DONOR HUMANITARIAN ASSISTANCE DATABASE

Norway - 1996 Contributions
as of 1 January 1997
Please note that this information is comprehensive to the
extent that decisions have been reported to DHA

Based on information provided by the donors -
14 pts format, ICRC, IFRC and UN Agencies

**nor96eth**
Decision date	Recipient Country	Channel	Description	Value US$
1.06.96	Ethiopia	RC/Norway	Cash for ICRC - emergency relief (POL96-A254)	208'198
1.03.96	Ethiopia	Norwegian Church Aid (NCA/Norway)	Cash for rehabilitation project in West Ogaden (POL96-A109)	108'158
1.06.96	Ethiopia	Norwegian Church Aid (NCA/Norway)	Cash for rehabilitation of houses and agricultural activities after rain/hailstorm (BI96-A027)	72'341
1.08.96	Ethiopia	Norwegian Church Aid (NCA/Norway)	Cash for radio broadcasting promoting human rights and democracy (POL96-D023)	75'841
1.02.96	Ethiopia	Norwegian Church Aid (NCA/Norway)	Cash for high protein biscuits (BI96-A001)	80'352
1.06.96	Ethiopia	Norwegian Church Aid (NCA/Norway)	Cash for food-for-work: purchase, transport and administration of corn (BI96-A024)	716'322
1.08.96	Ethiopia	Norwegian Church Aid (NCA/Norway)	Cash for food for work - 500 MTs of corn (BI96-A032)	232'141
1.09.96	Ethiopia	Norwegian Church Aid (NCA/Norway)	Cash for emergency aid after floods - medicines, corn, transport, etc. (BI96-A037)	355'751
1.03.96	Ethiopia	Norwegian Church Aid (NCA/Norway)	Cash for Capacity Building of Disaster Prevention and Preparedness committees (BI96-A010)	261'549
1.09.96	Ethiopia	Norwegian Church Aid (NCA/Norway)	Cash for Camel disease outbreak in South Western Ogaden (BI96-A038)	53'614
1.03.96	Ethiopia	Norwegian People's Aid (NPA/Norway)	Cash for internal purchase of food and seed (BI96-A013)	707'547
1.09.96	Ethiopia	Ethiopian Int'l Institute for Peace & Development	Cash for research institute for promotion of peace (POL96-D022)	65'421
1.04.96	Ethiopia	Institute for Human Rights	Cash for National Electoral Board of Ethiopia - expansion printing unit (POL96-D013)	128'398

Grand Total = 3,065,633 US$

[Top Page]
[ Donor : Norway / Year : 1996 / Emergency : Ethiopia ]

Maintained by DHA (IASB/FTS) & DHA Online Team
Created 10 June 1996 - Updated 1 January 1997

AN END TO ISOLATION

The report of the Ogaden needs assessment study A description of the methodology and findings of this study which sought to determine food availability in the Ogaden and the capacity of the Ogaden to support the economic reintegration of the returned population. Produced in association with Early Warning and Planning Services and Relief and Rehabillitation Commission, Addis Ababa

Ł3.00 1991
A4 paperback 74 pages
ISBN 1 870322 35 5

REPORT ON MISSION TO HAUD AREA, REGION 5

02 - 15 NOVEMBER 1994

Matt Bryden

for the UN Emergencies Unit for Ethiopia

Executive Summary

From 02-15 November 1994, a mission from the UN Emergencies Unit for Ethiopia (UN-EUE) visited the north-eastern sector of Region 5, approximately the arid plateau known as the Haud, or former Somali Reserved Area. The purpose of the mission was to offer an overall evaluation of conditions in the area, with special reference to security, food security, trade, and administration. Unfortunately, the hijacking of the project vehicle at an early point in the mission did not permit all objectives to be fulfilled. The findings of the abbreviated trip are described below.

Security: Security, a direct function of political and social stability among Somali clans, is generally good throughout the area. There is remarkably little inter-clan tension in comparison with the situation across the border where the same clans also inter-mingle. This is almost entirely due to the power and influence of traditional clan leadership, since the presence of official security forces (EPRDF, police) is minimal, and restricted to a handful of locations. The absence of a government presence means that events in Somalia may easily spill over onto Ethiopian soil, and that there is relatively free movement across the border of people, vehicles and arms.

The area is free of the kinds of guerilla. Casual banditry (such as the looting of the mission vehicle) poses the only danger to Haud travellers for the moment.

Politics and Administration: Subsequent to its relocation from Gode to Jigjiga, the Region 5 Administration is still absorbed by its own need for re-organisation and reform, and is not yet prepared to discharge its all of its normal functions. Some key posts in the administration remain unfilled, and although its plans have been approved, the government will not be in a position to implement its capital budget for the 1995 fiscal year for another month or two. With only 7 months remaining, Bureaux will be under considerable pressure to meet all of their committments under the accelerated timetable.

East of Gaashamo, where there is a small military garrison and a few public buildings, there is virtually no sign of administration, and communities rely upon traditional authority structures for management of their affairs. The area can therefore only be understood in terms of the clans who live there, all of whom are transnational and thus simultaneously involved in the Somali political and military arena.

Economy: Somaliland and the Haud compose a single economic area, in which the presence of an international boundary is practically irrelevant. There are no formal border controls, so livestock and goods may pass freely in both directions. In general, livestock from the Haud is sold for export through Somali ports, principally Berbera and (to a lesser extent) Bosaaso. Terms of trade have improved over the past two years since the end of the war in north-west Somalia and the easing of a long period of drought.

Pastoralism: The population of the area visited is entirely composed of pastoralists, who migrate seasonally in search of water and pasture. Over the past few decades this movement has been reduced, to the point where many families move no more than 20-30 km a year. The widespread introduction of cisterns and artificial ponds, and the use of tankers to truck water during the dry season, are mainly reponsible for this changing way of life. Nevertheless, the lack of permanent water sources, and the scarcity of veterinary care, remain of primary concern to the inhabitants of the region.

General

From 02-15 November 1994, a mission undertaken on behalf of the UN Emergencies Unit for Ethiopia visited the north-eastern corner of Region 5, otherwise known as the Haud or former Reserve Area. The missions terms of reference were to report on the general situation in the area, with special reference to security, economic activity, and humanitarian considerations or needs.

Although expected to last between two and three weeks, the mission was cut short when the teams vehicle was hijacked on 10 November 1994. A second visit was made to Jigjiga from 22-25 November 1994.

Note: Unfortunately, all mission notes and source materials were also lost with the vehicle. Precise information such as market prices and rates of exchange are lost, thus references to this data in the report are unfortunately imprecise.

Participants

Matt BrydenUN-EUE Consultant

Said Hassan HaligSERP Project Officer, Gaashamo

Abiib Ahmed MohamedSERP Driver, Harshin

Itinerary

(A complete itinerary is included as an annex)

02/11Addis - Jigjiga

03-06/11Jigjiga

07/11Jigjiga - Gaashamo

08/11Gaashamo - Gorgor

09/11Gorgor - Marqaan Weyne

10/11Marqaan Weyne - Qararo

11/11Qararo - Gaashamo

12/11Gaashamo - Qabri Beyah

13-15/11Jigjiga

15-11Jigjiga - Addis Ababa

22-25/11Jigjiga

Security

With certain notable exceptions of banditry, security in the Haud area is contingent upon reigning socio-political circumstances on both sides of the international boundary. Tension between clans in one area will almost assuredly produce tension elsewhere between the concerned clans. Such tension may result in anything from constraints upon safe travel and commerce, to controlled blood-feuds, and even to full-scale inter-clan war.

Although heavy weapons remain for the most part on the far side of the international boundary, small arms are commonplace in the Haud. Only in Gaashamo were we told of any restrictions concerning fire-arms, i.e. that magazines must be removed from rifles within the town. Since we saw no other weapons, we assumed that this applied mainly to members of the EPRDF garrison. Elsewhere, weapons are carried freely by adult men (we did not observe any children bearing arms, unlike Somalia) for protection and as a symbol of status. Although President Abdirahman Ugaas described the formation of EPRDF-sponsored community militias as a new means of providing security throughout the Region (and particularly as a technique for combating Al-Ittihad), this process has clearly not yet begun in the Haud area, where such militia - or even the idea of such militia - do not yet exist.

In the absence of any consequential EPRDF/government presence, maintenance of security remains the province of traditional clan leadership. Only in the case of a major disturbance might the potential for an EPRDF intervention be considered to be a determinant of law and order in the area. Security is therefore a function of political and social stability, and thus directly linked to events on the other side of the border. Clan conflicts may be transmitted from one side of the frontier to the other, or take place on both sides of the border simultaneously.

A cross-border conflict was reportedly in progress in and around Bokh at the time of the mission, where two sub-clans of the Mijerteen clan (Reer Mahamud and Omar Mahamud / Mahamud Sesman) were said to be involved in serious clashes. The killing of a district official in Garowe, north-east Somalia was said to have triggered the battle - a consequence of political tension generated by the current political schism within the SSDF. Due to insecurity (over 20 people killed and 40+ technical vehicles circulating in and around Bokh), it was not possible confirm the reports with a visit to the area. It was reported to us that the EPRDF garrison at Bokh had withdrawn from the conflict zone to Wardheer.

Al-Ittihad Al-Islam

There is much confusion and contradictory information concerning the nature of Al-Ittihad Al-Islam and the threat posed by the organisation to security and stability in Region 5. The mystique surrounding the organisation no doubt serves to enhance its dubious prestige, and may well even be encouraged by the movements leadership. Security-related incidents in the area are frequently reported to be the work of Al-Ittihad whether or not this is really the case; since the movement typically refrains from claiming responsibility, it is possible that actions of other groups are mistakenly attributed to the Islamists. Al-Ittihad rarely explains its actions, and it is rare to find someone with first-hand knowledge of the movement. Observations and analysis about Al-Ittihad, such as that which follows below, can be little more than speculative.

There can be little doubt that the movements activities are of real concern to the new leadership of the Kilil. In meetings with both Abdirahman Ugaas and Iid Dahir, both men devoted a substantial portion of the meeting to the Islamist group, without any questioning (Abdirahman Ugaas is apparently a committed enemy of Al-Ittihad, having worked closely with the EPRDF during their early operations against the movement). Elsewhere, any mention of security issues while in Jigjiga automatically elicited some response concerning Al-Ittihad, from members of both the local and international communities. Only the EPRDF commander did not directly mention Al-Ittihad as posing a threat to security in the region.

By most accounts, Al-Ittihad have recently been most active in the area between Qabri Dehaar, Denaan, Qalafo and Dhagax Buur. Some loose elements were reported to be active near Danood, Nusdariiq and Adow, having been recently dispersed by the EPRDF from their usual theatre of operations. In the Haud area, however, clan leaders (Isaaq and Dhulbahante) were unequivocal that Al-Ittihad would not be permitted to operate within their territory. The categorical rejection and contempt for Al-Ittihad articulated by the Isaaq and Dhulbahante we encountered would obviously inhibit Al-Ittihad recruitment among their members for the time being. It remains to be seen whether renewed civil strife across the border in Somaliland would favour Al-Ittihads expansion among these communities.

This local ban on Al-Ittihad operations may not amount to a total embargo: there are indications that the Islamists lines of support must cross the territory of the Haud clans, and that these same clans permit the existence of Al-Ittihad camps among them across the border in Somaliland. Booraame (Gadabursi), Buro (Habar Yonis & Habar Jeelo), Las Anood (Dhulbahante) and Luuq (Mareexaan) are variously identified as major cross-border bases for the organisation, while it also reportedly maintains a presence in many other communities including Hargeysa, Badhan, Muqdisho and Bosaaso. Since their battle against Al-Ittihad in 1992, the SSDF have been among the most virulent opponents of the Islamists, and have circulated a dossier containing precise information about the movement. Among their assertions are the description of Buro as the retreat of Al-Ittihads leadership, headed by Sheikh Ali Warsame, and a detailed description of linkages between these Somali-based groups and their brethren abroad - including Kenya, Djibouti and Ethiopia.

In addition to obscurity surrounding Al-Ittihads international organisational structure, some confusion exists concerning the relationship between Al-Ittihad and other militant groups within Ethiopia, whose areas and methods of operation often overlap. Some observers have suggested that the Islamists are little more than an armed appendage of the ONLF, while others equate Al-Ittihad with the Ogaadeen Islamic Unity Party. This narrow definition of the Islamists as a clan-based political entity like the ONLF, essentially pursuing Ogadeni nationalist aims, stands in direct contradiction to Al-Ittihads profile across the border in Somalia and Somaliland: a pan-Islamic organisation whose creed of Islamic unity (hence the name) transcends parochial clan or ethnic interests. Nor has Al-Ittihads alleged leader in Region 5, a man named Abdiselam, expressed admiration for the ONLF or any other group with limited, political horizons. More probably, Al-Ittihad simply finds it easy to capitalise on present Ogadeni discontent, redirecting the disaffection of clan members into support for the Islamist front, and exploiting ONLF/Ittihad common interests as a kind of force multiplier in their campaign against the government.

Whatever the reason, Al-Ittihad activity within Region 5 remains concentrated within the Ogaadeen clan. At no time during our mission did we encounter any sign of Al-Ittihad operations that would contradict the universal assurance we received that the movement was not tolerated among the Isaaq and Dhulbahante clans we visited.

Information about the actual source of donor funds remains vague. Some administration officials (and one member of the Somali Embassy in Teheran) cite Iran and Sudan as principal donors. Private contributions are also said to come from Saudi Arabian, American, and European Islamists. Only in one instance did any of our contacts actually describe having seen foreign members of Al-Ittihad: two Arabs, describing themselves as Egyptians, who visited the Al-Ittihad base near Gode in mid-1992, at a time when the front had made territorial gains in the south-eastern Ogaden. The visitors apparently discouraged the capture of territory, arguing that it could dilute the militancy of the movement and detract from its contribution to the global Islamist cause.

Since then, the Ethiopian branch of Al-Ittihad seems to have abandoned any territorial ambitions. Although the message of the Arab visitors described above might be one reason for the movements change of heart, other contacts in Jigjiga have argued that the organisation is simply too weak to face the prospect of a direct confrontation with EPRDF: the certain outcome of any attempt to take and hold ground. Indeed, Al-Ittihad seems to shun virtually any contact at all with outsiders, including the Regional administration.

During talks with the movements leadership reported to have taken place early this year, members of the regional government managed to make some progress in persuading Al-Ittihad of certain common objectives, including the promotion of Islam. Negotiations broke down, however, over the issue of disarmament, a constitutional requirement for any political party seeking official recognition from the TGE. Fighting again erupted, and all contact between the administration and Al-Ittihad seems to have been broken. The new regional government now claims to pursue an aggressive campaign against Al-Ittihad employing local militia, equipped and reinforced by the EPRDF, a technique also advocated by moderate Ogadeni leaders opposed to the Islamists. It is too early to evaluate the success of this new strategy, though there are hints that Al-Ittihad have asked to attend the upcoming Ogaadeeni meeting in Qabri Dehaar, perhaps opening up new paths for dialogue.

Political and Social Organisation

Region 5 Administration

(N.B. As of 05/12/94 the President of Region 5, Mr Abdirahman Ugaas, has been relieved of his responsibilities and title.)

In May/June 1994, the TGE dissolved for a second time the administration of Region 5, citing maladministration and inefficacy. The re-appointment coincided with the designation of Jigjiga rather than Gode as the new capital of the Kilil. The implications of this transition, both practical and symbolic, have yet to be fully felt, though some early inferences may be drawn.

Of prime symbolic importance is the relocation of the capital from Gode, which strikes a blow at the traditional hegemony enjoyed by the Ogaadeen clan in regional politics. Unlike Gode, Jigjiga is a cosmopolitan centre frequented by Somalis of all clans, Oromo, and highland Ethiopians. No single major group dominates the area, allowing representatives from all communities to interact on the basis of relative equality. Although the shift is perceived by many members of the Ogaadeen group to reflect an anti-Ogaadeen bias, the appointment of Ogaadeenis to major posts in the administration (including the Presidency), would suggest that such fears are exaggerated. Nonetheless, several key posts remain unfilled, perhaps reflecting the delicacy of clan sensitivities to such appointments more than the availability of qualified candidates for these posts.

In practice, the installation of the government in its new home is far from complete. Staff from Gode are still arriving and facilities to accommodate them are scarce. Office and housing space in Jigjiga are limited, and fundamental requisites such as office equipment, communications, transport, and support staff are not yet adequate. Senior figures share pooled vehicles and answer their own telephones (sometimes two or more, which ring ceaselessly); appointments are first-come first serve, with unruly lines forming outside officers doors. The additional, unnecessary pressures created by such working conditions on an administration on now struggling to its feet are evidently cumbersome.

Staffing of the various Bureaux (there are to be 23) also poses a challenge. The Executive Committees Secretary is especially critical of the widespread appointment of personnel to posts beyond their qualifications - a practice he attributes to the former Gode regime. The Executive Committee has thus requested the dispatch of a task force from the central Council for Public Administration in order to review standards and staff qualifications. He expressed a strong commitment to the rapid replacement or, where necessary re-training, of unqualified personnel, while recognising that this process may further inhibit the implementation of this years capital budget.

The budget is one of the administrations major preoccupations. A full Amharic text has been prepared and approved by the central government, and a Somali text is presently in translation. A comprehensive breakdown of the budget by project and district (in any language) is not yet available, though certain

Bureaux seem to have formulated comprehensive plans for expenditure, and are awaiting only the disbursement of funds from the central Treasury. Several practical constraints to implementation of the budget remain unresolved.

Foremost is the compressed time frame for implementation of the budget: the fifth month of the Ethiopian fiscal year is now in progress, leaving only seven months remaining. President Abdirahman estimates that another month or two must elapse before the administration will be prepared to disburse funds, sharply pressurising the various bureaux. Exercising control over accelerated expenditure in the five or six remaining months of the fiscal year will certainly challenge the governments capacities. Funds remaining at the end of the fiscal year will be re-absorbed by the central government: a blunder of previous years that the administration is anxious not to repeat.

Even when money becomes available, simply spending it may not always be possible for the Bureaux concerned, since local capacities to absorb cash are very restricted. For example, costs per unit for construction of public buildings are standardised under the budget, meaning that the government will pay the same price for an office in Jigjiga as in Geladi. Private contractors are unwilling to assume the additional costs associated with work in more remote areas of the Ogaden, and claim that such contracts are unprofitable. Thus tenders for the building of schools, clinics and other planned government infrastructure may simply not attract any bids - a problem that has already frustrated the plans of the South-East Rangelands Project (SERP) in Negob zone, relatively close to Jigjiga.

