Strategic Plan 2026-2029
A Fair Future: Strengthening fairness, accountability and public trust in Canada’s most diverse city
Foreword
Ombudsman Toronto plays a unique and vital role in the life of Toronto — a city defined by its scale, diversity and complexity. As Canada’s most ethno-racially culturally diverse city, Toronto relies on public systems that are fair, accessible and responsive to the people they serve. When those systems fall short, the consequences are felt most acutely by those already facing barriers.
Ombudsman Toronto exists to help ensure fairness in how the City administration delivers services and makes decisions. When regular channels have not worked, my office listens to concerns, investigates impartially and recommends practical improvements that strengthen public trust and accountability.
Over the past several years, the context in which we work has changed significantly. The City is navigating profound challenges related to housing, homelessness, mental health, public safety and access to services. At the same time, public expectations of transparency, equity and accountability have grown. Our mandate has expanded to include oversight of housing rights and the systemic review of police policies, deepening both our impact and our responsibility.
Fairness is not experienced equally. Our work consistently shows that unfairness often has a disproportionate impact on people because of who they are, where they live or how they are positioned within systems. In this way, fairness and human rights are inseparable. This strategic plan sets out how Ombudsman Toronto will continue to meet our mandate in this evolving environment. It reflects extensive engagement with staff and partners, and it charts a course that strengthens our independence, modernizes how we work and enhances our ability to address systemic issues before harm becomes entrenched.
Guided by three strategic directions — unify, solidify and shift — we are committing to operate as one cohesive office, safeguard our independence and move toward more proactive, data-informed oversight. These priorities are grounded in our responsibility to the public and in our belief that strong, fair institutions are essential to a City that works for everyone.
We are proud of the impact Ombudsman Toronto has had to date, and we recognize the responsibility that comes with our role. This plan reflects our commitment to continuous improvement, principled oversight and collaboration in service of a fairer Toronto.
We are your office.
Kwame Addo, Ombudsman
“Ombudsman Toronto exists to help ensure fairness in how the City administration delivers services and makes decisions. When regular channels have not worked, my office listens to concerns, investigates impartially and recommends practical improvements that strengthen public trust and accountability.”
— Ombudsman Kwame Addo
Responding to
rising
demand and
complexity
Since our establishment in 2009, Ombudsman Toronto has grown alongside the City we serve. The number of complaints brought to our office has increased steadily, reflecting Toronto’s population growth, the expanding scope of City services and rising public expectations of fairness, transparency and accountability.
As Toronto has become more complex, so too have the issues people bring forward to us. Complaints increasingly intersect with housing instability, mental health and addiction, public safety and access to essential services. Many residents turn to our office after navigating multiple systems without resolution, often at moments of significant personal stress.
In response, we have taken on an expanded mandate. Our office now plays a key role in overseeing the human right to adequate housing and conducting systemic reviews of police policies and procedures. Through this work, we have demonstrated our ability to respond to emerging fairness issues and to address concerns that extend beyond individual cases to broader systemic impacts.
At the same time, Ombudsman Toronto continues to operate in a constrained resource environment. Compared to other large Canadian ombuds offices, we serve one of the largest populations with a relatively small team. This has required our office to use our mandate carefully and strategically, balancing responsiveness to individual complaints with the ability to identify and address issues that affect many people.
Together, these pressures have shaped how Ombudsman Toronto works today and point clearly to the need for greater focus, coherence and strategic use of our authority. The priorities set out in this strategic plan build on our office’s track record of impact and position us to respond effectively to rising demand and complexity — strengthening fairness, accountability and public trust in Toronto’s systems for the benefit of everyone who relies on them.
Since our founding 17 years ago
207%
Increase in cases since 2009
39,300+
Cases handled since 2009
52
Formal reports since 2009
610+
Recommendations made since 2009
Expanded mandate, including housing rights oversight and systemic police policy review
Ombudsman Toronto has one of the lowest ratios of staff per capita compared to other Canadian ombudsman offices
Strategic
directions
Over the next three years, Ombudsman Toronto will focus on strengthening how fairness is delivered, protected and advanced across the City. Building on a strong record of impact, this strategic plan sets out a clear and disciplined approach to meeting rising demand, safeguarding independence and addressing systemic issues with greater intention and insight.
The three strategic directions — unify, solidify and shift — reflect a commitment to operate as one cohesive office, to actively protect the integrity of the Ombudsman role and to shift toward more proactive, data-informed oversight. Together, they provide a practical and principled roadmap for ensuring Ombudsman Toronto remains a trusted, independent and effective part of Toronto’s accountability framework — today and into the future.
