City Council reiterate its request to the Government of Ontario to expand on its recent commitment to partner with the City of Toronto and create new supportive homes for people experiencing or at risk of homelessness, to meet the City’s HousingTO Action Plan target of creating 18,000 new supportive homes by 2030.

13. City Council urge the Government of Canada to establish a National Encampment Response Plan as recommended in the Federal Housing Advocate's February 2024 final report.

14. City Council direct the General Manager, Toronto Shelter and Support Services to report back through the 2025 Budget process on the costs for:

a. Up to three concurrent 24/7 Community Safety Teams for large encampments; and

b.  Increasing shelter and respite capacity across the City, including temporary modular and micro-shelter options, required to fully accommodate everyone living in an encampment.

15. City Council direct the General Manager, Toronto Shelter and Support Services, to develop and implement key actions to increase access to safe, secure housing and shelter for people who are living outdoors, and respond to the unique housing needs of shelter-seekers, including:

a. Convening a roundtable meeting with refugee-serving organizations and agencies to develop a work plan to build out shelter and housing options for refugee claimants arriving in Toronto that meets their unique shelter and support needs; and,

b. Providing recommendations for a pilot program of enhanced, multi-sectoral case management support for people living outdoors with complex mental and physical health needs, including working in partnership with the Medical Officer of Health, Gerstein Crisis Centre, Family Service Toronto, and other health organizations, hospitals, and community agencies; and reporting back to the Economic and Community Development Committee in the third quarter of 2024.

16. City Council request the Government of Ontario to immediately allocate $54 million to the City of Toronto for the Year 5 administration of the Canada-Ontario Housing Benefit program, to meet demand and continue to support transitions for people living outdoors and in our shelter system to permanent housing.

The General Manager, Toronto Shelter and Support Services gave a presentation on the City's Encampment Approach and Strategy.

Toronto is experiencing a housing and homelessness crisis. Communities across Canada continue to see increases in unsheltered homelessness and encampments since the beginning of the COVID-19 pandemic. Encampments are a symptom of the housing crisis, shelter demand that exceeds availability, increasing costs of living, inadequate income supports, and other social crises such as the drug toxicity and mental health crisis.

The City believes that permanent, adequate, affordable, and supportive housing is the solution to homelessness and is committed to advancing the progressive realization of the right to adequate housing as set out in the Toronto Housing Charter. Encampments do not meet the human right to housing and are not a long-term solution to homelessness. While the City continues to work towards permanent housing solutions, it is critical that we continue to support people living in encampments, who are among the most vulnerable in our city.

The purpose of this report is to present the City’s strategic approach to encampments that is grounded in a human rights approach while supporting the safety and well-being of people living in encampments and surrounding communities. Key components of this approach include:

a. Expanding the enhanced housing-focused outreach and support mode

b. Exploring new service models for people in encampments

c. Enhancing safety in the shelter system for staff and clients

d. Increasing permanent housing opportunities and shelter system flow

This report also provides an update on the City’s implementation of recommendations in the Ombudsman Toronto’s interim and final reports on encampments and seeks City Council approval of the attached City of Toronto Interdivisional Protocol for Encampments in Toronto, updated based on extensive engagement with people with lived experience of homelessness in encampments, and City and community stakeholders and partners.

From a human rights-based approach, and consistent with what we heard from extensive stakeholder engagement, addressing the urgent issue of encampments requires a multi-divisional and sectoral approach and the commitment of all levels of government, community, and other stakeholders to invest in comprehensive public, social and health-related supports.