Despite the problems, members of the administration seem to feel that the situation today represents an improvement over past years. Credit for much of the progress being made may largely be due to the intervention of the TGE. Many of the new senior appointees are Amharic-speakers, at least partly raised or educated in highland Ethiopia, and thus better equipped for dialogue with the central government. They are also generally receptive to the TGEs political formula of regional autonomy, which demands accountability and transparency at the regional level (whether the administration is better described as pliant or pragmatic in its dealings with the central government remains a moot point). Furthermore, in recognition of the Kilils present weaknesses, the TGE has provided a technical team to strengthen the regions administrative capacity. The need for this support seems undisputed by the regional authorities, who readily admit the flagrant corruption and mismanagement which tainted previous administrations. They also seem to acknowledge that past failures have stemmed in part from political immaturity and in part from lack of professional and technical human resources necessary to bear the burden of regional self-government. This self-criticism seems to be complemented by - and indeed prerequisite to - a vigorous and sincere drive for reform. Whether or not this reformist spirit, reinforced by impartial central government intervention (e.g. the CPA, technical team etc.) can shield the mechanism of governance from the corrosive effects of clan particularism remains to be seen.

Rural Areas

Beyond Jigjiga, government authority recedes rapidly into haze, becoming either illusory or in some areas totally non-existent. Cartographic definitions of international borders, and internal regional or district boundaries are either intrusive or irrelevant to the inhabitants of this area, who profess little (if any) first-hand knowledge of any kind of administration. The Haud itself comprises a number of administrative zones and districts (or parts of them) whose demarcation is principally arbitrary and whose names serve as little more than geographic labels: Dhagaxbuur, Danood, Bokh, Geladin etc (all of which may be accurately described as towns, but not as administrative districts). We heard numerous complaints from residents of the area that these boundaries, though effectively notional, were neither appropriate nor appreciated, especially where a single clan may be divided between two (or more districts), or where two clans may be lumped together in a single administrative principality. Since these boundaries are little more than abstract concepts for the time being, disapproval was also somewhat hypothetical.

Evidence of government in the area visited is limited to isolated EPRDF garrisons at Gaashamo, Wardheer, Geladi and Bokh (reportedly abandoned due to recent insecurity) and to sparse, dilapidated infrastructure. We were informed everywhere by village elders (with the single exception of Marqaan Weyne, where the census was in progress) that they had never seen any sign of an Ethiopian government (implying, improbably, that the area had even been spared the ravages of the Ogaden War). In general we heard that a government presence would be welcomed, especially if it implied benefit to the community in terms of public services.

Public Services: Health

Gaashamo was the only community visited with a public health facility: a clinic comprising a consultation room, examination room and store-room/pharmacy. The clinic functions basically as an OPD, managed by a senior nurse (and acting District Medical Officer) Mahamed Mahdi Hassan, since no doctor is in attendance. The nurse and his auxiliaries, 16 in total, are not paid, though they are theoretically to receive remuneration from the regional government.

Diagnosis and treatment of complaints is of unknown reliability, however discussions with the head nurse and extracts from the register suggest that the most common diseases are:

1. Malaria

2. Diarrhoeal diseases

3. Hepatitis

4. Anaemia

5. Measles

Other: skin diseases, TB, pneumonia, scabies

With the exception of Hepatitis among the top five, this report appears largely consistent with health profiles of communities throughout Somalia. The appearance of measles so high on the list may reflect the near-total lack of vaccination reported to us among children under 5 years.

Resources for the clinic come from a variety of sources: most of the medicines in the pharmacy were said to have come from Buro, suggesting that they come from MSF and UNICEF stores there (confirmed by a glimpse at the labels). The head nurse told us he also purchases medicines occasionally in Dhagaxbuur for resale through the clinic in Gaashamo; the proceeds go to the purchase of more drugs. One cold box, empty, was said to date from Mengistus regime. A variety of surgical instruments and an examination table were also in evidence.

Beyond Gaashamo, larger villages seem to depend on private pharmacies whose competence in matters medical probably varies widely.

Public Services: Education

Gaashamo is also the only community in the area to benefit from a public school building - supposedly constructed during Haile Selassies reign. Like the health workers, the teachers are supposed to receive a government salary which arrives rarely, if ever at all. Furniture and educational materials are a matter of pure improvisation: children bring tin cans and rocks to sit on in class, while teachers search for textbooks wherever they can find them: most seem to come from UNICEF contributions in Somaliland. The principal (and acting District Education Officer), Ali Ibrahim Yusuf, draws up the curriculum himself without any guidance from either central or regional government.

Parents apparently contribute to the expenses of their childrens education, and the disproportionate presence of children from the local religious community or tariiqa, Al Wahda, which we observed during our visit suggests that the group may also underwrite some of the schools costs. Al Wahda, a pacific, traditionalist Islamic movement, has long been active in the Buro area and has some support among both the Habar Yonis and Habar Jeelo. There is no other form of support.

Education in smaller communities is limited to private Quranic schools, whose curriculum sometimes includes subjects like Somali language and maths. In all other respects, formal education is non-existent throughout the area.

Clan Relations

Apart from Gaashamo where there is a small EPRDF outpost and some buildings for a school, a clinic, and a district administrative office we saw practically no evidence of government administration. Some members of the Gaashamo local council receive an irregular stipend. Virtually no other support is received, and the functioning of these structures depends entirely on community and private initiative. Beyond Gaashamo, community elders were emphatic that they represent the only effective authority in their territories - an assertion supported by objective observation, since we encountered no other formal power structures during our visit to the area. Since security, political and economic activity are all profoundly clan-related, conditions in the area can only be understood in terms of clans: clan territories visited included the those of Isaaq (Habar Awal, Arab, Iidagale, Habar Yonis, Habar Jeelo) and Dhulbahante (insecurity around Bokh, and the hijacking of our vehicle in Qararo forced us to abandon plans to visit areas controlled by the Mijerteen and Ogaadeen). Because of the presence of UNHCR in between Jigjiga and Aware (comprising Habar Awal, Arab and Iidagale territories - all Isaaq), this study focused on the relatively little-known area from Gaashamo east, a zone predominantly settled by Isaaq Habar Yonis and Habar Jeelo, Dhulbahante and Mijerteen. Within each territory, dominant sub-clans or lineages may differ from village to village. An annotated sketch map and list of contacts is included for clarification.

Habar Yonis (Isaaq): the Habar Yonis, a large clan of the Isaaq / Garxajis family (which also includes Idagale) straddle the Somaliland border, and branches of the family also live in the area of Berbera and Eerigaabo in Somaliland. Gaashamo serves as the clans Ethiopian capital, in a territory that spreads north to Hargeysa, Oodweyne, and Buro. It is a source of aggravation for the community that Gaashamo is administratively labelled as a dependency of Dhagaxbuur - a town dominated by a clan (the Ogaadeen) with whom they have strained relations and little common interest. Relations with their Garxajis cousins, the Idagale, are generally good and they share a common political orientation on most matters. In Somaliland, sections of the Habar Yonis, are presently allied with the dissident Iidagale militia in their opposition to Mohamed Ibrahim Egals administration. Their relations with their eastern neighbours, the Habar Jeelo, traditionally involve some friction, and the two often find themselves on opposite sides of divisive political issues (also the case in Somaliland at the moment). . In the south-east corner of their territory, the Habar Yonis share a border with the Dhulbahante with whom they have cordial relations, despite a more general Isaaq-Dhulbahante hostility. Even during the SNMs struggle against Siyaad Barre, trade and travel between Isaaq and Dhulbahante could continue through this peculiar juncture.

Habar Jeelo (Isaaq): the Habar Jeelo are not strongly represented in Ethiopia, occupying a wedge of territory between the Habar Yonis and the Dhulbahante. Their relations with the Dhulbahante are characterised by feuds and disputes over grazing, and they have little in common politically, having fought on different sides during the SNMs war against the Siyaad Barre regime. Their only major urban centre is Buro, a town they share roughly equally with the Habar Yonis. Within Ethiopia, the Habar Jeelo find themselves generally lumped together with the Habar Yonis, and resent the pre-eminence of Gaashamo as a local centre of Isaaq activity (the Habar Jeelo have no comparable Ethiopian base). They therefore seek separate representation from Gaashamo vis-à-vis the regional government and the constituent assembly.

Dhulbahante (Daarod / Harti): Within Ethiopia the Dhulbahante share borders with the Isaaq (Habar Yonis and Habar Jeelo) to the west, their Harti cousins the Mijerteen to the east, and the Ogaadeen to the south. Relations with the Ogaadeen are generally good, perhaps better than the Mijerteen whose history with the Dhulbahante is complicated by infrequent skirmishes and blood feuds. The Dhulbahante capital is at Las Anood, across the border in Somaliland. Following several years of dependence upon Bosaaso as an outlet for trade, the Dhulbahante are turning increasingly to Berbera, both for its proximity and in consequence of a general warming of Dhulbahante-Isaaq relations under the Somaliland administration.

New Trends

Despite the traditional character of local authority throughout the Haud, some new linkages between these far-flung communities and the administrative hubs of Jigjiga, Dire Dawa and Addis Ababa seem to be emerging. Among these phenomena are the new mechanism of direct representation to the constituent assembly, the formation of new political parties (in particular the Ethiopian Somali Democratic League or ESDL), and the first exploratory efforts of the TGE to extend its influence directly into rural areas (initially through the population and housing census).

The mission encountered two communities with direct representation to the constituent assembly: Gaashamo (Abdikarim Ali Guleed: Isaaq / Habar Yonis) and Marqaan Weyne (Jamaa Diibleh: Dhulbahante). Community elders are aware of these delegates participation in the assembly and apparently consider them to be representatives of their kinsmen throughout the area, rather than as conventional platform politicians or as the spokesmen for one or another village. A direct linkage between the traditional dynamic of inter-clan relations and the modern democratic model exemplified by the constituent assembly may therefore be inferred.

Uncertainty, and a certain degree of scepticism, surrounding the role and purpose of the constituent assembly was common, though we were able to observe efforts underway to raise popular awareness about this new mechanism. For part of the journey the mission travelled together with Mr Huseen Ali Guleed, an official from the regional administration. Mr Guleed met with the elders of various villages, informing them of the need for collaboration and consensus at the regional level, and the imperative of subordinating clan interests to Somali national interests where regional affairs were concerned, and the need to offer a united Somali front vis-à-vis other nationalities in the Ethiopian political arena.

The unity message is also the message, perhaps not coincidentally, of the Ethiopian Somali Democratic League (ESDL) and of the Leagues architect, Mr Abudlmejid Huseen (current Minister of External Economic Co-operation). Many villages through which we passed had new League offices and nascent party structure. In view of Mr Abdulmejids virtually single-handed management of Somali affairs on behalf of the TGE, it is not surprising that the unity theme is also pervasive within the new Regional Administration. Moreover, it has caught on among some of the Leagues adversaries among the Ogaadeen clan, who are now trying to effect a rapprochement between radical Ogaadeen tendencies (disillusioned by their perceived fall from grace) and those more predisposed to share power with the (generally) non-Ogaadeeni membership of the League. A meeting intended to encourage this process is scheduled to take place from December 5th in Qabri Dehaar.

Economy

Trade patterns are primarily a function of the geography of each clan and its relationships with its neighbours. The population of the Haud is therefore more closely linked economically to its kinsmen across the border in Somaliland and Somalia that to neighbouring, but unrelated, communities in Ethiopia. Consequently, the Haud and Somaliland (which includes part of the Haud plateau) comprise what Dr. Ahmed Yusuf Farah, anthropologist and UNHCR consultant, rightly describes as a single economic zone. Livestock flow north for export through various ports along the Red Sea coast, while commodities and manufactured goods follow the same routes inland.

Terms of trade in the eastern Haud seem to reflect natural trading patterns, free of the kind of market distortions encountered further west, where the local economy is largely fuelled by food aid inputs. Apparently, clan-specific demographics favour this north-south continuum, while posing invisible barriers to east-west trade. East of Gaashamo for example, there is no sign in markets of the grain and maize distributed through refugee/returnee programmes that is so abundant in the area of Jigjiga and Aware (questions about the availability of these items met with derision in many villages, where elders told us that even were they available nobody would eat them). By several accounts, fortified by our own observations, nothing of value moves along the east-west road from Jigjiga but qaad.

Prices for livestock throughout the area remained constant, with animals (sheep or goat) of first quality for slaughter or export selling between 100-120,000 shillings (approx. E.Birr 160-190). Second quality sold between 85-100,000/- (approx. E.Birr 130 - 160. Prices were quoted to us without exception in Somali Shillings). Most livestock traders said they would accept full or part payment in kind (barter) since cash of all denominations is in short supply. None of the herders encountered brought their own livestock to port for export. They preferred instead to sell their stock to large-scale exporters who purchased either through major markets (Gaashamo, Buro, Las Anood) or sometimes directly from the herders.

In return for livestock, merchants purchase commodities and manufactured goods imported from Djibouti and the Gulf states. Again, prices remained constant throughout the area visited, though Dhulbahante merchants consistently added 20,000/- shillings to these prices which they attributed to additional transport costs from Berbera (see map). As with livestock prices, all quotes we received were in Somali shillings.

The merchants were generally satisfied with these terms of trade, describing them as far better than the 1988-91 period of Somalias civil war. During those years, fighting strangulated cross-border trade and forced sharp price rises for imports. A sustained drought over roughly the same period (but extending into 1992) concurrently encouraged widespread distress-selling of livestock throughout the Ogaden, placing pastoralists at a critical economic disadvantage. In response to questioning, we were told universally that the situation had much improved.

One unknown quantity at the time of our visit was the recent introduction of the new Somaliland shilling. In Isaaq areas the value of the new shilling remained pegged at 1:100 (1 S/L Shilling = 100 SoSh). This rate seems to have been fixed by Habar Awal traders (who sponsored the introduction of the new currency), while the value of the Somali Shilling was calculated against the Saudi Riyal, rather than the US Dollar. We encountered Somaliland Shillings throughout the Isaaq territories, and found that the currency met with widespread acceptance. Among the Dhulbahante however, we were shown only some specimen notes whose appearance was greeted with derision. Dhulbahante we interviewed were categorical that they did not recognise this new currency and did not wish to accept it, presumably mirroring sentiment among certain Dhulbahante living across the border in Somaliland.

Pastoralism

The population of the Haud, specifically in the sector north and east of Wardheer is almost exclusively pastoralist. An SCF socio-economic survey of the Ogaadeen conducted in 1991 found no communities which could be described as either agro-pastoralists or cultivators in the area (0%). Although the geographic reach of the SCF survey was limited, observations from this mission would tend to support the assumption that only pastoralists live in this zone.

Water

Water, or the absence of it, is perhaps the single most important determinant of life in the Haud. Permanent water sources are scarce, and even temporary sources are unreliable. Pastoralists and their livestock are therefore dependent upon a vast system of ponds or cisterns (balli), used to trap rainfall and groundwater runoff. Probably thousands of these balli exist throughout the area. The balance between exploitation of available water sources and the need to claim fresh pasture in order to sustain livestock is still the main preoccupation of communities of the area.

Permanent water sources typically fall under the jurisdiction of a single clan, and can only be used by others with the proprietors consent. Clans may therefore show a preference for watering at one of their own, distant wells, rather than to negotiate access to closer water within the territory of a different clan. Habar Yonis (Isaaq) communities described Buro and Oodweyne as the nearest permanent water sources, while Habar Jeelo mentioned Buro (shared with Habar Yonis) and Aynabo. Dhulbahante communities referred to Aynabo (shared with Habar Jeelo) and Las Anood (surprisingly, the former was mentioned more than the latter).

Virtually every group of elders expressed a desire for permanent water sources (e.g. boreholes) to be established within their locality. No consideration was made of the effects this might have on grazing, nor of the fact that in some parts of the Haud, exploratory drilling has shown the water table to be lower than 250-300m (e.g. beyond borehole depth).

In the absence of permanent water sources, most communities depend on cisterns or balli for their water supply. Since balli are usually private property, a single village and its environs may have dozens of them, each serving an extended family and their relatives. In times of relative abundance, owners may elect to sell water to other residents of the area; when scarce, water may remain family property, not for sale.

Both humans and livestock share these rain-fed artificial ponds, raising concerns about water quality for human consumption. Contamination is not the only threat to water quality, however. Since balli also tend to become breeding grounds for mosquitoes and thus malaria, it is common practice for owners to add a slick of diesel to the waters surface. The relative advantages and disadvantages of this practice clearly merit some investigation.

Tanker trucks fulfil a kind of intermediate function between boreholes and balli, since they allow seasonal water-sources to function perennially. It is common practice for balli owners to hire water tankers (at no small expense) in order to keep the ponds full even during the dry season (i.e. Jilaal, between November/December and March/April). Pastoralist are therefore no longer obliged to migrate in search of water during the dry months, and often choose to remain static. Nomads and elders consistently described their annual migration as covering only 20-30 km, noting that this is a steep reduction from several decades ago, when families might wander more than 150 km in search of water and grazing.

This evolution of the transhumant migratory pattern towards a more settled, stable model must undoubtedly have a tremendous impact upon social, economic and political arrangements within pastoral communities, possibility inducing new and intolerable pressures upon the local ecosystem and the populations - human and animal - which depend on it.

Livestock

Animal welfare is of at least equal importance to pastoralists, if not more so, than human welfare. Elders in most villages in which we stopped preferred to devote the bulk of our discussions to matters of livestock health (including the availability of water) than to issues like human health and education. Their prime concerns in this domain were the availability of veterinary drugs, and protection of livestock from predators.

There is no effective government veterinary programme in the region visited. The South-East Rangelands Project (SERP), recently galvanized by a change of management, is in the process of completing a development centre in Gaashamo which will include veterinary services amongst other activities, but the timetable is uncertain and the effectiveness of the programme remains to be tested. In the meantime, herders are entirely dependent upon the irregular commercial supply of drugs from businessmen returning from abroad. The pertinence of these products and the correct use of drug protocols are therefore questionable, and the effectiveness of this system clearly inadequate: livestock merchants and herders were unanimous in their desire for better access to veterinary medicine, even through commercial channels.

Predators, specifically hyena and fox, were also commonly identified as a scourge. We were repeatedly apprised of the need for poisons to deal with these animals, whose predations were reported to be increasingly troublesome to the pastoralists.