Our vision of a City of Toronto that treats all people fairly is our mandate, and through this plan, it is our reinvigorated pledge.
Unify
Build one cohesive, modern, equity-centred Ombudsman office
Ombudsman Toronto has expanded significantly in mandate, scope, volume and complexity since our inception. The addition of human rights-based housing oversight and systemic review of police policies has strengthened our office’s impact, while also introducing new expectations, operating approaches and pressures. Rising complaint volumes, increasing complexity and the emotional labour of our work underscore the need for greater coherence, clarity and consistency across our office.
To deliver fairness consistently and defensibly across all mandates, Ombudsman Toronto must operate as one integrated office — with shared standards and decision-making. Using a single, coherent operating model grounded in equity and human rights, we will modernize our systems and ensure sustainable practices that support fairness and are applied across the City.
Objective
To consolidate Ombudsman Toronto’s mandates, standards and decision-making into a single, coherent operating model grounded in equity and human rights, supported by modern systems and sustainable practices that ensure fairness is applied consistently, transparently and effectively across the City.
Solidify
Safeguard and strengthen independence and strategic relationships
Ombudsman Toronto operates in a complex and politically dynamic environment. Our independence — essential to fairness, credibility and public trust — is shaped by legislative design and impacted by budgetary processes and evolving political context. As our office’s mandate has expanded, particularly in relation to housing rights and police oversight, so too has our visibility and vulnerability.
To fulfill our role effectively, Ombudsman Toronto must actively safeguard our independence while strengthening our impact through principled, transparent and accountable engagement. This requires moving from personality-driven or organic relationships toward a deliberate relationship architecture, and from reactive communications toward a clear, evidence-based public accountability strategy.
Objective
To protect and strengthen Ombudsman Toronto’s independence, mandate integrity and public credibility by establishing clear boundaries, principled relationships and strategic communications that reinforce accountability, transparency and trust.
Shift
Move to proactive, data-informed, systemic oversight
Ombudsman Toronto operates in a city facing escalating and interconnected challenges related to housing, homelessness, mental health, public safety and access to services. Complaints are increasingly complex and resource-intensive. A primarily reactive, case-by-case model limits our office’s ability to address root causes of unfairness and strains staff capacity.
To strengthen fairness outcomes and use our mandate effectively, Ombudsman Toronto must evolve toward a proactive, intelligence-driven oversight model — one that identifies emerging risks, prioritizes systemic issues and directs resources where they can have the greatest impact, while continuing to respond to individual complaints.
Objective
To strengthen Ombudsman Toronto’s oversight impact by shifting toward a proactive, data-informed and planned approach that identifies systemic fairness issues early, guides strategic use of discretion and drives City-wide improvements.
Renewing our foundations
Ombudsman Toronto’s mandate, role and responsibilities have evolved over time. As we have taken on new areas of oversight and responded to increasing demand and complexity, it has been important to reflect on whether our foundational statements continue to clearly express our purpose, values and approach.
Ombudsman Toronto has a legal mandate, but we are more than this — we are a resource for city residents and City staff alike. We are independent, yet an integral part of the fabric of Toronto.
Through the strategic planning process, our staff and leadership revisited our office’s vision, mission and values to ensure they reflect both the realities of our work and the expectations of the people we serve. The refreshed foundations below affirm continuity with our office’s mandate while providing greater clarity and alignment for the next phase of our work.
Vision
The City of Toronto administration treats all people fairly.
Mission
Ombudsman Toronto is an independent voice for fairness, equity and accountability at the City of Toronto.
We listen to people with empathy and curiosity and recommend practical improvements that help City staff make Toronto a fairer place for all people.
Seven values that
guide our work
Our values guide the way we work and how we engage with the public and City staff. They inform how we interpret fairness, exercise discretion and uphold our responsibility to act with integrity and independence. We strive to reflect these values consistently in all aspects of our work.
We uphold fairness and equity in every aspect of our work. We examine how decisions are made, how people are treated and whether outcomes reflect fair process, fair decision or outcome and fair treatment. Internally and externally, we commit to recognizing barriers, questioning assumptions, addressing discrimination and ensuring our conduct reflects the standards expected of the City.
We make our services clear, understandable and easy to access for everyone. This means meeting people where they are geographically, linguistically, culturally and digitally, and reducing barriers that prevent them from coming forward. Internally, accessibility guides how we share information, support colleagues and design processes.
