Toronto Ombudsman Report Finds City’s Decision to Exclude Refugees from Base Shelter Beds was Unfair and Harmful

A new report from Toronto’s Ombudsman Kwame Addo finds that the City of Toronto’s decision to stop allowing refugee claimants access to its base shelter beds was unfair, poorly planned, and inconsistent with its commitments to transparency, accountability, and the human right to adequate housing.

“This report underscores the vital importance of the City upholding its commitments to fairness and accountability,” says Addo. “Decisions that affect access to critical services and housing rights must be transparent, equitable, and grounded in sound planning. In this case, the City fell short.”

But this was not just a failure of process—it was a decision with profound real-life consequences. “For refugee claimants,” says Addo, “The City’s decision played a significant role in the emotional distress they experienced. This left many feeling othered, invisible, and unwelcome in a city they hoped would provide safety and support.”

The investigation, conducted by Ombudsman Toronto’s newly established Housing Unit, identified several problems with the City’s decision-making and implementation, including:

• The decision went against key City policies, namely the Toronto Housing Charter, Access T.O., and the Toronto Shelter Standards, which are designed to ensure all people can access services, especially those in vulnerable situations.

• Refugee claimants were referred to federal services that City staff knew were not available, and at least some refugees were turned away from City shelters even when beds were available, according to City staff.

• The decision lacked proper documentation, leaving no clear record of who approved it and why; the decision was not implemented with a clear or accountable process.

• City staff received unclear instructions and inadequate guidance, leading to confused implementation of the decision.

• Although unintended, the decision systemically discriminated on the basis of citizenship and race, contrary to the Housing Charter, the Human Rights and Anti-Harassment/Discrimination Policy, and the Ontario Human Rights Code. It constituted anti-Black racism, as many or most affected refugee claimants were from African countries or of African descent.

The report further finds that this unfairness was prolonged for two months when staff delayed implementing City Council’s reversal of the decision.

Ombudsman Addo acknowledges the immense pressures facing Toronto’s shelter system and the dedication of City staff delivering shelter services during a difficult time. He also underscores the critical need for all orders of government to address the housing crisis. However, Addo emphasizes that “these pressures cannot justify decisions that compromise dignity and human rights. Fairness must always remain at the forefront, even in the most challenging times.”

The report made 14 recommendations to improve fairness, transparency, and the City’s adherence to the human right to adequate housing in its decision-making processes. Key recommendations include:

• Developing clear processes for documenting and communicating eligibility changes that affect refugee claimants.

• Providing training for staff on the City’s own Anti-Black Racism Analysis Tool and on housing as a human right.

• Consulting with refugee-claimant-serving organizations and affected communities before implementing significant changes.

• Strengthening accountability and oversight mechanisms to ensure decisions align with the City’s previously-established commitments and policies.

Despite the Ombudsman’s findings, the City Manager has stated that he does not accept the report and will not direct the City to implement the recommendations. Addo is concerned about this stance, emphasizing the importance of addressing the issues raised.

“The City’s refusal to act on these findings is troubling,” said Addo. “Accountability is a cornerstone of good governance, and addressing these issues is critical to restoring public confidence and ensuring all residents are treated with dignity. True accountability requires meaningful action.”

Addo continues, “It is especially disappointing that the City views the right to adequate housing in its Housing Charter as merely aspirational. During a housing crisis of this magnitude, we need stronger action and a commitment to putting these principles into practice.”

The Ombudsman will present the report at the December meeting of City Council, and will ask Council to direct City staff to implement the recommendations.

“My office launched this investigation because the public had serious questions about what happened with this decision and why. They needed and deserved clear answers,” says Addo. “The findings in this report provide those answers and clear path forward. Now, the City has the opportunity to act.”

The full report, including detailed findings and recommendations, is available at An Investigation into the City’s Decision to Stop Allowing Refugee Claimants into Base Shelter System Beds – Ombudsman Toronto.

For more information, contact:

Alex Kruger
Ombudsman Toronto
Office: 416-338-3023
Cell: 647-472-0873
alex.kruger@toronto.ca

Ombudsman Toronto listens to and investigates people’s complaints and concerns about City of Toronto administration and the fairness of City services. We are a free and impartial office that operates independently from the City, holding it accountable to the people it serves.