Disclaimer

The comments and observations in this document represent the views of the author and do not necessarily reflect those of the United Nations. Nor do the designations and presentation of material imply the expression of any opinion whatsoever of the UN concerning the legal status of any country, territory, city or area, of its authorities, or concerning the delimitations of its frontiers or boundaries.

List of ContactsANNEX 1

Addis Ababa> Ahmed Arteh- Ecumenical Devt Group of Somalia (EDGS)

> Mohamed Subcis- RTRD (Wardheer / Addow area)

> Adam Isse Ali- Nolays Relief Organisation (Wardheer/Danood)

> Abdikarim Ali Guleed- Ethio-Global (Gaashamo)

> Mohamed Mohamed Yusuf- Somali Relief Society (SORSO - Dudub/Geladi)

> Mohamed Bile- OAU Consultant

> Julius Holt- Consultant

Jigjiga> Abdirahman Ugaas - President, Region 5

> Iid Dahir- Secretary, Region 5 Executive Committee

> Ahmed Yasiin- ex-Attorney General, Region 5

> Commander Masho- EPRDF Zonal Commander

> Abdulrashid Dulane- SERP Project Manager

> Mr Nair - CARE Project Manager

> Rachel Lambert- SCF(UK) Project Director

> Christine Neveu- UNHCR Repatriation Officer

> Guido Ambroso- UNHCR Protection Officer

Gaashamo> Osman Mohamed Diig- Chairman

(Habar Yonis)> Huseen Ali Guleed- Deputy

> Engineer Diriiye- Ethio-Global Consultant

Ina Nur Muse> Said Ahmed Xamar

(Habar Yonis)> Osman Aden QalabjeenElders

> Abdi Ibrahim Muse

Gorgor> Hassan Huseen XamarChairman

(H.Yonis/> Ayanle Roble AliDeputy

Muse Ismail)> Yusuf Mohamed Hure BarreElder / Mediator

Balli Daaye> Haji Hassan GebelaxChairman

(Habar Jeelo)> Hassan GarbiyeDeputy

> Ahmed Mahamed HassanESDL chairman

Gawlalaale> Mohamed Hassan HaydElder

(H. Jeelo)

Heegaale> No contact

(Dhulbahante/

Reer Hagar)

Qararo> Suldaan Said Osman AliSuldaan

(Dhulbahante/> Mohamed Dhuxul AliDistrict administration

Reer Khaalid)> Abdi SalaadElder

Marqaan Weyne> Garaad Abdillahi G. SuufiGaraad

(Dhulbahante/> Dux Mohamed Qoreeye

Reer Ali Geeri)

(N.B. Clans named are dominant but not exclusive in the communities mentioned)

ANNEX 2

Heads of Bureaux

Region 5

1. Mr. Siyaad Xaaji IbrahimNatural Resources and Conservation

2. Mr. Ali BashUrban Development

3. Mr. Abdi Ali JaamaPlanning and Economic Development

4. Mr. Mustafa FaaraxAgriculture

5. Dr. Mahdi XuseenHealth

6. Mr. Abdi Ali XuseenInvestment

7. Mr. Mahdi Xarun XasanTrade, Industry and Tourism

8. Mr. Abdi DalalEducation

9. Mr. Maxamed Aden UmarAuditing

10. Mr. Maxamed Axmed XasanTransport and Communications

11. Sh. Maxamed Madiin YuusufJustice

12. Mr. Axmed Xasan AliMining and Energy

13. Mr. Fekade Selassie WamiGovernment Employee Administration

14. Mr. Abdulahi Sheekh AxmedInformation

15. Mr. Maxamed Maxamuud Daahir Relief and Rehabilitation

16. Mr. TowfiiqIbrahimFinance

Members of Executive Committee

Region 5

1. Abdirahman Ugaas MuxumedChairman

2. Axmed Makahiil XuseenVice Chairman

3. Iid Daahir FaaraxSecretary

4. Ali Abdi IiseMember

5. Maxamed Ugaas Mahad

6. Maxamed Maxamuud Abdi

7. Sh. Abdinaasir Sheekh Aadan

8. Dr. Maxamed Maxamuud Maxamed

9. Ali Boorow Ali

10. Maxamed Xaaji Abdi

11. Diiriye Umar Faahiye

12. Abdirahman Xaaji Maxamuud

13. Abdulahi Yuusuf Aaqib

14. Abdulahi Sheekh Ali

15. Faqrudiin Sheekh Abdiasiis

16. Maxamed Baruud Deex

17. Siyaad Daauud Gudaal

18. Maxamed Abdi Maxamed

19. Maxamed Xaaji Xasan

ANNEX 3

Summary of 1994 Capital Budget

Region 5

Financial

Source

Cost

Centre Government

Treasury Foreign

Aid Foreign

Loan Total

Economic Development 25,938,300 1,500,000 - 27,438,300 31.7

Agricultural Development 10,599,900 - - 10,599,900 12.2

Natural Resources 12,075,400 1,500,000 - 13,575,400 15.7

Mining and Energy 80,000 - - 80,000 0.1

Road Construction 2,633,000 - - 2,633,000 3.0

Transport & Communications 550,000 - - 550,000 0.6

Social Development 2,891,900 18,656,300 50,023,800 57.7

Education 8,026,000 1,651,900 14,341,100 24,018,700 27.7

Health 13,402,900 1,240,300 4,315,200 18,958,400 21.9

Urban Development & Housing 7,046,700 - - 7,046,700 8.1

General Development 9,239,400 - - 9,239,400 10.7

Statistics 136,000 - - 136,000 0.6

Admin. and Infrastructure 9,013,400 - - 9,013,400 10.1

Total 63,653,300 4,391,300 18,656,300 86,701,500 100.0

Note: All figures in 1000s of Birr

Source: 1994 Fiscal Year Capital Budget - Region 5, Ministry of Planning and Economic Development (Addis Ababa: September 1994)

ANNEX 4

Detailed Itinerary

02/11> Addis Ababa

> Dire Dawa

03/11> Dire Dawa

> Jigjiga

07/11> Jigjiga

> Gaashamo (Isaaq / Habar Yonis)

08/11> Gaashamo (H.Yonis)

> Balli Midgan (H. Yonis)

> Shimbiraale (H. Yonis)

> Hira (H. Yonis)

09/11> Hira (H. Yonis)

> Gorgor (H. Yonis)

> Tuulo Habreed (Habar Jeelo)

> Balli Daaye (H. Jeelo)

> Gawlalaale (H. Jeelo)

> Qararo (Dhulbahante / Reer Khaliid)

> Tuurwareen (Dhul. / ?)

> Heegaale (Dhul. / Reer Hagar)

> Marqaan Weyne (Dhul. / Ali Geri)

10/11> Marqaan Weyne (Dhul. / Ali Geri)

> Qararo (Dhul. / Reer Khaliid)

* Hijacking *

11/11Qararo (Dhul. / Reer Khaliid)

Balli Daaye (Isaaq / H. Jeelo)

Gaashamo (Isaaq / H.Yonis)

12/11Gaashamo (Isaaq / H. Yonis)

Lanqeyrta (Isaaq / Arab)

Harshin (Isaaq / Habar Awal)

Hartisheikh (Isaaq / Habar Awal)

Qabri Beyah

13/11Jigjiga

15/11Addis Ababa

Back to document index

Disclaimer for EUE Materials

Editor: Ali B. Dinar, (aadinar@sas.upenn.edu)

Petroleum Potential of Ethiopia, East Africa, East Africa Regional Hydrocarbon Study, Alconsult

THE HYDROCARBON POTENTIAL OF
THE OGADEN BASIN, ETHIOPIA, EAST AFRICA

A Segment of the

"EAST AFRICA REGIONAL
HYDROCARBON STUDY" (EARHS)

Conducted By

ALCONSULT INTERNATIONAL LTD.

[Map of Ogaden Basin]

The 350,000 sq km Ogaden Basin has natural oil seeps and oil and gas shows in many of the 47 exploration and development wells drilled to date. The Calub (gas) and Hilala (oil) fields occur in the central part of the basin.

The syn-rift succession in the Ogaden Basin occurs in N-trending (Permian) and NE-trending (Triassic) rifts; and comprises more than 5000 m of continental sediments, and regional organics-rich interval close to the Permo-Triassic boundry. This unit has also been recognized in Kenya and Tanzania; in Madagascar this interval sourced the deposits of tar sands and heavy oil. The interval is mature along the margins of the Ogaden Basin.

The organic-rich marine post-rift Upper Jurassic Uarandab Shale Formation, attains a thickness in excess of 150 m and reaches oil maturity in the deeper parts of the basin. It is a regional seal to the underlying carbonates of the Hamanlei Formation, and is the suspected source of an oil seep in the western part of the basin.

The Ogaden Basin is dissected by a large number of faults, inclusive of those which are genetically related to the Tertiary Ethiopian Rift. A regional NE-trending right-lateral strike-slip fault system, of possible early Cretaceous age, has been observed as negative and positive flower structures in the subsurface, and may form a key component of traps in the Calub-Hiala area and the central part of the Ogaden Basin

Petroleum Systems of East Africa, East Africa Regional Hydrocarbon Study, Alconsult

ALCONSULT INTERNATIONAL LTD.

Alconsult is a multi-disciplinary consulting and training company which provides services internationally, with emphasis on the upstream oil and gas and environmental sectors of the Petroleum Industry. We offer a complete consulting and training capability in the petroleum sector. The Principals of the company have extensive oil and gas corporate and consulting experience in complementary areas of the petroleum industry, have industry contacts at senior levels, and all have considerable international experience.

Alconsult has a core of highly experienced consultants and trainers supported by an associated group of independent consultants who work as part of integrated Alconsult teams on specific projects. We draw upon specialists from our database of registered independent consultant associates to customize teams to meet the specific needs of clients. Our strength is in organizing and managing teams of specialists to provide a complete range of integrated services tailored to client needs.

With our experience in corporate and government petroleum industry organizations and strength in technical and management disciplines, Alconsult can provide individual specialists or it can provide a single source of expertise covering oil and gas exploration, exploitation, drilling, production, transportation, processing and marketing with emphasis on evaluation of basins, producing reservoirs, reserves, economic assessment of fields and undeveloped areas. We carry out assessments and provide advisory services involving enhanced recovery (EOR), drainage strategies, reservoir management and optimization of exploration and development technologies including 3D seismic interpretation, geological and geochemical applications, horizontal drilling, and field management.

Expertise and experience also includes business and environmental planning, with emphasis on regulatory compliance, socio-economic planning, economic and fiscal analysis. In the environmental field, our focus has been on environmental regulatory/planning involving the development of environmental guidelines and codes of operating practice for a broad range of upstream and downstream oil and gas activities, both onshore and offshore.

Alconsult offers a single source of expertise covering the whole resource field. Since its creation in 1986, Alconsult has successfully completed more than 200 major assignments in some 40 countries on five continents. These assignments have ranged from relatively short-term advisory tasks involving single specialists to large interdisciplinary projects extending over several years.

Alconsult provides training in all fields of its expertise. A large number of formal courses are available which can be tailored to client needs. Other courses, seminars and hands-on training are also provi>

Transfer interrupted!

Ethiopia, the Ogaden Region (in MARION)

Ethiopia, the Ogaden Region

Title:

Ethiopia, the Ogaden Region [map].

Author:

United States. Central Intelligence Agency.

Published:

[Washington, D.C. : Central Intelligence Agency, 1980]

Edition:

Scale [ca. 1:4,000,000] (E 390--E 480/N 130--N 40).

Subject:

Ethnology --Ethiopia --Ogaden Region --Maps.
Phytogeography --Ethiopia --Ogaden Region --Maps.
Ogaden Region (Ethiopia) --Maps.

Material:

1 map : col. ; 27 x 28 cm.

Note:

"504025 7-80."
Relief shown by shading.
Ancillary maps: Ethnic groups -- Vegetation.

LC Card no:

91682434 /MAPS

Other ID no:

ltsw0193658
ISM
BIBBIN/AAK-2495/TGOMES

System ID no:

AMS-2795

Holdings:

UA Cameron Flr 1 Map Cabinets

CALL NUMBER: G 8332 O4 1980 U5 -- c.1 -- MAP -- Available

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Planning And Transportation Report

HUMAN SERVICES COMMITTEE

REPORT No. 10

For Consideration by
The Council of The Municipality of Metropolitan Toronto
on July 3, 1996

FOR COUNCIL ACTION

Residential Tenancy Legislation

Recipients of General Welfare Assistance

Welfare Assistance Accounts

Homes for the Aged

Streetcity Hostel

By-law No. A-9 - The Metropolitan Toronto Housing

Company Limited - Sales of Real Estate - Definition

of "Real Property"

Advisory Committees, Task Forces and

External Organizations

REPORT No. 10

OF THE HUMAN SERVICES COMMITTEE

(from its meeting on June 10 and 11, 1996,

submitted by Councillor Gordon Chong, Chair)

FOR COUNCIL ACTION

CHANGES TO RENT CONTROL AND
RESIDENTIAL TENANCY LEGISLATION.

The Human Services Committee recommends to Council:

(i) the adoption of the report dated May 15, 1996, from the Commissioner of Community Services, subject to:

(a) adding the following new Recommendation No. (3);

"(3) Metropolitan Council urge the Minister of Municipal Affairs and Housing to require that landlords establish Capital Reserve Funds for all buildings as a possible solution to the capital expenditure problem, such a reserve to be funded by the landlords out of the guidelines increase and by other means, and not from any extra charge imposed on tenants"; and

(b) renumbering Recommendation No. (3) accordingly; and

(ii) that the Metropolitan Toronto Chairman, together with a delegation of Metropolitan Councillors and appropriate staff, be requested to arrange a meeting, as soon as possible, with the provincial Minister of Municipal Affairs and Housing to present the concerns raised in the report of the Commissioner of Community Services.

The Human Services Committee reports, for the information of Council, having referred the following motions by Mayor Nunziata to the Metropolitan Solicitor with a request that he report directly to Council for its meeting on July 3, 1996, on whether such motions are in order:

"(1) That the Metropolitan Toronto Solicitor report on the adequacy of the Landlord and Tenant Act enabling landlords to evict tenants engaged in illegal activities.

(2) That the Province of Ontario ensure that amendments to residential tenancy legislation include provisions requiring adequate standards of security of common areas in rental buildings."

The Human Services Committee submits the following report (May 15, 1996) from the Commissioner of Community Services:

Purpose :

This report provides background information and recommends a Metro position on prospective changes to provincial rent control and related legislation.

Funding Sources, Financial Implications and Impact Statement :

None.

Recommendations :

It is recommended that:

(1) Metropolitan Council urge the Province of Ontario to ensure that any amendments to the three statutes (Rent Control Act, the Rental Housing Protection Act and the Landlord and Tenants Act) governing residential tenancies and residential rents continue to:

(a) use a "guideline rent increase" with onus on the landlord to prove the need for any higher rent increase;

(b) maintain current protections in regard to evictions, including the onus on the landlord to prove the case for eviction and the requirement for a Writ of Possession issued by the courts (or by a quasi-judicial tribunal); and

(2) Metropolitan Council support any steps by the federal and provincial governments to improve the viability of private rental construction, as long as these do not come at the expense of low and moderate-income tenants or erode the existing Metro tax assessment base; and

(3) the appropriate Metropolitan Officials be authorized and directed to take the necessary action to give effect thereto.

Council Reference/Background/History :

This report responds to the letter dated March 25, 1996, from eight Metropolitan Councillors to the Clerk of the Human Services Committee, submitting the recommendations adopted by the City of Toronto in opposition to changes to provincial rent control and related legislation, and requesting a report.

Comments and/or Discussion and/or Justification :

This report provides background information and places rent control and related issues in a Metro context. It has five sections: an overview of the City of Toronto report submitted to the Committee; an update on provincial government intentions; the significance of rental affordability problems in Metro; the effects of rent control on rental investment; and the condominium conversion issue.

Overview of the City of Toronto Report:

The City of Toronto report (February, 1996) outlines the existing legislation affecting residential tenancies, including the Landlord and Tenant Act, the Rent Control Act, and the Rental Housing Protection Act (RHPA). It describes the changes in legislation being considered (as of February) by the provincial government, and provides information on rental units, rents, and vacancies in the City of Toronto. That information is updated and adapted to the Metro context in this report.

The City report notes the dangers of growing affordability problems, "economic evictions" (having to move when the rent becomes unaffordable), and loss of rental apartments if the Province does make changes such as it is now considering. Noting the government's clear interest in the British Columbia (BC) model of de-regulation and a mediation system for rent increases, the report reviews the BC experience as well as the system in other provinces. It notes that de-control of rents in BC did not lead to an increase in new rental construction, and that factors other than rent control are more important in determining whether investment in new rental construction happens. This is discussed further below.

The City report discusses the effects of rent control on investment in maintenance and repair, and associated economic activity. Recommendation No. (3) of the report advocates a "capital reserve fund" for maintenance of private rental buildings. This approach would be similar to the reserve funds required for condominiums and most non-profit housing, but possibly administered on a Province-wide basis. This option was considered and rejected by the previous Minister of Housing in 1991-92 when the present Rent Control Act was drafted, but is still advocated by tenant organizations and the City as a preferred approach to ensure that funds are available for needed maintenance.

Update on Provincial Government Intentions:

Changes being considered by the government could amount to not just replacement of the existing legislation but replacement of the principles underlying it.

The existing system has three main elements. Firstly, Part IV (residential) of the Landlord and Tenant Act was introduced in the late 1960's, replacing common-law procedures and older statutes. It is based on a recognition that there is a clear imbalance of power between landlords and tenants, and that residential tenancies involve not just an ordinary commercial contract but a home. A key element in regard to evictions is the requirement that the landlord go to court to prove that eviction is warranted and obtain a Writ of Possession.

Secondly, rent review was first introduced in 1975 as an anti-inflation measure and was strengthened over the years in response to tenant concerns. It is based on the principle that affordability of residential rents cannot simply be left to market forces. A key element is the "guideline rent increase" allowable each year, with the onus on the landlord to prove the need for any higher increase.

Thirdly, the Rental Housing Protection Act was passed in 1986 and made permanent in 1989, in the context of tight markets and scarce rental construction, to prevent loss of units through demolition and conversion to condominium. It is based on the principle that owners' property rights must yield to tenants' interest in preserving affordable homes.

