Toronto’s homeless shelters have become more violent. A new study suggests how to make them safer

As Toronto’s homeless shelters have weathered a growing number of critical incidents — from violence to overdoses — researchers are calling for nearly two dozen interventions to bolster safety, including giving priority access to housing for the small number of people involved in hundreds of critical cases. 
In a two-year study presented Tuesday to a city council committee, researchers from the Centre for Addiction and Mental Health highlighted parallel increases in violent incidents, as well as individuals barred from shelters in recent years — increases that outpace the growth in the system overall.
Crowding, inadequate mental health supports, a heightened toll from street substances like methamphetamine, and more intangible reasons such as feelings of hopelessness were all factors, the study noted. There were 1,914 “critical incidents” in 2011 — 1,071 involving allegations of violence — and 9,982 incidents in 2021, 4,102 of which alleged violence.
Meanwhile, service restrictions — or the practice of kicking someone out of a shelter and barring them for a period of time — climbed from 6,026 in 2014 to 8,037 in 2021, though numbers have since dropped to 4,103 in 2023, it says.
These restrictions can yield serious consequences, the study said, from broken ties with health and housing workers to occupants winding up unsheltered for lack of available beds elsewhere. The study echoes many concerns raised in recent years by advocacy groups for shelter users. 
The researchers suggested a series of changes to boost safety, including more focus on cramped conditions and more intensive mental health supports.  
“Shelters are a core component of homeless service systems. It is imperative that these services be safe and accessible for people experiencing homelessness, as well as the staff who work there,” the study urged.
But the researchers also flagged a more concentrated problem, with a small number of shelter users involved in hundreds of incidents. As of 2021, their data shows the same 17 people had 522 service restrictions — most lasting around a month — or 6.5 per cent of the year’s total. Nine of the 17 were under age 25.
Further, the study found the same 24 people in 2021 were involved in 638 “critical incidents.” While some of those incidents were alleged to be violent behaviour, the data also points to the concentrated toll of Toronto’s opioid crisis — with 65 documented overdoses in one year between just four people. 
The study urged more focus on higher-needs users, suggesting they be prioritized for supportive housing — a form of affordable home with services such as mental and physical health care. Toronto should also develop a specialized shelter for those with deep histories of violence and restrictions, the researchers said.
Speaking with reporters on Tuesday, CAMH researcher Nick Kerman noted those targeted supports weren’t only a benefit to higher-needs individuals — they could also free up staff time to work with other occupants. 
“One of the things we heard from staff is there are some individuals in our shelters that they felt we really don’t have the capacity to support well,” he said. “How can we ensure those individuals are getting the support they need, while reducing some of the burden on staff that are doing a really difficult job?”
Gord Tanner, the head of Toronto’s shelter department, said it was challenging to balance considerations like fairness when prioritizing one group for housing — given the “scarce resources” at the city’s disposal — but said staff worked to allocate spaces with more intense support to individuals with that level of need.
Work is already underway to address some of the issues raised in the report, Tanner told committee, and staff were working towards a new shelter safety action plan, which will aim to implement the CAMH recommendations.
Committee members have requested an update on that work by year’s end.