Item - 2025.EC25.9

The Economic and Community Development Committee recommends that:  

1. City Council approve the Access to Shelter Framework in Attachment 2 to the report (November 28, 2025) from the General Manager, Toronto Shelter and Support Services as the process to review and assess proposed changes to shelter eligibility, and authorize the General Manager, Toronto Shelter and Support Services, to make future adjustments to the framework, in consultation with the Human Rights Office, Confronting Anti-Black Racism Unit, Toronto Newcomer Office, and other relevant divisions and offices.

2. City Council authorize the General Manager, Toronto Shelter and Support Services and the General Manager, Toronto Employment and Social Services, to continue implementing and administering the Emergency Family Shelter Support program as set out in the report and Attachment 3 to the report (November 28, 2025) from the General Manager, Toronto Shelter and Support Services, provided that the funding for the program is available within the Operating Budget for Toronto Shelter and Support Services.

3. City Council authorize the General Manager, Toronto Shelter and Support Services and the General Manager, Toronto Employment and Social Services, to develop and implement modifications to the Emergency Family Shelter Support program as they deem necessary to:

a. ensure the Emergency Family Shelter Support program remains responsive and scalable to fluctuations in demand for family shelter space that exceeds available family shelter capacity; and

b. maintain program integrity.

4. City Council authorize the General Manager, Toronto Shelter and Support Services to enter into research agreements with individuals and external organizations for research and/or data sharing purposes, including requests for data in the custody and control of the City, and any research involving City staff or Toronto Shelter and Support Services service users, provided that:

a. the research is for the purposes of advancing system planning and transformation and informing improvements to existing policies, programs and practices; and

b. all research agreements comply with City policies and requirements of the Municipal Freedom and Information and Protection of Privacy Act, on such terms and conditions as are satisfactory to the General Manager, Toronto Shelter and Support Services, and in a form satisfactory to the City Solicitor.

5. City Council authorize the General Manager, Toronto Shelter and Support Services to enter into agreements with individuals and external organizations to use Toronto Shelter and Support Services space to conduct research for the purposes listed in Recommendation 4, above, on such terms and conditions as are satisfactory to the General Manager, Toronto Shelter and Support Services and in a form satisfactory to the City Solicitor.

6. City Council authorize the General Manager, Toronto Shelter and Support Services to provide letters of divisional support to individuals and external organizations for grant funding proposals for research projects that support the purposes listed in Recommendation 4, above.

The Director, Service System Planning and Integrity, Toronto Shelter and Support Services, and the Director, Refugee Response, Toronto Shelter and Support Services gave a presentation on Shelter Pressures and Access Initiatives - Updates

Toronto Shelter and Support Services (TSSS) continues to manage the largest municipal shelter system in Canada amidst unprecedented demand, driven by the housing affordability crisis, limited income supports, and the continued arrival of refugee claimants seeking shelter supports. In response to operational pressures City Council directed TSSS to enhance transparency, equity, and accountability in shelter access through CC28.2 - Identifying and Addressing Pressures in the Refugee and Emergency Shelter System.

This report responds to City Council’s direction to provide a status update on the implementation of all recommendations in the fourth quarter of 2025. As of November 2025, 15 of the 24 directives under CC28.2 have been completed, 4 are in progress and will be completed upon adoption of this report, and 5 remain in progress or represent ongoing work.

This report also provides updates on key initiatives related to the refugee-serving and base shelter systems, including:

- Access to Shelter Framework – A structured, transparent process guiding future decisions on shelter eligibility, aligned with the Toronto Housing Charter, human rights obligations, and equity principles. The framework was reviewed by the Confronting Anti-Black Racism Unit (CABR), the Toronto Newcomer Office (TNO), and the City's Human Rights Office, and included formal engagement with the Housing Rights Advisory Committee's (HRAC) Supporting Unhoused Rights Holders Working Group.

- Operational measures aimed at advancing establishment of a dedicated refugee service system and addressing financial pressures.

- Emergency Family Shelter Support (EFSS) Program – Short-term accommodation support for families during periods of high shelter demand to ensure children are not left unsheltered.

- Additional Council-directed Actions through CC28.2 and EC22.12 – Progress on data and outcome tracking, training, capacity building, refugee sector engagement, equity initiatives, human rights-based learning sessions, the renewal of AccessTO public education campaign for undocumented residents, and partnerships with hospitals and health care providers.

- Research and Data Sharing Partnerships – Establishing agreements with individuals, external organizations and research institutions to conduct evaluation and research to inform and develop best practices to support people experiencing homelessness. 

The report outlines next steps to implement the Framework, refine EFSS program operations, reduce pressures in the refugee service system, strengthen data-informed decision-making, continue equity-focused training, and continue advancing other recommendations under CC28.2. Together, these measures aim to improve fairness, transparency, and equitable access to shelter and housing for all Torontonians.

Toronto Shelter and Support Services (TSSS) continues to manage the largest municipal shelter system in Canada amidst unprecedented demand, driven by the housing affordability crisis, limited income supports, and continued high refugee claimant shelter demand. In response to operational pressures and the Toronto Ombudsman’s 2024 recommendations, City Council directed TSSS to enhance transparency, equity, and accountability in shelter access through CC28.2 - Identifying and Addressing Pressures in the Refugee and Emergency Shelter System.

This report responds to City Council’s direction to provide a status update on the implementation of all recommendations in the fourth quarter of 2025. It includes an overview of the progress made to date.

This report provides updates on key initiatives, including:

-  Access to Shelter Framework

-  Emergency Family Shelter Support (EFSS)

-  Operational measures aimed at advancing establishment of a dedicated refugee service system

-  Additional Council-directed Actions through CC28.2 and EC22.12

-  Research and Data Sharing Partnerships

The report also outlines next steps to implement initiatives noted above.