The new principles would permit market forces to determine the level of rents and the supply of rental accommodation, and would endorse more "freedom of contract" in landlord-tenant matters.

No official information is available on the government's intentions, either in writing or from contacting Ministry staff. Statements by the Minister and staff simply indicate that a new "tenant protection package" is being considered.

It is understood that the government is considering omnibus (all-in-one) legislation to replace the Landlord and Tenant Act, Rent Control Act, Rental Housing Protection Act (RHPA), Residents' Rights Act, and the Vital Services Act. All matters affecting residential tenancies, from rent increases to evictions, may be handled through a quasi-judicial tribunal (like the Ontario Municipal Board or Labour Relations Board) rather than partly through the courts as at present. Regarding rent increases, the onus would be on the tenant to challenge a notice of increase rather than on the landlord to prove the need. Vacant units would be exempt from any rent review. There would be provision (following the BC model) for some form of mediation where the tenant does challenge an increase. Grounds for eviction and the process for eviction would be made simpler for the landlord. The Rental Housing Protection Act would be simply repealed, leaving no barrier to demolition of rental buildings or their conversion to condominium.

Events are moving quickly, and the contents and timing of any proposed change may be clearer by the time that this report is considered by the Human Services Committee and Metropolitan Council. As of May, it is expected that a policy proposal will be made public in June and draft legislation introduced in the fall, with implementation of a new system targeted for early 1997.

Significance of Rental Affordability Problems in Metro:

Rental units are a very large part of the existing housing stock in virtually all parts of Metro, and affordability problems are great. Although rent control is not the solution to many of these problems, de-control would worsen the problems.

Just over half of Metro's households are tenants (52 per cent. in 1991). The percentage varies from 63 per cent. in the City of Toronto, to just over 40 per cent. in Etobicoke and Scarborough, to just over 50 per cent. in North York, East York, and York. As of 1995, 250,000 Metro tenant households live in conventional privately-owned apartment buildings (including majority-rented condominiums), 30,000 in other rented condominium apartments, 101,000 in social housing, 64,000 in privately-rented houses (1991 data) and several tens of thousands in basement apartments, duplexes, and other second suites. Metro rental units comprised one-third (34 per cent.) of Ontario rental housing in 1991.

Rental affordability problems were enormous, even at the time of the 1991 census, before the full impact of recession, restructuring and public cutbacks. Affordability problems are discussed in detail in the Planning Department report, entitled "Housing Prospects and Patterns in Metro", which is separately before the Committee. Table 1, attached to this report, shows three main patterns in affordability problems.

First, half of Metro tenants had low or moderate incomes (under about $32,000.00) and could not "afford" rents higher than today's averages; almost one-third of tenants had low incomes (under about $23,000.00) and could not "afford" even low-priced market units. (Thirty per cent. of these income levels equates to monthly rents of about $800.00 and $580.00 respectively.)

Second, severe affordability problems occur mainly among those making under about $23,000.00 who cannot afford even low-end, small-unit market rents. Rent control, which is the regulation of market rents, does not address their problems. Their problems typically require rent subsidies.

Third, affordability problems affect thousands of lower-middle income households who can afford market rents. Not all tenants can find suitably-sized or available apartments at low-to-average prices, and many have to pay more. It is the cost squeeze on these tenants that rent control can address.

Affordability problems are increasing - as shown by extensive data for the 1980's and more limited data for 1991-96. From 1981 to 1991, the number of Metro households in the lowest one-fifth of the income spectrum paying over 50 per cent. of income on rents rose from 49,000 to 62,000. Although average tenant incomes increased in step with average rents for privately-owned apartment buildings, the affordability problems grew as incomes of lower-income singles and families failed to keep pace, and as more tenants came to live in rented condominiums and houses where rents are higher.

Affordability problems have become much worse in the 1990's, mainly due to declining incomes. The loss of middle-income tenants to home-ownership means that relatively more tenants have low incomes. There is higher unemployment, low-end wages are dropping, fewer unemployed people are eligible for Employment Insurance (UI), and so more people are on social assistance. With more people on low incomes, the nation-wide share of tenants paying over 30 per cent. of income on housing rose from 27 per cent. of tenants in 1990 to 35 per cent. in 1995. At least one-third of Metro's tenants in the private rental market are on social assistance. Their incomes (except for disabled persons) were cut 21.6 per cent. in October, 1995, and the resulting affordability problems are discussed in a separate report to the Human Services Committee.

These trends are reflected in the growing use of shelters and food banks. Evidence presented to the Metro Advisory Committee on Services to Homeless and Socially Isolated Persons supports the impression that evictions are increasing. The most recent survey conducted by the Daily Bread Food Bank supports the impression that many tenants are having to move to cheaper accommodation.

Slow economic recovery in the Toronto area and still high housing prices (compared to other cities) mean continuing high demand for rental units. The result has been tightening rental markets for the past three years, with vacancies at 0.8 per cent. as of October, 1995. Landlords are now starting to increase rents to catch up to the allowable "guideline" rent increases which the increases during the recession often fell short of. Average rents in privately-owned apartment buildings have risen at about 1.0 to 1.4 per cent. annually (1991-95), above and beyond general inflation. De-control of rents in a tight market will likely mean stronger rent increases. This would lead to greater affordability problems, and more overcrowding and resort to sub-standard housing.

Effects of Rent Control on Rental Investment:

Although there is an "investor confidence" issue around rent control, the main issue is how to narrow the gap between market rents (under rent control) and the higher rents it takes to pay for a new building. This gap makes new units uncompetitive, and this lack of viability deters investment. The gap could be narrowed by raising rent revenues or by lowering development and operating costs.

Construction of new rental apartments is needed to keep pace with demand as Greater Toronto grows. Staff believe that rental needs must be met by a mix of private investment, social housing, and rent subsidies, and agree with industry that private rental construction is an essential element.

Meetings on private rental development were held last fall between industry representatives and the Ministry of Municipal Affairs and Housing, and a study was carried out by Greg Lampert Economic Consultant. The industry position is that Ontario's regulatory system has distorted the market and imposed a burden on developers and landlords that deters investment. A considerable body of economic literature supports this view, and predicts many of the effects we have seen over the past two decades in the Ontario rental sector. Industry favours substantial de-control of rents and weaker tenants' rights to provide a more pro-investor environment, as well as other changes to reduce costs.

The Lampert report illustrates for Toronto the importance of the cost side. A typical new unit costs $123,700.00 (similar to the cost of a non-profit unit). This requires rents of $1,100.00/month (high end of the market), and the project generates negative net income for several years ($1,170.00/unit in the first year). Such a scenario makes no sense to an investor.

Costs today (mainly lower interest rates) bring private rental construction closer to viability than at any point in two decades. Industry has made a number of suggestions to reduce costs of rental construction and operation, and bring it to viability, including:

(a) property tax assessment at the same level as condos and co-ops. Rental apartments today pay at three to four times the rate for home-owner units;

(b) changes to GST. Construction of home-owner units (except of up-market homes) and non-profit rental units is eligible for GST rebates that mean an effective GST rate of 2.5 and 3.5 per cent. respectively, compared to the full 7 per cent. for private rental;

(c) removal of levies. Levies range from zero to over $10,000.00 per unit and add to the monthly rents required to break even or turn a profit; and

(d) changes to the availability of financing. This could include Index Linked Mortgages (ILM) which can off-load debt costs from the difficult first few years until later; more targeting of rental by interested pension funds, etc.

Experience elsewhere supports the need to emphasize the cost side in encouraging rental construction. A study done for CMHC and BC Housing in 1991 compared four Canadian cities with and without some form of rent control, and with and without significant private rental construction. It found that factors other than rent control were most prominent in accounting for the differences. These factors included the presence of interested small investors, practices of local lenders and brokers in regard to loan ratios and syndication of financing, availability of pre-zoned land, and lack of a strong condominium market to draw multi-unit developers away from rental.

Private rental construction has often relied on government tax breaks and incentives. Canada and Ontario had various incentives through most of the 1970's and 1980's, but these are now gone. In the United States, where private rental investment is stronger and took off in the latter 1980's, the key has been tax-exempt bonds for financing, and the Low Income Housing Tax Credit, initiated in 1986.

In summary, simple de-control of rents is likely to bring the pain without the gain. Rental construction viability should be addressed by reducing costs, not by raising rent revenues at the expense of low and moderate income tenants. It is likely that tax incentives, longer-term lending at lowest-available rates, favourable capitalization rates, and a predictable regulatory regime would be required to re-start private rental construction in Ontario. Council should, therefore, consider endorsing any provincial proposals to decrease the costs of private rental development, provided they do not involve any reduction of the existing Metro tax assessment base.

Condominium Conversion:

It is expected that changes to legislation will involve the repeal of the Rental Housing Protection Act (RHPA). This law empowers municipalities to prevent the demolition or conversion of rental units to condominium unless it is found that the lost units would not affect the supply of affordable housing, or would be made up by other new units supplied, etc. The industry view is that the law impedes needed major renovation of apartments and prevents properties from being brought to "highest and best use".

Condominium conversion is identified in the "Housing Prospects and Patterns" report as a major concern, given concerns about overall rental supply. Greater Toronto needs about 6,000 extra rental units a year, and cannot afford to lose what exists. Many buildings in desirable districts of Metro are owned by landlord/developers who could realize great capital gains from condominium conversion. Many tenants at lower-middle incomes would jump at a chance to purchase their units, possibly at discount prices.

The downside of conversion is that once the new condominium units are purchased they are permanently lost to the affordable rental stock, which is not growing to match demand. The sellers and buyers gain at the expense of other tenants struggling in Toronto's tight market. It is quite possible Metro could see losses of a few hundred rental units a year if the RHPA is abolished.

It is desirable to maintain the approach taken when the RHPA was passed, that conversions not be permitted until rental vacancies reach a specified adequate level. Metro will be best served if investment goes to produce new housing. This will increase rather than (like condominium conversion) decrease the tax base, maintain population, create more construction activity, and provide needed affordable homeownership without asking low-income households to pay the price. The Province should continue to empower municipalities to prohibit demolition and conversion of rental buildings.

Conclusions :

Among the one-half of Metro households who rent their homes, there are widespread affordability problems. The risk of losing affordable rental housing is great. The main impediments to a much-needed renewal private rental construction can be dealt with by steps to reduce costs rather than increase rent revenues at the expense of low and moderate income tenants. Council should, therefore, oppose any changes to existing rent control and rental tenancy legislation, and should support the maintenance of the key protections in the existing legislation if changes are introduced by the Province.

Summary Chart :

This report conforms with the following:

Council Approved Three-year Plan (n/a)

Corporate Personnel and

Administrative Policies (n/a)

Approved Capital Budget (n/a)

Approved Current Budget (n/a)

Standing Committee Approved

Program Priority (n/a)

Metro Official Plan (n/a)

Contact Name and Telephone Number :

Caryl Arundel:
392-8613

Table 1 - Rental Affordability in Metro, 1991

Household
Income Number of Households
by Per Cent. of Income Spent on Housing Total
<30% 30-49% 50%+
$1-$13,362 20,000 11,900 47,100 79,000
$13,363-$23,297 25,200 33,100 15,000 73,300
$23,298-$32,256 47,000 19,400 3,200 69,600
>$32,256 202,900 15,400 1,100 219,400
Total Tenants 295,100 79,800 66,400 441,300
Source: 1991 Census, special runs (rounded to nearest 100)

This table shows Metro tenant households by income range, using the lowest three 10 per cent. categories ("deciles") for the Toronto region, plus a category ($32,256.00 up) for all other tenants. Tenants paying over 30 per cent. of income on housing (rent and utilities) are considered to have affordability problems, while those paying over 50 per cent. have severe affordability problems.

The Human Services Committee also submits the following communication (March 25, 1996) from Metropolitan Councillors Ila Bossons, Olivia Chow, Paul Christie, Dennis Fotinos, Anne Johnston, Jack Layton, David Miller, and Joe Pantalone:

We the undersigned Metropolitan Councillors from the City of Toronto attended, or are aware of, the Special Neighbourhoods Committee meeting held on February 21, 1996, at City Hall, regarding rent controls, at which the attached report was discussed and the following recommendations were adopted by City Council at its meeting on March 4 and 5, 1996:

"(1) urge the Province of Ontario to abandon its proposal to repeal or amend the Rent Control Act, the Rental Housing Protection Act, and the Landlord and Tenant Act;

(2) request the Minister of Housing and the Minister of Municipal Affairs to ensure that heavy fines be imposed on landlords who are found guilty of failing to meet legal maintenance standards;

(3) urge the Minister of Housing and the Minister of Municipal Affairs to consider the establishment of a Capital Reserve Fund as a possible solution to the capital expenditure problem, such a reserve to be funded by the landlords out of the guidelines increase and by other means, and not from any extra charge imposed on tenants;

(4) request that its previous actions relating to positions taken with respect to rent control and the establishment of a Capital Reserve Fund be distributed to Metro Toronto, each municipality within Metro Toronto, the Provincial Conservative, Liberal and NDP Parties, and the Association of Municipalities of Ontario, with a request that they endorse these actions of Council; and

(5) authorize the display of the transit size `Save Rent Control' posters in every City-owned public building, including all libraries and community centres;"

We support this and are committed to bring the issue before Metropolitan Council.

Based on most recent CMHC information, vacancy rates in Metropolitan Toronto for 1996 are at 0.75 per cent. and it is anticipated that they will go as low as 0.3 per cent. in 1997. It is our opinion that there is a critical need to maintain rent controls on rental stock throughout Metropolitan Toronto.

We would, therefore, request that the Commissioner of Community Services and appropriate Metropolitan Officials report to the meeting of the Human Services Committee to be held on May 13, 1996, discussing the impact of the elimination of rent controls throughout Metropolitan Toronto. We wonder whether it would be appropriate to ask the Minister for an exemption from the elimination of rent controls in Metropolitan Toronto.

The Human Services Committee also had before it during consideration of the foregoing matter communications from the following:

(May 1, 1996) from Ms. Anne Dubas, President, Canadian Union of Public Employees, Local No. 79, forwarding a copy of a communication addressed to The Honourable Al Leach, Minister of Municipal Affairs and Housing, urging the provincial government to abandon its proposal to repeal or amend the Rent Control Act; and

(June 11, 1996) from Mr. Paul Rodgers, Toronto Christian Resource Centre.

The following persons appeared before the Human Services Committee in connection with the foregoing matter:

- Mr. Howard Tessler, on behalf of Mr. Robert B. Levitt, who submitted a brief in regard thereto;

- Councillor Anne Johnston, Toronto - North Toronto;

- Mr. Ken Demerling, Federation of Metro Tenants Association;

- Mr. Wayne Dillon, Fort York Local Anti-Poverty Organization;

- Mr. John Maclennan, Co-ordinator, Unemployed Workers Council; and submitted a brief in regard thereto;

- Mr. Alvin Curling, M.P.P. for Scarborough North;

- Mr. Bob Olsen, Board Member, Open Door Centre;

- Mr. Lenny Abramowicz, Neighbourhood Legal Services;

- Mr. Gilles Bisson, M.P.P. for Cochrane South;

- Ms. Hester Jackson, Older Women's Network;

- Mr. Norm Feltes, East Toronto Community Legal Services;

- Ms. Maria Drexler;

- Ms. Amina Ahmad;

- Ms. Heather Cook;

- Ms. Martha Dellaire, The Ontario Coalition of Senior Citizens' Organizations;

- Mr. Brook Physick, North York Inter-Agency and Community Council;

- Mr. Ken Taylor, South Etobicoke Community Legal Services;

- Mr. Bart Poesiat, Parkdale Tenants Association;

- Mr. Farah Khayne, Midaynta;

- Ms. Susan Beaudin;

- Mr. David Hanna;

- Mr. John Colling;

- Ms. Olga Kremko

- Mr. Ken Warner, Parkdale Community legal Services; and

- Councillor Jack Layton, Toronto - Don River.

Councillor David Miller, Toronto - High Park, was also present at the meeting of the Human Services Committee during consideration of the foregoing matter.

Councillor Olivia Chow, at the meeting of the Human Services Committee on June 10 and 11, 1996, declared her interest in those portions of the foregoing report and any motions having reference to owner-occupied dwellings in which rooms may be rented, in that she may rent such rooms.

Councillor Jack Layton, at the meeting of the Human Services Committee on June 10 and 11, 1996, declared his interest in those portions of the foregoing report and any motions having reference to owner-occupied dwellings in which rooms may be rented, in that he may rent such rooms.

(A copy of each of the communication and report from the City of Toronto referred to in the foregoing communication from the eight Metropolitan Councillors was forwarded to all Members of Council with the agenda of the Human Services Committee for its meeting on June 10 and 11, 1996, and a copy thereof is on file in the office of the Metropolitan Clerk.)

FOR COUNCIL ACTION

COMMUNITY RESOURCES FUND - 1996 ALLOCATIONS.

The Human Services Committee recommends to Council:

(i) the adoption of the report dated May 27, 1996, from the Commissioner of Community Services; and

(ii) that the Commissioner of Community Services be requested to establish a process to respond to community concerns, as part of the agreement for the funding to the Friends of Shopping Bag Ladies (Item No. 107) and the Open Door Centre (Item No. 171), and report thereon to the Human Services Committee.

The Human Services Committee reports, for the information of Council, having:

(1) referred the appeals from the following to the Commissioner of Community Services for further consideration and report thereon to the next meeting of the Human Services Committee to be held on July 29, 1996:

Alliance for South Asian AIDS Prevention (Item No. 8);

Canadian Tamil Women's Community Services (Item No. 43);

Elspeth Heyworth Centre for Women (Item No. 93);

Iranian Women's Organization (Item No. 119);

Ogaden Somali Community Association of Ontario (Item No. 170); and

Thistletown Community Services Unit (Item No. 234).

(2) requested Councillors Griffin and Kinahan to meet with the appropriate parties with regard to the issues pertaining to the grant to the Etobicoke Social Development Council, and report thereon directly to Council for its meeting on July 3, 1996; and

(3) requested the Commissioner of Community Services to consult with the affected community when assisting the Toronto Counselling Centre for Lesbians and Gays (Item No. 242) in negotiating a potential merger agreement with the Family Services Association of Metropolitan Toronto.

The Human Services Committee submits the following report (May 27, 1996) from the Commissioner of Community Services:

Purpose :

This report presents the recommended allocations for 285 agencies which have applied for Metropolitan support under the Community Resources Fund (C.R.F.).