We listen with openness and curiosity. We approach every person with respect for their experiences and circumstances. We look into matters with empathy, ensuring it guides our communications and internal relationships, helping us understand context and work collaboratively toward fair solutions.
We work together to resolve concerns as early and informally as possible. We take initiative, share knowledge and support one another across mandates and functions to serve the public effectively. When we cannot help someone directly, we connect them to someone who can.
We engage honestly and respectfully with City staff, community partners and each other. We communicate clearly, explain our reasoning and work through disagreements in ways that build trust. We foster a culture where questions, critique and diverse perspectives strengthen fairness.
We base our work on evidence, critical analysis and thoughtful judgment. We examine assumptions — our own and others’ and apply consistent standards of fairness and human rights. We strive for clarity, transparency and accuracy while investigating, communicating and making decisions, protecting confidentiality and earning confidence in our work.
We take responsibility for our decisions, actions and the impact of our work. We are transparent about what we do and why, uphold the commitments we make and welcome scrutiny as a tool for improvement. We expect of ourselves the same accountability we expect of the City, modelling the fairness and integrity that underpin public trust.
Thank you for joining us in creating a fair future for Toronto
A Fair Future: Strengthening fairness, accountability and public trust in Canada’s most diverse city, Ombudsman Toronto’s strategic plan 2026–2029, was developed through a deliberate and reflective process designed to ground future priorities in the realities of our work and the environment in which we operate.
Beginning in September 2025, the strategic planning committee led a review of our office’s mandate, foundational statements and strategic context. This included an environmental scan examining key trends affecting fairness and accountability in Toronto, such as housing instability, mental health and addiction challenges, public safety concerns and increasing complexity in City service delivery.
The process incorporated multiple sources of input, including staff surveys, interviews, documentation review and facilitated discussions across our office. In December 2025, staff and management participated in an in-person strategic planning session focused on identifying critical shifts, testing assumptions and clarifying priorities for the next phase of our office’s work.
What we heard was consistent and clear: staff spoke to the strength and impact of our office’s work, the growing complexity of complaints and the pressures created by expanded mandates and limited resources. They also identified opportunities to strengthen consistency, protect independence and use our office’s authority more strategically to address systemic fairness issues.
This strategic plan reflects that input. It balances continuity with change and provides a focused framework for decision-making over the next three years. An accompanying implementation plan will translate these priorities into concrete actions and will be used to monitor progress and support accountability over the life of the strategy.
Ombudsman Toronto’s work is made possible through the trust and engagement of many people. We are grateful to the members of the public who bring their concerns forward and share their experiences with us. Their voices are essential to our understanding of how City systems are working, and where they are not.
We extend our sincere thanks to City staff, and community and accountability partners who engage constructively with our office and work to address issues and improve services. Meaningful oversight depends on openness, dialogue and a shared commitment to fairness.
We are deeply grateful to the staff of Ombudsman Toronto. Their professionalism, care and dedication are the foundation of our office’s impact. Throughout the strategic planning process, staff contributed their insights, experience and perspectives with honesty and thoughtfulness. This plan reflects their commitment to fairness, accountability and continuous improvement.
We also wish to acknowledge the leadership of the Ombudsman and Deputy Ombudsmen, whose stewardship, judgment and integrity guide our office’s work. Their leadership throughout this planning process helped ensure that the strategic plan is grounded in our mandate, responsive to emerging challenges and focused on delivering meaningful oversight for the people of Toronto.
We thank the members of the strategic planning committee for their leadership and active engagement throughout the process. Their reflection, challenge and collective responsibility were instrumental in shaping a strategic plan that is focused, disciplined and fit for the environment in which Ombudsman Toronto operates.
Ombudsman Toronto also gratefully acknowledges the support of There Management Consulting Inc., which partnered with our office to design and facilitate the strategic planning process. Their role supported critical reflection, surfaced key strategic shifts and helped translate collective insights into a clear and actionable strategic plan.
Together, these contributions have created fertile ground for Ombudsman Toronto to continue strengthening our impact, providing the clarity, focus and the shared understanding needed to advance fairness, accountability and public trust over the next three years.
In doing so, this work reinforces Ombudsman Toronto’s role as an essential part of Toronto’s accountability framework, ensuring the City’s systems are fair, accessible and responsive to the people we serve. Our office looks forward to continuing this work in service of the public interest and the integrity of City administration.
