Why do people sleep on benches instead of shelters? When you look at a typical homeless person nest, it is arranged to protect them from theft and violence. It's either in a well populated place, usually with middle class people who will report violence, or where they can hear people coming, has good visibility, a corner for their back, etc.

When you look at a typical homeless shelter, it has bunks or cots, no security, people with no reason to report violence, and it's full of desperate homeless people with addictions and erratic mental illness. They don't want to be around each other because they know it's dangerous. Why would you go to a shelter unless you were looking for trouble? It's full of predators.

Charitable organizations don't give homeless people privacy for fear of the human things they will do, like drink, use drugs, have sex, etc. The street or a park provides relative privacy and freedom, within walking distance of services.

Given most homeless people are men, the solutions are more likely to involve providing basic physical privacy and security than comfort or sympathy.