Funding Sources, Financial Implications and Impact Statement :

Sufficient funds for the 1996 C.R.F. allocations exist in the Community Services Grants Program appropriation of the Community Services Department approved estimates.

Recommendations :

It is recommended that:

(1) the attached 1996 Community Resources Fund allocations, totalling $8,356,500.00 for 265 agencies, described in Appendices A and B, be approved; and

(2) the appropriate Metropolitan Officials be authorized to take the necessary action to give effect thereto.

Council Reference/Background/History :

Under the general authority for making municipal grants provided in Section 113(1) of the Municipal Act, the Municipality of Metropolitan Toronto provides funds to organizations which operate direct social services. The Community Resources Fund, which was established in 1994 as an amalgamation of existing smaller grants programs, is the primary means of Metropolitan support for community-based social service agencies.

Comments and/or Discussion and/or Justification :

The Community Resources Fund:

The C.R.F. provides ongoing support for the provision of Essential Community Functions (E.C.F.). E.C.F.s are broadly defined as activities which contribute to the creation of strong communities and which ensure equitable access to services. Five E.C.F.s have been identified: Community Social Support, Crisis Support, Information and Referral, Planning and Co-ordination, and Community Development.

Funding allocations are based on a number of principles including equitable access to grants. More specifically, equitable access to grants is assessed in terms of: agency equity, meaning an individual agency allocation relative to other funded agencies; sector equity, meaning the amount of funds directed to a specific sector relative to other service sectors, and community equity, meaning the amount of funds directed to a specific geographic or common bond community relative to other communities. Other factors such as agency effectiveness and efficiency, community needs and available resources, are also considered in developing allocation recommendations. In 1996, staff evaluated and assessed agencies according to the community and agency equity measures and agency performance. The impact of provincial funding program cuts on individual agencies and service sectors was also considered.

In December, 1995, Metropolitan Council approved a report, entitled "Community Grants Panel - Funding Priorities", which recommended significant modifications to the E.C.F.s and funding priorities. The report further recommended that the proposed changes be discussed with community agencies prior to implementation. Staff are planning to consult with agencies over the summer in regard to the proposed changes and will report on the outcome to the Human Services Committee in October, 1996.
Reductions in Funding to the Community-Based Sector:

In October, 1995, the provincial government announced significant funding cuts to community-based agencies, primarily through the Ministry of Community and Social Services. The funding loss to Metropolitan agencies through two affected programs was approximately $3,000,000.00 (Community and Neighbourhood Support Services Program and Multi-lingual Access to Social Assistance). Subsequent program reductions have been announced since the October cuts, affecting Community Information Centres, the Ontario Anti-Racism Secretariat, ongoing pay equity contributions, and significant reductions in the funds for community-based agencies through the Ministry of Citizenship, Recreation, and Tourism.

The transfer payment to municipalities for the Purchase of Adult Counselling Services, administered through the Social Services Division was also cut as of January 1, 1996. A number of C.R.F. funded agencies also received funding through purchase of service agreements, the most notable being the Community Information Centre of Metropolitan Toronto for the after hours emergency welfare program.

The effects of these reductions have been immediate and significant. In most cases agencies were given two months' notice that funding would be withdrawn, leaving community boards little time to react or adjust to the cuts. In many cases, boards had no option but to give notice to staff immediately in order to meet their obligations under Employment Standards legislation.

While funding reductions have occurred primarily at the provincial level, significant shifts in how the federal government provides support for community-based settlement and language training programs are expected to occur in the next two years, compounding the current funding crisis.

A joint survey of community-based agencies sponsored by the City of Toronto, Social Planning Council of Metropolitan Toronto, and Municipality of Metropolitan Toronto, submitted to the Human Services Committee at its May, 1996, meeting provides a detailed picture of the impacts of reductions in public sector support to community-based services. This report also provides concrete information regarding both current and expected program closures due to the loss of funding.

Community and Neighbourhood Support Services Program:

The Community and Neighbourhood Support Services Program (C.N.S.S.P.) was established in 1985 to provide secure core operating support to local community-based organizations. Funding for C.N.S.S.P. core grants was shared 50 per cent. by the Ministry of Community and Social Services, and 25 per cent. each by the United Way of Greater Toronto, and the Municipality of Metropolitan Toronto. Core funding levels were determined jointly by the three funding partners.

In October, 1995, the Provincial Government announced that it would cut the provincial C.N.S.S.P. program entirely as of January 1, 1996. The Province used the sixty day notice clause to allow them to implement the cut even though existing funding contracts with agencies were in effect until March 31, 1996. Advance notice of the cut was not given to either Metro or United Way.

The remaining funding partners, United Way and Metro, met with funded agencies to indicate that the program could not be continued without the Province and that neither had the resources to replace the lost provincial funding. Metro staff indicated that because the Metro C.N.S.S.P. had always been a part of the C.R.F., agencies would be eligible for support under the broader fund. Similarly, at United Way, agencies formally funded under C.N.S.S.P. could request support under the Community Initiatives Program. Both funders encouraged the agencies to apply under the alternate programs. Agencies were also encouraged to actively consider restructuring as a method of retaining at least some programs.

As a result of the provincial cuts to the C.N.S.S.P., most agencies have reduced staff and programming. Three of the 20 agencies funded under the program in 1995 did not reapply for funding in 1996. Six of the remaining 17 agencies are now actively involved in mergers with other agencies.

United Way Community Initiatives Fund:

United Way established the Community Initiatives Fund (C.I.F.) in 1984, in order to provide support to community agencies who were deemed to be well-performing but not yet ready or appropriate for United Way membership. Thirty five agencies were funded under the C.I.F. program in 1995, 26 of which were also funded through the C.R.F. United Way has recently announced that the C.I.F. program will end as of this year. Non-member agencies may continue to apply for support under the Community Action Grants Program which provides time limited project funding, unlike the C.I.F. funding which could be used as core funding to cover administrative expenses. The loss of the C.I.F. program will have a significant impact on agencies.

Local Planning Organizations:

The five Local Planning Organizations (L.P.O.s) serving North York, Etobicoke, East York, Scarborough, and York, also lost significant provincial funding on January 1, 1996. The Ministry of Community and Social Services provided program funding to L.P.O.s for the development of co-ordinating committees for children's and youth services. The loss of this funding has resulted in significant internal restructuring in a number of the L.P.O.s.

Staff have identified the need to review the community planning system, the respective roles and functions of the local and Metropolitan-wide planning bodies, and the priorities for community planning in the current environment. Uneven performance of the five L.P.O.s has emphasized the concerns regarding existing community planning structures. Staff are recommending that L.P.O.s continue to receive Metropolitan support in 1996. However, given the concern regarding the financial viability and performance issues, the existing community planning structures will be reviewed by staff to determine how the system can be made more effective.

Services for Seniors:

Shortly after taking office the current provincial government suspended Bill 173, An Act Respecting Long-Term Care. The Human Services Committee received a report, entitled "Provincial Announcement on Long Term Care Reform", at its February, 1996, meeting which detailed the new provincial plan for reform. It has replaced the Multi Service Agencies with Community Care Access Centres (C.C.A.C.). There are two critical differences under the C.C.A.C. plan which will affect Metro funded seniors agencies: first, the management and funding of services which are primarily delivered by volunteers (e.g., meals on wheels, friendly visiting, etc.) will not change; and second, profit and not for profit home support service providers will be required to compete for home support service contracts. Staff are closely monitoring the development of the C.C.A.C.s and have initiated discussions with Ministry staff regarding the impact of C.C.A.C.s on Metropolitan funding for community-based seniors services.

Restructuring:

In the context of ongoing and severe reductions in government support, community-based agencies are faced with very difficult choices. Many agencies are identifying ways to increase their revenue generating activities as a response to the cuts. While agencies are always encouraged to pursue worthwhile fundraising opportunities, the magnitude of the cuts likely exceeds the sector's ability to generate other income. Given a significant net loss in the resources available, the options for community-based agencies must include service reduction or elimination, agency closures, and restructuring.

As the magnitude of the provincial reductions became clear, Metro staff identified the need to encourage the community to undertake significant reorganization in order to maintain as much of the community-based infrastructure in Metropolitan Toronto as possible. A key element in responding to the cuts has been to focus on maintaining programs rather than agencies.

Restructuring may not provide significant cost-savings in the short term. Time and resources are required to facilitate fundamental change in the complex service systems in place at the community level. There will, however, be efficiencies in the long term as a result of strategic restructuring initiatives that are undertaken now.

A report, entitled "1996 Initiatives and Innovations Fund", submitted to the May, 1996, Human Services Committee meeting, outlined current restructuring efforts. Combined C.R.F. allocations are recommended to three sets of agencies which have either merged, or are in the process of merging. Staff have recognized community efforts to restructure by recommending either flatline or small increases to the merger agencies.

Metro Emergency Support Fund:

In January, 1996, Metropolitan Council approved emergency funding in the amount of $600,000.00 for services for homeless and socially isolated persons at the request of the Metro Advisory Committee on Services to Homeless and Socially Isolated Persons. Services for these groups also received significant cuts in funding from the provincial government at a time when service demand is unprecedented. A number of agencies funded under the C.R.F. received allocations under this fund. In light of the priority placed on services to the homeless, staff have recommended flatline allocations to single service drop-in centres.

New Applicants and Annualized Allocations:

Sixteen agencies which did not receive funding in 1995 applied for support in 1996. A number of these agencies had received one-time funding from Metro in 1994 under the Initiatives and Innovations Fund. Staff have not recommended any new agencies for funding given the reduction in the grants budget. In addition, funding new organizations would be difficult to implement at a time when funded agencies are either being reduced or encouraged to restructure. Staff indicated during the interviews with new applicants that it was unlikely that new agencies would be recommended for funding this year.

1996 Budget:

The total amount approved in the 1996 C.R.F. is $8,381,500.00, which is 3.16 per cent. less than allocated under the Fund in 1995. Although the total grants appropriation was reduced by 5 per cent., larger reductions have been taken in the Initiatives and Innovations Fund and the Special Grants part of the overall grants allocation in order to minimize the impact of the cut to the Community Resources Fund.

Application and Assessment Process:

Overall, 285 agencies requested $9,807,774.00 under the 1996 C.R.F. This includes 269 previously funded agencies and 16 agencies not funded under the C.R.F. in the past. Fifteen agencies funded in 1995 did not reapply for funding in 1996.

As in previous years, applications were reviewed by the Agency Review Officers in accordance with Metropolitan approved policies, the eligibility criteria and priorities. The review process included interviews with each agency to determine their eligibility, assess their capacity to deliver the essential community functions, clarify access issues and discuss Metropolitan expectations regarding governance, financial management, community linkages and program development and delivery.

Allocation Recommendations:

Appendix A provides a detailed listing of the recommendations for funding in 1996.

Of the 285 applicants, 265 agencies have been recommended for a total of $8,356,500.00. Of the remaining 20 agencies, one withdrew, three are not recommended for funding and the remaining 16 are new applicants discussed above.

In determining allocations staff attempted to minimize the impact of the reduction to vulnerable programs and agencies and applied all the allocations criteria described above.

As indicated in the report, entitled "Administration of the Reduction in Grants to Community Agencies", received by the Human Services Committee at its April, 1996, meeting, principles of equitable access to grants, agency effectiveness and efficiency, community needs and available resources were considered in developing recommendations. As discussed above, an additional consideration for the 1996 process was to support organizations which have undertaken formal restructuring initiatives.

Agencies with allocations of $20,000.00 or less were not reduced unless there were specific performance concerns. The recommendations are consistent with the funding equity approach used in the C.R.F. allocations process over the past three years.

1996 Allocation Summary No. of Agencies

Recommended reduction greater than 2.7 per cent. 4

Recommended reduction of 2.7 per cent. 88

Agency requested reduced grant 14

Flatline grant 143

Total 265

Over half of agency allocations were either flatlined or increased. Five agencies are being recommended for an annualized allocation in 1996. These are agencies which received funding for the last quarter of 1995 and are now recommended for a 12-month allocation. An additional 11 agencies were recommended for increased allocations because they received grants of less than $5,000.00 in 1995, or there were outstanding geographic or common bond funding equity issues.

Of the 265 recommended agencies, 67 ethno-specific and six Aboriginal agencies will receive $1,857,247.00, or 22 per cent. of the total 1996 C.R.F. recommended allocations.

The following chart illustrates the geographic distribution of recommended agencies:

By Area Municipalities No. of Agencies Amount Recommended

Etobicoke 20 $ 520,817.00

East York 12 350,731.00

North York 28 929,481.00

Scarborough 22 848,238.00

Toronto 81 2,594,073.00

York 13 351,342.00

Metropolitan-wide Toronto

2,761,818.00

Total 265 $ 8,356,500.00

Appeals and Reserve Allocation:

As directed by Committee last year, an amount of $25,000.00 has been set aside for appeals.

Other Issues Identified During the 1996 Allocations Process:

Since 1994, funded agencies have been advised that they will be required to have anti-discrimination/access policies in place by 1997 in order to be considered eligible for C.R.F. funding. The majority of funded agencies have either approved, or draft, policies in place. Agencies which do not have a policy have been advised that the policy must be in place by 1997 in order to be considered for funding.

A number of agencies have been given future funding conditions related to the membership and board structure of their organization. All agencies are required to have an open and accessible membership providing an appropriate means of ensuring community input and control in decision-making.

In the past, organizations receiving grants of less that $10,000.00 and having annual budgets of less than $30,000.00 were not required to provide audited statements. Upon review of the Corporations Act, it was discovered that all incorporated organizations are required to have audits prepared each year. Therefore, all agencies applying for C.R.F. funding in 1997 will be required to submit audited statements. Agencies have been advised of this change.

All funded agencies are required to generate income from non-government sources. This is done through a number of mechanisms including fundraising events and campaigns, membership fees, user fees, corporate campaigns, grants from foundations, productive enterprises, and gaming activity. The competition for the dollars available through these sources has always been great. In the recent budget speech, the provincial government announced a relaxation of the fundraising regulations which apply to major institutions, allowing them to compete directly with smaller not for profit organizations. This will have a significant negative impact on the ability of smaller community-based organizations to fundraise.

Conclusions :

Community-based service agencies play a critical role in Metro's social service infrastructure. They contribute positively to the quality of life in their communities in a cost-effective and responsive way. Agencies and communities have identified Metro's continued funding and support of their work as critical in these difficult times.

Agencies understand that resource constraints from all funding sources will continue. They have faced this challenge by making more extensive use of volunteers and by trying to increase their self-generated revenues. Agencies have implemented many strategies to preserve programs and continue to serve their clients. Strategies have included increased workloads, salary roll backs, reductions in hours of service, and program cutbacks or closure. In addition, agencies are being strongly encouraged to pursue creative restructuring activities in order to maintain as much of the community-based human service system as possible.

This report recommends that a total of $8,356,500.00 be granted to 265 agencies under the C.R.F.

Summary Chart :

This report conforms with the following:

Council Approved Three-year Plan (n/a)

Corporate Personnel and

Administrative Policies (x)

Approved Capital Budget (n/a)

Approved Current Budget (x)

Standing Committee Approved

Program Priority (x)

Metro Official Plan (n/a)

Contact Name and Telephone Number :

Caryl Arundel:
392-8613

Appendix A

1996 Community Resources Fund

Agency Name and Essential

1995

1996

Community Functions:	Approved	Amount	Amount
	Allocation	Requested	Recommended

1. Abrigo Centre for Victims of 5,000.00 20,000.00 20,000.00 A

Family Violence

2. Advocacy Resource Centre for 24,862.00 24,862.00 24,191.00

the Handicapped (A.R.C.H.)

3. Afghan Women's Counselling and 16,000.00 20,000.00 16,000.00

Integration Community

Support Organization

4. Africans in Partnership Against AIDS 15,000.00 33,000.00 15,000.00

5. Agincourt Community Services 18,000.00 18,000.00 18,000.00

Association

6. AIDS Committee of Toronto 61,777.00 95,600.00 60,109.00

7. Alexandra Park Community Centre 14,447.00 24,500.00 14,447.00

8. Alliance for South Asian AIDS 0.00 69,344.00 0.00 N

Prevention

9. Alzheimer Society for Metropolitan 10,000.00 15,000.00 10,000.00

Toronto

10. Anishnawbe Health Toronto 10,000.00 75,785.00 10,000.00

11. Applegrove Community Complex 33,332.00 33,332.00 32,432.00

12. Arab Community Centre of 17,303.00 17,303.00 17,303.00

Toronto, The

13. Armenian Relief Society, Inc., 16,000.00 16,000.00 16,000.00

The "Roubina" Chapter

14. Asian Community Centre of Toronto 24,243.00 0.00 0.00 DNR

15. Assaulted Women's Helpline 58,715.00 58,715.00 57,130.00

16. Association of Pensioners and 16,390.00 22,000.00 16,390.00

Injured Workers of Ontario (APIO)

17. Autism Society Ontario, 5,000.00 5,000.00 5,000.00

Metro Toronto Chapter

18. Barbra Schlifer Commemorative 15,000.00 20,000.00 15,000.00

Clinic

19. Bathurst Jewish Centre 14,400.00 14,400.00 14,400.00

20. Baycrest Centre for Geriatric Care 298,800.00 335,000.00 268,920.00

21. Bereaved Families of Ontario - 33,672.00 33,672.00 32,763.00

Metropolitan Toronto

22. Bernard Betel Centre for 110,200.00 110,200.00 107,225.00

Creative Living

23. Bikur Cholim: Jewish Volunteer 5,000.00 14,000.00 14,000.00 A

Services of Toronto

24. Birchmount Bluffs Neighbourhood 24,171.00 0.00 0.00 JA

Centre

25. Blake Boultbee Youth 15,000.00 20,000.00 15,000.00

Outreach Service

26. Bloor Information and Legal Services 14,500.00 14,500.00 14,500.00

27. Bloor-Bathurst Interchuch Gathering 12,125.00 12,125.00 12,125.00

Spot

28. Bob Rumball Centre for the Deaf 13,482.00 13,482.00 13,482.00

29. Boys and Girls Club of Downtown 31,492.00 32,400.00 30,642.00

Toronto

30. Braeburn Neighbourhood Place 26,154.00 28,000.00 25,448.00

31. Brahms Residents Committee 20,000.00 20,000.00 20,000.00

(Trustee: Adventure Place)

32. Cabbagetown Youth Centre 23,956.00 23,956.00 23,309.00

33. Canadian African Newcomer Aid 20,000.00 29,500.00 20,000.00

Centre of Toronto (CANACT)

34. Canadian Cambodian Association of 14,000.00 29,430.00 27,000.00

Ontario

35. Canadian Centre for Victims 15,000.00 23,500.00 15,000.00

of Torture

36. Canadian Hearing Society 14,800.00 14,800.00 14,800.00

37. Canadian Italian Family 5,000.00 5,000.00 5,000.00

Assistance Association

38. Canadian Mental Health Association - 15,000.00 15,000.00 15,000.00

Metropolitan Toronto Branch

39. Canadian Multilingual Literacy Centre 9,400.00 9,400.00 9,400.00

40. Canadian National Institute 45,029.00 45,080.00 43,813.00

for the Blind (CNIB)

41. Canadian Paraplegic Association 17,560.00 17,560.00 17,560.00

Ontario

42. Canadian Red Cross Society, 22,524.00 22,524.00 21,916.00

Metropolitan Toronto Region

43. Canadian Tamil Women's Community 0.00 24,000.00 0.00 N

Services

44. Catholic Cross Cultural Services 23,060.00 24,930.00 22,437.00

45. Central and Northern Etobicoke Home 74,037.00 74,037.00 72,038.00

Support Services (CANES)

46. Central Eglinton Community Centre 15,000.00 15,000.00 15,000.00

47. Central Neighbourhood House 101,479.00 101,479.00 98,739.00

48. Centres d'Accueil Heritage, 55,412.00 69,416.00 53,916.00

Centres Des Pionniers, Les

49. Centre For Spanish Speaking Peoples 24,206.00 28,000.00 23,552.00

50. Chalkfarm Community and 19,000.00 19,000.00 19,000.00

Family Centre

51. Children's Storefront, The 19,698.00 19,698.00 19,698.00

52. Chinese Information and Community 39,570.00 50,000.00 38,502.00

Services

53. Chinese Seniors Health and 5,000.00 19,000.00 15,000.00 A

Recreation Association

54. Chinese Seniors' Support 31,090.00 105,875.00 30,251.00

Services Association

55. Circolo dell'Anziano "Le Caravelle" 8,800.00 9,500.00 8,800.00

56. Cliffcrest Community Centre 10,450.00 10,450.00 10,450.00

57. COFTM/Centre Francophone 22,542.00 22,542.00 21,933.00

58. College-Montrose Children's Place 13,725.00 13,725.00 13,725.00

59. Common Ground Women's Centre 15,000.00 20,489.00 15,000.00

60. Community Care East York 116,130.00 116,130.00 112,994.00

61. Community Centre 55 10,001.00 10,001.00 10,001.00

62. Community Information Centre for 19,000.00 25,000.00 19,000.00

the City of York

63. Community Occupational Therapists 8,519.00 8,519.00 8,519.00

and Associates (COTA)

64. Conflict Mediation Services of 15,000.00 15,000.00 15,000.00

Downsview

65. Connect Information Post 15,000.00 20,000.00 15,000.00

66. Coping In Tough Times 15,000.00 17,000.00 15,000.00

67. COSTI-IIAS Immigrant Services 68,854.00 68,854.00 66,995.00

68. Council Fire Native Cultural Centre 20,286.00 20,286.00 20,286.00

69. Creating Together Parkdale 20,925.00 19,879.00 19,879.00

70. Creative and Natural Outdoor 12,000.00 12,000.00 12,000.00

Experience Inc. (Project CANOE)

71. Credit Counselling Service of 4,427.00 0.00 0.00 LP*

Metropolitan Toronto, The

72. Crescent Town Community 10,000.00 22,500.00 22,500.00 JA*

Association

73. Crescent Town Kiddie Corner 12,500.00 0.00 0.00 JA

74. Davenport-Perth Neighbourhood 28,001.00 43,001.00 35,000.00

Centre

75. Day Care Connection (Toronto) Inc. 15,000.00 15,000.00 15,000.00

76. Day Centres and Visiting Services 48,815.00 48,815.00 47,497.00

for Seniors of Etobicoke

77. Daystrom Family Resource Centre 42,188.00 39,188.00 39,188.00

78. Delta Child Care Network of Ontario 24,110.00 24,000.00 24,000.00

79. Distress Centre 40,066.00 40,066.00 38,984.00

80. Dixon Hall Neighbourhood and 106,843.00 106,843.00 103,958.00

Family Centre

81. Dovercourt Boys' and Girls' Club 22,533.00 49,250.00 21,925.00

82. Downsview Services to Seniors Inc. 76,778.00 77,737.00 74,705.00

83. East End Children's Centre 20,000.00 20,000.00 20,000.00

84. East Mall Neighbourhood Services 25,205.00 0.00 0.00 DNR

85. East Scarborough Boys and Girls Club 42,814.00 42,814.00 41,658.00

86. East Toronto Seniors Centre 12,341.00 12,341.00 12,341.00

87. East York Family Resources 20,000.00 20,000.00 20,000.00

88. East York Learning Experience 11,000.00 11,000.00 11,000.00

89. East York Meals on Wheels 24,210.00 24,210.00 23,556.00

90. Eastview Neighbourhood Community 63,556.00 63,556.00 61,840.00

Centre

91. Elderly Vietnamese Association, The 11,375.00 12,000.00 11,068.00

92. Elizabeth Fry Society of Toronto 10,530.00 10,530.00 10,530.00

93. Elspeth Heyworth Centre for Women 0.00 30,000.00 0.00 N

(North York)

94. Epilepsy Association, Metro Toronto 24,281.00 24,281.00 23,625.00

95. Ethiopian Association in Toronto 19,000.00 25,000.00 19,000.00

96. Etobicoke Family Life Education 17,000.00 20,000.00 17,000.00

Council

97. Etobicoke North Community 22,796.00 66,523.00 53,100.00 JA*

Information Centre

98. Etobicoke Seniors Association 0.00 3,045.00 0.00 N

99. Falstaff Community Service 24,700.00 25,000.00 24,700.00

Organization

100. Family Service Association of 66,330.00 66,330.00 64,539.00

Metropolitan Toronto

101. Federation of Italian Canadian 20,000.00 25,000.00 20,000.00

Seniors' Club

102. Finnish Social Counselling Service 0.00 9,500.00 0.00 N

of Toronto

103. First People's Cultural and 18,900.00 18,900.00 18,900.00

Recreation Centre of Scarborough

Non-Profit Inc.

104. 519 Church Street Community Centre 26,918.00 26,918.00 26,191.00

105. Flemingdon Health Centre 4,650.00 0.00 0.00 LP*

106. Flemingdon Neighbourhood Services 27,598.00 27,598.00 26,853.00

107. Friends of Shopping Bag Ladies 16,224.00 16,224.00 16,224.00

108. George S. Syme Seniors' 27,338.00 27,338.00 26,600.00

Centre of York, The

109. Good Neighbours' Club 55,147.00 55,147.00 53,658.00

110. Greek Community of Metropolitan 45,991.00 45,991.00 44,749.00

Toronto Inc. - Social Services

Centre, The

111. Harbourfront Community Centre 20,000.00 32,579.00 20,000.00

112. Harmony Hall Centre For Seniors 40,618.00 40,618.00 39,521.00

113. Harriet Tubman Community 20,000.00 0.00 0.00 DNR

Organization

114. Hellenic Home for the Aged Inc. 7,100.00 25,000.00 7,100.00

115. Hispanic Community Centre for 19,000.00 20,000.00 19,000.00

the City of York, The

116. Hospital Special Needs Inc. 18,025.00 18,025.00 18,025.00

117. Houselink Community Homes 11,751.00 11,751.00 11,751.00

118. Iranian Community Association 10,000.00 20,000.00 14,378.00

of Ontario

119. Iranian Women's Organization of 0.00 18,000.00 0.00 N

Ontario

120. Islington Centre - Etobicoke 25,195.00 25,000.00 24,515.00

Senior Citizens

121. Jamaican Canadian Association 22,174.00 30,000.00 22,174.00

122. Jane Finch Adult Education and 8,965.00 9,000.00 0.00

Training Centre (Trustee: Jane Finch

Community and Family Centre)

123. Jane Finch Community and Family 56,993.00 56,993.00 64,419.00

Centre

124. Jane Finch Concerned Citizens' 19,725.00 0.00 0.00 DNR

Organization

125. Jane/Woolner Neighbourhood 24,675.00 0.00 0.00 JA

Association

126. Japanese Family Services of 15,000.00 20,000.00 15,000.00

Metropolitan Toronto

127. Jessie's Centre for Teenagers 10,000.00 25,000.00 10,000.00

128. Jewish Camp Council of Toronto 28,292.00 25,000.00 25,000.00

129. Jewish Information Services (JIS) 10,365.00 7,700.00 7,700.00

130. John Howard Society of Metropolitan 7,500.00 7,500.00 7,500.00

Toronto

131. Kababayan Community Service 20,000.00 20,000.00 20,000.00

Centre, Inc.

132. Korean Canadian Women's 20,000.00 25,000.00 20,000.00

Association

133. Korean Senior Citizens' Society of 14,735.00 15,000.00 14,735.00

Toronto

134. La Casa Dona Juana 12,000.00 15,000.00 12,000.00

135. Lakeshore Area Multi-Services 37,245.00 37,245.00 36,239.00

Project (LAMP)

136. Lakeshore Parent/Child Centre Inc. 17,413.00 17,413.00 17,413.00

137. Lakeshore Post Settlement Coalition 14,100.00 17,625.00 3,525.00

(Trustee: Stonegate Community

Health Centre)

138. Lao Association of Ontario 13,293.00 13,293.00 13,293.00

139. Latin American Community Centre 20,812.00 20,812.00 20,250.00

140. Latvian Senior Citizens Association 5,460.00 4,000.00 4,000.00

of Metropolitan Toronto

141. Learning Disabilities Association 8,000.00 8,000.00 8,000.00

of Ontario

142. Learning Enrichment Foundation 20,000.00 20,000.00 20,000.00

143. Loyola Arrupe Elderly Persons' 14,280.00 16,000.00 14,280.00

Centre

144. Macaulay Child Development Centre 5,500.00 5,500.00 5,500.00

(for the Junction Caregiver Resources)

145. Malvern Family Resource Centre 27,855.00 37,855.00 35,000.00

146. Marvin Morten Community Resource 0.00 60,000.00 0.00 N

Centre

147. Massey Centre for Women 23,948.00 23,948.00 23,301.00

148. Meals Here and There Inc. 14,319.00 15,480.00 14,319.00

149. Meals on Wheels and More 28,934.00 28,934.00 28,153.00

150. Mennonite New Life Centre of Toronto 0.00 30,000.00 0.00 N

151. Mid Toronto Community Services 118,127.00 118,127.00 114,938.00

152. Momiji Health Care Society 12,800.00 12,800.00 12,800.00

153. More Than Child's Play 15,000.00 15,000.00 15,000.00

154. National Congress of Italian 6,500.00 6,500.00 4,300.00

Canadians

155. National Council of Jewish Women 24,210.00 23,000.00 23,000.00

of Canada, Toronto Section

156. Native Canadian Centre of Toronto 59,857.00 59,857.00 59,857.00

157. Native Child and Family Services 30,000.00 64,000.00 30,000.00

of Toronto

158. Native Women's Resource Centre of 21,119.00 21,000.00 21,000.00

Toronto Inc.

159. Neighbourhood Information Centre 14,532.00 14,532.00 14,532.00

160. Neighbourhood Information Post 26,084.00 26,084.00 25,380.00

161. Neighbourhood Resource Centres of 37,288.00 44,000.00 36,281.00

Scarborough

162. New Directions (A Support Service 13,500.00 13,500.00 13,500.00

for Displaced Homemakers)

163. New Experiences for Latin American 20,000.00 20,000.00 20,000.00

Refugee Women

164. New Horizon Day Centre 5,950.00 5,450.00 5,450.00

165. North Albion Community Project 29,857.00 0.00 0.00 JA

166. North York Community House 19,500.00 25,000.00 19,500.00

167. North York Seniors' Centre 77,800.00 85,300.00 75,699.00

168. North York Women's Centre 14,963.00 15,000.00 14,963.00

169. Northwood Neighbourhood Services 20,000.00 35,000.00 20,000.00

170. Ogaden Somali Community 0.00 40,000.00 0.00 N

Association of Ontario

171. Open Door Centre and 39,049.00 39,049.00 39,049.00

Rooms Registry Service Inc.

172. Oriole Community Services 25,120.00 25,120.00 24,442.00

Association

173. Oromo Canadian Community 20,000.00 20,000.00 20,000.00

Association of Ontario

174. PAL Reading Services Inc. 13,295.00 15,295.00 13,295.00

175. Parents, Families and Friends of 0.00 5,000.00 0.00 N

Lesbians and Gays (P-FLAG)

176. Parkdale Community 14,965.00 17,965.00 14,965.00

Information Centre

177. Parkdale Golden Age Foundation 41,583.00 41,583.00 40,460.00

178. Parkdale Project Read 11,000.00 11,000.00 11,000.00

179. Pine Tree Senior Centre of 11,900.00 11,900.00 11,900.00

Scarborough Inc.

180. Polish Immigrant and Community 24,841.00 24,841.00 24,170.00

Services

181. Portuguese Social Service Centre 21,520.00 21,520.00 20,939.00

of Toronto

182. Positive Straight Men 10,000.00 26,800.00 10,000.00

(Trustee: Toronto People

with AIDS Foundation)

183. Ralph Thornton Centre 5,300.00 5,300.00 5,300.00

184. Reena 15,000.00 15,000.00 15,000.00

185. Rendezvous For Seniors at 3,450.00 4,000.00 4,000.00

Harbourfront

186. Rexdale Community MicroSkills 10,000.00 10,000.00 10,000.00

Development Centre

187. Rexdale Women's Centre 21,869.00 34,117.00 21,279.00

188. Riverdale Immigrant Women's Centre 30,229.00 30,229.00 29,413.00

189. Scadding Court Community Centre 3,200.00 14,726.00 6,541.00

190. Scarborough Crossroads Family 15,000.00 15,000.00 15,000.00

Resource Centre

191. Scarborough Distress Centre 10,000.00 24,970.00 10,000.00

192. Scarborough Support Services 58,148.00 58,148.00 56,578.00

for the Elderly

193. Scarborough Women's Centre 20,000.00 20,000.00 20,000.00

194. Second Mile Club of Toronto 77,903.00 77,906.00 75,800.00

195. Senior Adult Services 17,570.00 17,570.00 17,570.00

196. Senior Care 88,774.00 88,774.00 86,377.00

197. Senior Link 110,128.00 145,128.00 107,155.00

198. Senior Peoples' Resources in 117,326.00 130,000.00 114,158.00

North Toronto (S.P.R.I.N.T.)

199. Silayan Filipino Community Centre 16,592.00 16,600.00 16,592.00

200. Silent Voice Canada Inc. 20,083.00 20,083.00 20,083.00

201. Sistering - A Woman's Place 52,330.00 62,330.00 50,917.00

202. Skills for Change 0.00 10,000.00 0.00 N

203. Slovenian Linden Foundation 7,000.00 7,000.00 7,000.00

(Dom Lipa)

204. Society of Sharing: 13,800.00 13,800.00 13,800.00

Inner City Volunteers, The

205. Somali Canadian Association 16,000.00 20,000.00 16,000.00

of Etobicoke

206. Somali Immigrant Aid Organization 3,500.00 10,000.00 10,000.00 A

207. Somaliland Canadian Society of 0.00 34,034.00 0.00 N

Metro Toronto

208. South Asian Family Support Services 19,500.00 24,000.00 19,500.00

209. South Asian Social Services 21,275.00 21,275.00 0.00

Organization

210. South Asian Women's Centre 18,000.00 30,000.00 18,000.00

211. South East Asian Services Centre 15,214.00 25,166.00 15,214.00

212. South Riverdale Child/Parent 17,121.00 17,121.00 17,121.00

Drop-In Centre

213. St. Alban's Boys' and Girls' Club 13,671.00 13,671.00 13,671.00

214. St. Bernadette's Family Resource 7,000.00 7,000.00 7,000.00

Centre

215. St. Christopher House 221,826.00 221,826.00 210,735.00

216. St. Clair Community Youth Services 15,000.00 0.00 0.00 DNR

of Toronto

217. St. Clair O'Connor Community Inc. 16,974.00 16,125.00 16,125.00

218. St. Clair West Services for 50,904.00 50,904.00 49,530.00

Seniors Inc.

219. St. David's Village Senior Citizens' 4,033.00 0.00 0.00 DNR

Drop-In Centre

220. St. Matthew's Bracondale House 8,987.00 9,126.00 9,126.00

221. St. Paul L'Amoreaux Seniors' Centre 105,924.00 105,924.00 103,064.00

222. St. Stephen's Community House 90,536.00 86,010.00 86,010.00

223. Stonegate Drop-In Centre 11,155.00 11,155.00 11,155.00

224. STOP 103 Inc. 0.00 15,000.00 0.00 N

225. Storefront Humber Inc. 55,133.00 60,646.00 53,644.00

226. Student Assistance in North Toronto 7,899.00 7,899.00 7,899.00

for Seniors (SAINTS)

227. Sunshine Centres For Seniors 27,237.00 27,237.00 26,502.00

228. Swansea Mews Residents Group 12,000.00 9,500.00 0.00 WA

229. Syme Family Centre 23,824.00 0.00 0.00 JA

230. Syme-Woolner Neighbourhood and 0.00 55,000.00 55,000.00 JA*

Family Centre

231. Tamil Eelam Society of Canada 14,974.00 18,370.00 14,974.00

232. Taylor Place Senior Adult Centre 81,810.00 81,810.00 79,601.00

233. Telecare Etobicoke 20,000.00 20,500.00 20,000.00

234. Thistletown Community Services Unit 6,244.00 52,215.00 6,244.00

235. Thorncliffe Neighbourhood Office 15,000.00 15,000.00 15,000.00

236. Tigrayan Association in Toronto 0.00 30,000.00 0.00 N

237. Times Change Women's Employment 3,768.00 10,000.00 0.00 LP

Service

238. Toronto Adult Literacy for 11,000.00 11,000.00 11,000.00

Action Centre (ALFA)

239. Toronto and Central Ontario 31,717.00 31,000.00 30,861.00

Regional Hemophilia Society

240. Toronto Chinese Community Services 18,510.00 18,510.00 18,510.00

Association

241. Toronto Christian Resource Centre 16,839.00 16,875.00 16,839.00

242. Toronto Counselling Centre for 20,000.00 25,000.00 20,000.00

Lesbians and Gays

243. Toronto East End Literacy Project 10,000.00 10,000.00 10,000.00

244. Toronto Finnish Canadian Seniors 14,791.00 15,000.00 14,791.00

Centre Inc.

245. Toronto Friendship Centre Inc. 29,610.00 55,000.00 29,610.00

246. Toronto Intergenerational Project 15,000.00 25,000.00 15,000.00

247. Toronto Kiwanis Boys and Girls Club 19,504.00 19,504.00 19,504.00

248. Toronto Organization for Domestic 16,000.00 16,000.00 16,000.00

Workers' Rights (Intercede)

249. Toronto People with AIDS 27,883.00 27,883.00 27,130.00

Foundation (PWA)

250. Toronto Rape Crisis Centre 27,816.00 26,425.00 26,425.00

251. Trinity Bellwoods Community 0.00 10,000.00 0.00 N

Children's Group

252. Tropicana Community Services 23,085.00 23,000.00 23,000.00

Organization

253. True Davidson Meals on Wheels 18,995.00 18,995.00 18,995.00

254. Ukrainian Canadian Social 26,640.00 26,640.00 25,921.00

Services (Toronto), Inc.

255. Union of Injured Workers 17,554.00 17,554.00 17,554.00

of Ontario Inc.

256. University Settlement 59,619.00 59,619.00 58,009.00

Recreation Centre

257. Variety Village 16,000.00 0.00 0.00 LP*

258. Vermont Square Parent-Child Mother 13,125.00 13,125.00 13,125.00

Goose Program

259. Vietnamese Youth Centre of Toronto/ 18,000.00 15,000.00 15,000.00 JA*

Vietnamese Association, Toronto

260. Villa Colombo Home for the Aged 35,968.00 35,968.00 34,997.00

261. Villaways Community Association 10,000.00 10,000.00 10,000.00

262. Voices of Positive Women Support 0.00 20,656.00 0.00 N

Services (Ontario)

263. Volunteer Centre of Metropolitan 147,393.00 147,393.00 143,413.00

Toronto

264. Volunteers Etobicoke 8,400.00 8,400.00 8,400.00

265. Warden Woods Church and 121,913.00 121,913.00 118,621.00

Community Centre

266. Welcome Baby Support Program 15,000.00 15,000.00 15,000.00

for Etobicoke

267. West Hill Community Services 73,113.00 72,798.00 71,139.00

268. West Indian Volunteer Community 20,000.00 25,000.00 20,000.00

Association

269. West Scarborough Neighbourhood 122,168.00 146,339.00 146,339.00 JA*

Community Centre

270. West Toronto Support Services 66,649.00 66,649.00 64,849.00

for the Elderly and Disabled

271. Wexford Centre 17,900.00 17,900.00 17,900.00

272. Willowridge Information 23,034.00 30,000.00 23,034.00

and Recreation Centre

273. Willowtree Tenants' Organization 16,300.00 16,000.00 16,000.00

274. Women's Counselling Referral and 12,298.00 12,298.00 12,298.00

Education Centre (W.C.R.E.C.)

275. WoodGreen Community Centre 213,968.00 203,269.00 203,269.00

of Toronto

276. Woodgreen Towers Services - 15,208.00 15,208.00 15,208.00

(Ray McCleary Towers)

277. Workers' Educational Association 3,310.00 0.00 0.00 LP*

of Canada, The

278. Working Women Community Centre 20,000.00 24,500.00 20,000.00

279. Wychwood Open Door 15,000.00 18,000.00 18,000.00

280. Yee Hong Centre for Geriatric Care 5,000.00 20,000.00 20,000.00 A

281. Y.M.C.A. of Greater Toronto 38,448.00 43,781.00 37,410.00

282. York Community Services 27,153.00 27,153.00 26,420.00

283. York-Fairbank Centre for Seniors 29,600.00 30,000.00 28,801.00

of the City of York

284. York West Meals on Wheels Inc. 47,978.00 47,980.00 46,683.00

285. York West Senior Citizens Centre Inc. 20,000.00 20,000.00 20,000.00

286. York Youth Connection 6,700.00 6,700.00 6,700.00

287. Yorkminister Park Meals on Wheels 7,733.00 7,733.00 7,733.00

288. Youth Assisting Youth 29,470.00 29,470.00 28,674.00

289. Youth Clinical Services Inc. 23,708.00 23,708.00 23,068.00

290.Youthlink - Inner City 92,706.00 92,706.00 90,203.00

Sub-Total: 7,939,932.00 9,099,767.00 7,668,531.00

Information and Referral

291.Community Information Centre of 358,683.00 340,067.00 340,067.00

Metropolitan Toronto

Sub-total: 358,683.00 340,067.00 340,067.00

Planning and Co-ordination

292. City of York Community and Agency 30,738.00 39,700.00 29,908.00

Social Planning Council

293. East York Community 30,738.00 30,738.00 29,908.00

Development Council

294. Etobicoke Social Development 30,738.00 31,107.00 29,908.00

Council

295. Human Services of Scarborough 30,738.00 32,275.00 29,908.00

296. North York Inter-Agency and 30,738.00 31,000.00 29,908.00

Community Council (N.Y.I.A.C.C.)

297.Social Planning Council of 138,750.00 138,750.00 135,004.00

Metropolitan Toronto

Sub-total: 292,440.00 303,570.00 284,544.00

Community Development

298. FoodShare Metro Toronto 37,490.00 37,490.00 36,478.00

299. Lawrence Heights Area Alliance 16,880.00 16,880.00 16,880.00

300.Self-Help Resource Centre of 10,000.00 10,000.00 10,000.00

Greater Toronto

Sub-total: 64,370.00 64,370.00 63,358.00

Appeal: 25,000.00

Grand Total: 8,655,425.00 9,807,774.00 8,381,500.00

Directory:

N - New Applicant
DNR - Did Not Reapply
JA - Joint Applicant
JA* - Joint Application
LP - Last Payment for Agency Program Three-Year Phased Out Funding Since 1994 and
in addition the agency reapplied for funding in 1996.

LP* - Last Payment for Agency Program Three-Year Phased Out Funding Since 1994
A - Annualized
WA - Withdrew Application

The Human Services Committee also had before it during consideration of the foregoing matter communications from the following:

(April 30, 1996) from the Commissioner of Administrative Services and Clerk/Treasurer, City of Etobicoke, advising that Etobicoke Council on April 29, 1996, in its adoption of Clause 124 of the Ninth Report of the Administration Committee, as amended, passed the following Recommendation No. 6:

"6. That Council request information from Metropolitan Toronto as to why they are not matching the Grant allocated to the Etobicoke Social Development Council as set out in the tripartite Agreement.";

(June 6, 1996) from Mr. Roy Cetlin expressing concerns with respect to continuation of funding for the Friends of Shopping Bag Ladies (Item No. 107) and Open Door Centre (Item No. 171); and requesting that all funding be withdrawn from these two organizations;

(June 6, 1996) from Mr. Kenneth Alexander Tipper requesting that funding be withdrawn with regard to Friends of Shopping Bag Ladies (Item No. 107) and Open Door Centre (Item No. 171);

(June 6, 1996) from Ms. Iris Magness regarding her experience with regard to the Open Door Centre (Item No. 171); and indicating that the activities at both the Open Door Centre and Friends of Shopping Bag Ladies, 416 Dundas Street East, can no longer be tolerated;

(June 7, 1996) from Ms. Holly Cartmell requesting that further funding to the Open Door Centre (Item No. 171) and Friends of Shopping Bag Ladies (Item No. 107) be denied; and

(June 9, 1996) from Mr. Nicholas Mortimer, S.O.B.R.A. member, requesting that both the Open Door Centre and Friends of Shopping Bag Ladies be denied funds.

The following persons appeared before the Human Services Committee in connection with the foregoing matter:

- Mr. Rasheed Abdi, Ogaden Somali Community Association of Ontario (Item No. 170);

- Ms. Shashi Puri, Elspeth Heyworth Centre for Women (Item No. 93); and submitted a brief in regard thereto;

- Mr. Kevin Lee and Mr. Angelo Sgabellone, President, University Settlement Recreation Centre (Item No. 256);

- Mr. Hubert Mantha, Concerned Friends of University Settlement House (Item No. 256), and on behalf of Mr. David Smiley, who submitted a brief in regard thereto, Ms. Diane Wells, past Board Member, who submitted a brief in regard thereto, Ms. Mary Alberti and Ms. Pearl Quong;

- Mr. Peter Stranks, Chair, Social Services Committee, Ms. Gerry Orwin and Mr. Dennis Finley, S.O.B.R.A., regarding the Friends of Shopping Bag Ladies and the Open Door Centre (Items Nos. 107 and 171 respectively); and submitted a brief in regard thereto;

- Ms. Catherine Seymoor, Chairperson of the Board of Directors, Open Door Centre (Item No. 171);

- Ms. Hardeep Kaur, Alliance for South Asian AIDS Prevention (Item No. 8);

- Ms. Barbara Howe and Ms. Peggy Dawe, Thistletown Community Services Unit (Item No. 234) and submitted material in regard thereto;

- Ms. Carina Mahendra, Canadian Tamil Women's Community Services (Item No. 43);

- Ms. Homa Sarlati, Iranian Women's Organization (Item No. 119);

- Mr. Bill Tumasz and Mr. John Hardie, Etobicoke Social Development Council (Item No. 294); and submitted a brief in regard thereto;

- Ms. Madeline McDowell and Mr. A. Menzies, Friends of Shopping Bag Ladies (Item No. 107);

- Mr. Daniel Robillard, All Saints Church, regarding Friends of Shopping Bag Ladies (Item No. 107);

- Staff Inspector William Blair, 51 Division, regarding the Open Door Centre (Item No. 171);

Mr. Bob Olsen and Mr. Beric German regarding the Open Door Centre (Item No. 171);

- Ms. Natalie Smith, regarding Friends of Shopping Bag Ladies (Item No. 107); and

- Councillor Judy Sgro, North York - Humber, regarding the Open Door Centre (Item No. 171) and Friends of Shopping Bag Ladies (Item No. 107).

Councillor Blake F. Kinahan, at the meeting of the Human Services Committee on June 10 and 11, 1996, declared his interest in that portion of the foregoing report pertaining to Storefront Humber Inc. (Item No. 225), in that he is a member of the Board of Directors of that organization.

(A copy of the Appendix B, referred to in the foregoing report, was forwarded to all Members of Council with the agenda of the Human Services Committee for its meeting on June 10 and 11, 1996, and a copy thereof is on file in the office of the Metropolitan Clerk.)

FOR COUNCIL ACTION

1996 SPECIAL PROJECT GRANTS.

The Human Services Committee recommends the adoption of the following report (May 27, 1996) from the Commissioner of Community Services:

Purpose :

This report presents the recommended 1996 allocations for the Metropolitan Special Committee on Child Abuse and the Metropolitan Toronto Committee on Public Violence Against Women and Children for approval.

Funding Sources, Financial Implications and Impact Statement :

Sufficient funds for the 1996 special grants exist in the Community Services Grants Program appropriation of the Community Services Department approved estimates.

Recommendations :

It is recommended that:

(1) the 1996 Special Project Grants allocations totalling $515,790.00 be approved;

(2) the Metropolitan Special Committee on Child Abuse implement a fundraising plan in 1996 with more appropriate targets based on the size of its annual operating budget; and

(3) the appropriate Metropolitan Officials be authorized to take the necessary action to give effect thereto.

Council Reference/Background/History :

Under the general authority for making municipal grants provided in Section 113(1) of the Municipal Act, the Municipality of Metropolitan Toronto provides funds to voluntary organizations which operate community-based programs.

In 1994, Metropolitan Council approved the transfer of the Metropolitan Special Committee on Child Abuse and Metropolitan Toronto Action Committee on Public Violence Against Women and Children budgets to the Community Services Department for administration through the grants program. This report seeks approval for the recommended allocations to these two organizations under the 1996 Special Project Grants.

Comments and/or Discussion and/or Justification :

Metropolitan Toronto Special Committee on Child Abuse:

The Special Committee was established in 1981 by Metropolitan Toronto and became incorporated as a separate non-profit charitable organization in 1985. It has a 19-member board of directors representing key sectors involved in responding to child sexual abuse. The mandate of the Special Committee is to eliminate the incidence of child sexual abuse through co-ordinating community-wide efforts to improve prevention, detection, reporting, investigation, prosecution and treatment.

In 1995, Metropolitan Toronto's contribution accounted for approximately 100 per cent. of the Special Committee's total core administrative costs and 29.6 per cent. of its overall budget. The Metropolitan grant will be reduced to approximately 84 per cent. of the total core administrative costs in the Committee's 1996 projected budget.

The Municipality provides funding to the Special Committee for its core administration costs. The agency is requesting a 1996 grant of $254,790.00 which is 10 per cent. less than the 1995 approved grant. The organization does not have any other stable source of core support. In 1995, the Committee was directed to develop a fundraising strategy to reduce its dependency on the Municipality. The agency did not address this issue last year and has not set adequate fundraising targets for 1996. However, the organization has begun a process of internal restructuring and will be able to reduce some of its operating costs in the future.

Metropolitan Toronto Action Committee on Public Violence Against Women and Children (METRAC):

METRAC was established in 1984 to act as a catalyst in implementing the recommendations of the Metro Task Force on Public Violence. The goal of METRAC is to decrease and finally eliminate all forms of violence against women and children. In fulfilling its mandate of providing a multidisciplinary approach to violence prevention, METRAC works with the police, the criminal justice system, school boards, the self regulating professions, sexual assault survivors, community organizations, urban planners and three levels of government.

For the past several years, the Metropolitan grant has been a significant proportion of the organization's total operating budget. For example, in 1994, the Metropolitan grant was almost 70 per cent. of the Committee's overall budget, while in 1995 it was 56 per cent. Metropolitan Toronto's financial contribution is expected to account for approximately 57 per cent. of METRAC's 1996 projected budget. In 1994, METRAC was advised to rigorously seek alternative funding sources to reduce the ongoing Metropolitan grant.

In 1996, METRAC has requested an allocation of $275,500.00 which represents a reduction of 5 per cent. on its 1995 approved grant of $290,000.00. The organization will continue to seek alternatives to Metro funding; this will be a major focus in 1996. It has been marketing its expertise and consulting services to a number of large corporations by developing safety materials and conducting safety audits of corporate facilities.

Funding Issues:

In 1995, the provincial government made funding cuts to services for abused women, specifically funding for prevention services and second stage housing were eliminated. Community-based agencies will be faced with very difficult choices to meet the needs of this service sector. In light of these reductions agencies will have to identify new and creative fundraising opportunities to sustain services. In addition, agencies will also need to undertake restructuring internally and within their respective sectors if services are to be sustained in the longer term. Given the changing funding environment, there could be possible impacts on both METRAC and the Special Committee on Child Abuse's programs and services in the future.

Conclusions :

This report recommends the approval of grants totalling $515,790.00 to the Metropolitan Special Committee on Child Abuse ($254,790.00) and METRAC ($261,000.00). The attached summary sheets provide information and a summary of the recommendations.

In 1996 and 1997, staff identified the need for both organizations to develop other sources of funding to reduce their financial dependency on Metro. They were encouraged to plan for a 10 per cent. reduction in the Metro grant for 1996 and for further reductions in 1997. Both organizations continue their efforts in this area. Finally, it is recommended that the Metropolitan Special Committee on Child Abuse implement a fundraising plan in 1996 with more appropriate targets based on the size of its annual operating budget.

Summary Chart :

This report conforms with the following:

Contact Name and Telephone Number :

Caryl Arundel: 392-8613

1996 Special Project Grants

Agency: Metropolitan Special Committee on Child Abuse

1320 Yonge Street, Suite 301
Toronto

Service Summary: The agency promotes co-operation among health, legal, child protection and
group support program, and treatment resource directory.

Funding Sources: The agency anticipates funding from the provincial government, Boards of
Education, Trillium, publications and other agency generated income.

Grant Request: For the core administration expenses.

Financial Summary:

1995 1996

Actual Operating Budget - $956,241.00 Projected Operating Budget - $893,424.00
Metro Grant Approved - $283,100.00 Metro Grant Request - $254,790.00

Recommendations: The agency is recommended for a grant of $254,790.00 which represents a
targets based on the size on its annual operating budget.

Comments: The agency is advised to seek assistance from external sources regarding
restructuring opportunities.

Agency:	Metro Action Committee on Public Violence
	Against Women and Children
	158 Spadina Road
	Toronto

Service Summary: The goal of the Metro Action Committee on Public Violence Against Women and
Safety Audit Kit are just two of the innovative tools developed by the agency.

Funding Sources: The agency anticipates funding from the Federal government, City of Toronto,
Trillium and other agency generated income.

Grant Request: For the public education, training and consultation, research and urban safety
programs.

Financial Summary:

1995 1996

Actual Operating Budget - $516,470.00 Projected Operating Budget - $456,226.00
Metro Grant Approved - $290,000.00 Metro Grant Request - $275,500.00

Recommendation: The agency is recommended for a grant of $261,000.00 which represents a
safety programs.

Comments: The agency is encouraged to continue to diversify its funding base resulting in a
addressing the issue of public violence against women and children.

FOR COUNCIL ACTION

SUBSIDIZATION OF SUMMER CAMPS.

The Human Services Committee recommends the adoption of the following report (May 23, 1996) from the Commissioner of Community Services:

Purpose :

To obtain authorization to provide subsidization of camp fees for recipients of General Welfare Assistance (G.W.A.) and Family Benefits Assistance (F.B.A.) in 1996.

Recommendations :

It is recommended that:

(1) subject to the approval of the Ministry of Community and Social Services, Metro Community Services be authorized to provide subsidization of camp fees for recipients of G.W.A. and F.B.A. to the Family Services Association of Metropolitan Toronto, with a maximum gross expenditure of $109.2 thousand for 1996; and

(3) the appropriate Metropolitan Officials be authorized to take the necessary steps to give effect thereto.

Council Reference :

During past years, approval has been received for the Department to utilize provisions of the G.W.A. Act and Regulations to provide subsidy payments for persons attending summer camp. These are usually mothers and children in receipt of G.W.A. or F.B.A.

The 1995 actual expenditures amounted to $97.5 thousand which enabled 714 persons to attend camp. For 1996, it is requested that the rate of $150.00 per eligible person for a two-week period be considered, with a maximum gross expenditure of $109.2 thousand which will allow more children of families in receipt of social assistance to attend camp. This represents no increase on the amounts allocated in the 1995 budget.

Reimbursement is provided by the Ministry of Community and Social Services to the Municipality at 80 per cent. for F.B.A. recipients and 50 per cent. for those in receipt of G.W.A..

Based on past experience, the anticipated net cost to Metropolitan Toronto is approximately $30,000.00.

Funds for this program are included in this Department's 1996 approved budget.

Summary Chart :

This report conforms with the following:

Council Approved Three-year Plan (n/a)

Corporate Personnel and

Administrative Policies (n/a)

Approved Capital Budget (n/a)

Approved Current Budget (x)

Standing Committee Approved

Program Priority (n/a)

Metro Official Plan (n/a)

Contact Name and Telephone Number:

Heather MacVicar, General Manager:
392-8952

Background - Summer Camps

Committee Report - May, 1996

(1) Bolton Camp is run by the Family Services Association of Metropolitan Toronto.

(2) It provides a camp experience for approximately 400 children and adults per session during the summer.

(3) It is for the parent or guardian and young children up to age 7, and for boys and girls aged 8-14.

(4) Bolton Camp continues to provide a leadership training program.

(5) There are 150 staff members at the Camp, 120 of whom are direct program staff.

(6) In 1995, 714 campers attended with Metro subsidy.

(7) Offers a variety of programs which provide social, educational, recreational, artistic and life skill opportunities for both children and adults.

(8) Works closely with community organizations such as Children's Aid Society, Children's Mental Health Treatment Centres, and ethnic community organizations to offer a summer camp experience to children with special needs.

(9) This subsidization of Bolton Camp has continued since the early 1970's.

(10) Based on past experience, the anticipated net cost to Metropolitan Toronto is approximately $30,000.00.

FOR COUNCIL ACTION

TEACHING HOMEMAKER POSITIONS.

The Human Services Committee recommends:

(1) the adoption of the following report (May 28, 1996) from the Commissioner of Community Services; and

(2) that the Commissioner of Community Services be requested to report to the Human Services Committee for its meeting in September, 1996, on the status of the negotiations with the Province of Ontario; and further that, in the interim, the funding for the eight incumbent Teaching Homemaker positions be continued utilizing program under-expenditure accounts within the Social Services Division appropriation:

Purpose :

This report will apprise Committee and Council members of recent developments surrounding Teaching Homemaker positions and the provincial decision to discontinue funding these positions.

Funding Sources/Financial Implications and Impact Statement :

The 1996 approved budget for nine Teaching Homemaker positions is $426.4 gross, $213.2 net. Effective April 1, 1996, the Province has cancelled cost-sharing for this program affecting eight incumbents.

Recommendations :

It is recommended that:

(1) the Chairman of Metropolitan Council write to the Minister of Community and Social Services requesting a reconsideration of the decision to cancel the cost-sharing of Teaching Homemaker positions and continue the existing funding level for the provincial fiscal year April 1,1996 to March 31, 1997;

(2) for the provincial fiscal year April 1, 1997 to March 31, 1998, and beyond, Metro request cost-sharing at an appropriate level equal to the funding of five Teaching Homemaker positions; and

(3) the appropriate Metropolitan Officials be granted authority to take the necessary action to give effect thereto.

Council Reference/Background/History :

The Social Services Division's Teaching Homemaker position was created in the early 1970's to assist social assistance recipients who are experiencing budget or other household management difficulties. Historically, Teaching Homemakers have assisted customers in a range of ways: information on money management, shopping economically, child raising, nutrition planning and food preparation, home management and personal hygiene. The role of this position has continued to evolve and now also includes; partnering with community-based agencies to provide critical information and services to mutual customers; collecting and organizing resource information; providing caseworkers with resource information so that they may be more effective in servicing their customers; and organizing social assistance recipients in helping themselves to meet their restricted budget.

The role of the Teaching Homemaker has been made further critical with the October 1, 1995, social assistance rate reductions introduced by the Province. A separate report to Human Services Committee describes the impact to social assistance recipients of these rate cuts and intervention roles provided by Teaching Homemakers as well as other specialized staff in assisting people adjust to the reduced allowances.

Until 1994, this position was cost-shared 50 per cent. by the Ministry of Health, Long Term Health Division under the Homemakers and Nurses Services program. For the provincial fiscal year April 1,1995 to March 31, 1996, cost-sharing, also at 50 per cent., was provided by the Ministry of Community and Social Services, under General Welfare Assistance cost of administration.

Comments and/or Discussion and/or Justification :

In the fall of 1995, the Department received written communication from the Ministry of Community and Social Services (M.C.S.S.) that the cost-sharing of the Division's Teaching Homemakers should be charged, for subsidy purposes, to the Ministry of Health beginning April 1, 1996. Departmental staff contacted the Ministry of Health and were informed that the Teaching Homemaker program did not fit their criteria for subsidy and referred staff back to M.C.S.S. Ministry of Community and Social Services staff were contacted and after discussions the Department was advised in a letter dated March 19,1996, that cost-sharing for this program would not continue beyond March 31, 1996. The Social Services Division indicated its concern and subsequently in a meeting on April 26, 1996, Metro requested reconsideration of this decision because of the critical role this position plays in supporting customers. On May 21, 1996, the Division was informed by provincial officials that the funding decision would not be reconsidered.

It is the Department's position that these positions provide a vital role in supporting families. Social assistance recipients in Metropolitan Toronto, more so than many other regions, face social and economic challenges to providing for their basic needs in Canada's most economically demanding urban area. Accordingly, we believe that this function is an appropriately subsidized element of G.W.A. cost of administration.

In recognition of the fiscal constraints affecting all program areas the Department is recommending a reduction from nine to five positions in this program area. A continued focus to conducting group sessions for customers to assist in coping with reduced budgets, rather than one on one sessions, will ensure the maximum benefit of this program.

Conclusions :

Particularly since the recession, Teaching Homemakers have provided a vital service to recipients and their families manage on a restricted budget. The recent reduction of social assistance allowances has placed recipients in a more difficult position to manage financially which the Teaching Homemakers have been able to mitigate. The Department believes strongly that the cancellation of this function, especially under current circumstances, will place social assistance customers in significantly greater hardship with less ability to adjust.

Summary Chart :

This report conforms with the following:

Contact Name and Telephone Number :

Russ Stuart: 392-5175

The Human Services Committee reports, for the information of Council, having also had before it during consideration of the foregoing matter communications from the following expressing concern with regard to the cancellation of the cost-sharing of the Teaching Homemaker positions:

(June 7, 1996) from Ms. Diane Doyle, Program Director, Opportunity for Advancement;

(June 7, 1996) from Ms. Fahima Biglar, Co-ordinator of Alternatives Program, Agincourt Community Services Association Information Scarborough;

(June 7, 1996) from Mr. Randy Saylor, Principal, Jones Avenue Adult New Canadian Centre;

(June 7, 1996) from Ms. Anne Dubas, President, Canadian Union of Public Employees, Local No. 79;

(June 7, 1996) from Ms. Carolyn Barber, Manager, Nutrition Services, City of Toronto Public Health Department;

(June 7, 1996) from Ms. Gladys Lowes, Director, Etobicoke Family Services, The Salvation Army Etobicoke Temple;

(June 7, 1996) from various Teaching Homemakers;

(June 7, 1996) from Ms. Pat Jensen and Ms. Margaret Baker, West Hill Community Services;

(June 7, 1996) from Mr. Dan Anstett, Supervisor, Family Residence Shelter, Metro Community Services;

(June 7, 1996) from Ms. Edina Causevic, Ms. Karlene Cowan, Ms. Monica Naskret, Ms. Amarjit Virdee and Ms. Amina Sharif Hassan; and

(June 10, 1996) from Ms. Pauline Petryshen, Co-ordinator Lakeshore Area Multi-Services Project Inc.

The following persons appeared before the Human Services Committee in connection with the foregoing matter:

- Mr. Denis Casey, 1st Vice-President, Canadian Union of Public Employees, Local No. 79;

- Ms. Carolyn Barber, Manager, Nutrition Services, City of Toronto Public Health Department; and

- Ms. Veronika Hering, representing students involved in the program; and submitted a brief in regard thereto.

FOR COUNCIL ACTION

DENTURES AND EMERGENCY DENTAL SERVICES FOR
RECIPIENTS OF GENERAL WELFARE ASSISTANCE.

The Human Services Committee recommends the adoption of the following report (May 27, 1996) from the Commissioner of Community Services:

Purpose :

At its January 31, February 1 and 2, 1996, meeting, Metropolitan Council approved a motion which directed that a number of actions be taken regarding the emergency dental plan for customers of General Welfare Assistance (G.W.A.). This report outlines the Social Services Division's actions taken to date and identifies issues with respect to the recommendations approved by Metropolitan Council.

Funding Sources, Financial Implications and Impact Statement :

At its January 31, February 1 and 2, 1996 meeting Metropolitan Council set the 1996 the emergency dental budget estimate at $4.725 million gross, $2.175 million net. At that time the budget estimate for dentures in 1996 was set at $1,709,400.00 gross, $614,151.00 net.

Recommendations :

It is recommended that:

(1) the Commissioner of Community Services be authorized to continue discussions with the Ontario Dental Association regarding a fee for performance contract for the administration of the consolidated dental and denture programs;

(2) the Commissioner of Community Services report in the fall of 1996 on the outcome of the discussions with the Ontario Dental Association and the financial status of the consolidated dental and denture programs; and

(3) the appropriate Metropolitan Officials be authorized to take the necessary action to give effect

thereto.

Council Reference/Background/History :

Metropolitan Council, at its January 31, February 1 and 2, 1996, meeting, approved a motion which recommended that: (1) the existing contract with The Great West Life Assurance Company be cancelled as soon as possible; (2) the 1996 Budget Estimate for the emergency dental program be set at $4.725 million gross, $2.175 million net; (3) the administration of the denture program be consolidated with the administration of the emergency dental program; (4) the funding for dentures be set at the level of half the 1995 actual expenditures; and (5) the administration of the consolidated programs be turned over to the Ontario Dental Association on the condition that no General Welfare Assistance recipient in distress be refused treatment even if the allotted funds in the budget have been exhausted.

On March 4, 1996, the Human Services Committee received a report, dated February 15, 1996, from the Commissioner of Community Services which outlined the Social Services Division's implementation plan with regard to the directions approved by Council respecting the emergency dental plan and the denture program. This report provides an update on the activities taken by the Division in relation to Council's directions as well as the financial status of both programs.

Comments :

At its January 31, February 1 and 2, 1996, meeting, Metropolitan Council essentially directed that three specific initiatives be taken with regard to the dental and denture programs: take action to meet the reduced budget allocation; consolidate the administration of the dental and denture programs; and change the plan administrator to the Ontario Dental Association (O.D.A.) on the condition that "no General Welfare Assistance (G.W.A.) recipient in distress be refused treatment even if the allotted funds in the budget have been exhausted."

The report dated February 15, 1996, outlined the plan proposed by staff for the simultaneous implementation of the three initiatives. As a result of the reductions to both the dental and denture budgets, and given the time anticipated to complete the discussions with the O.D.A., action had to be taken in order to achieve the budget targets set by Metropolitan Council. As a result, arrangements were made in the interim for the Great West Life Assurance Company (G.W.L.) to consolidate, effective April 1, 1996, the administration of the dental and denture plans. A notice was sent to dentists and denturists on March 18, 1996, which advised of changes to the dental and denture plans to be effective April 1, 1996. These changes included the elimination of some of the dental procedures previously covered under the plan, as well as a 20 per cent. reduction in the remuneration fee paid for the procedures which remain in the plan. A revised Administration Guide for dentists/denturists was included with the notice. The discussions with representatives of the O.D.A. began with an initial meeting held on February 28, 1996. The following provides further details on the actions taken.

(A) Administration of the Dental and Denture Programs:

Staff initially recommended the consolidation of the administration of the dental and denture programs in a report to the Human Services Committee in November, 1995. Following Metropolitan Council's direction, the process of consolidating the administration of the two programs with GWL was completed on an interim basis. A number of changes to the administrative processes to the denture program were made including the determination of customer eligibility, the authorization for treatment, and the process for payment to the dentist/denturist. These changes are outlined in the revised Administration Guide.

The revised denture authorization process requires the dentist/denturist to provide a pre-treatment plan which includes detailed documentation supporting the request for the denture or denture repair. In addition, the pre-treatment plan must identify any dental services necessary for the placement of the dentures. The plan administrator completes a thorough review of the request which is either approved or denied. Where appropriate, further information is requested before a final decision is rendered.

The benefits of consolidating the administration of the two programs under one administrator are already evident. As a result of transferring the administration of the denture program to GWL several areas for improvement have been identified. Staff will continue to work in a collaborative manner with GWL on further improvements and cost-saving initiatives to the programs.

(B) 1996 Budget Implications:

(1) April 1, 1996, Changes to the Emergency Dental Plan:

The Social Services Division had previously indicated that a reduction in the 1996 expenditures in the emergency dental plan could be achieved through a combination of the elimination of certain procedure codes and the reduction in the remuneration fees for the dental services. These changes were included in the notice to dentists, dated March 18, 1996. The notice also advised that the revisions were made in order that the dental program could continue in the face of budgetary limitations challenging the Municipality of Metropolitan Toronto.

Several telephone calls were received from service providers requesting clarification of the new procedures, some dentists called to comment on the changes and one dentist made a written complaint regarding the program changes. The O.D.A. also raised concerns regarding the April 1, 1996, program changes relating to certain procedure codes and the interpretation of their description, as well as the reduction in the remuneration fees. The actions necessary to address these concerns have been identified and staff will continue to work with the O.D.A. to implement these actions.

Revised program data is currently only available for April, 1996. However, preliminary indications are that the elimination of the procedure codes and the reduction of the remuneration fees have had a significant impact on the program costs.

(2) Year-to-date Expenditures

The April 30, 1996, year-to-date expenditures for the dental program are approximately $1.9 million gross, $0.9 million net. The Division experienced a significant reduction in the average cost per claim from January to April, 1996. The average cost per claim of $90.15 in January was reduced by approximately 22 per cent. to $70.61 in April. As the Department has only had one month's experience with the revised dental program, it is too early to make a reliable projection of year end expenditures. Staff will continue to monitor the program.

The April 30, 1996, year-to-date expenditures, including encumbrances, for dentures are $0.331 million gross, $0.119 million net. The impacts of the April 1, 1996, changes on the denture program have yet to be realized due to the revised authorization process for the denture program. Staff do not expect to see the effects of changes on the denture program until June, 1996, and will continue to monitor the expenditures in the denture budget.

In 1993, the Provincial Government introduced legislation which affected the application of the retail sales tax and the insurance premium tax to benefit plans. It was Metro's interpretation that the taxes were applicable to the payments made to G.W.L. for the emergency dental program. However, in December, 1995, following a discussion with G.W.L. regarding the potential consolidation of the dental and denture programs, staff began inquiries into the applicability of both the Provincial premium tax for benefit programs and the retail sales tax on the dental and denture programs. Staff received a letter dated April 1, 1996, from the Ontario Ministry of Finance stating that the intent of the Ontario Retail Sales Tax Act was not to tax social assistance benefits. An application for a refund of taxes paid since July, 1993, has been filed with the Ministry of Finance. A rebate for the premium tax is also being pursued.

(1) Council Direction:

On February 28, 1996, pursuant to Council direction, staff initiated discussions with the O.D.A. A number of issues arose from this initial and subsequent discussions, most importantly the ability of the O.D.A. to comply with the condition set out in Council's direction regarding the change to the O.D.A. as the administrator of the consolidated programs. Through ongoing discussions, agreement in principle was achieved on most of the key areas identified concerning the administration of the two
programs.

On April 15, 1996, the O.D.A. stated that they could not accept the condition set out by Metropolitan Council that "no General Welfare Assistance recipient in distress be refused treatment even if the allotted funds in the budget have been exhausted." Further, the O.D.A. expressed concern about taking money from members to subsidize the government.

The O.D.A. indicated that, although they could not meet the Council direction, they did have recommendations for the programs which they felt, if implemented, would enable Metro to meet the budget allocation. The O.D.A. submitted an initial proposal for consideration on March 14, 1996, and after further discussion with Metro staff, submitted a final proposal on May 13, 1996.

(2) O.D.A. Proposal:

On May 13, 1996, the O.D.A. submitted a proposal which outlined the Association's recommendations for changes to both the dental and denture programs. Copies of the O.D.A.'s proposal are available from staff for review, however, for ease of reference, the Executive Summary is included in Appendix A, attached.

The O.D.A. proposal addressed several key areas for potential cost savings: their experience in administering publicly funded emergency dental care programs; the O.D.A. Table of Benefits which is designed with a combination of emergency services and built in cost controls specifically for people on government assistance; and effective management systems to monitor and control program expenditures. The O.D.A. has offered an administration fee of 5 per cent. of the total claims paid under the dental and denture programs for a one year period. The O.D.A. has indicated that they may be willing to negotiate a reduced administration fee based on the length of the contract.

The O.D.A. proposal includes Metro adopting the Emergency Plan listed in their copyrighted Table of Benefits. The O.D.A.'s Emergency Plan includes more procedures, as well as a different mix of procedures, than the current Metro Emergency Dental Plan. In addition to this, the remuneration fees paid through the O.D.A. plan are 20 per cent. higher than the fees currently being paid through the Metro Emergency Dental Plan. The O.D.A. has indicated that they would not agree to administer a plan which enforced a 20 per cent. reduction in fees.

The proposal submitted by the O.D.A. also included a denture program developed specifically for Metro. The O.D.A. believes that the denture program they have designed will improve service to patients and reduce expenditures for Metro. However, as the O.D.A. has stated, they have not administered this type of program previously, therefore, the only way to assess the cost-effectiveness of the program would be to implement and monitor it over time.

On May 22, 1996, the Commissioner of Community Services and the Assistant General Manager, Social Services Division met with representatives of the O.D.A. to review the current status of the discussions. Metro staff asked if the O.D.A. would consider a fee for performance arrangement for the administration of the programs, given that the O.D.A. cannot meet Council's direction to administer the program within the existing budget allocation and the O.D.A.'s stated position that they will not administer a plan with reduced remuneration fees. The fee for performance concept would require the O.D.A. to meet specific agreed upon outcomes in order to receive financial compensation. The O.D.A. indicated a willingness to consider this approach and on May 24, 1996, informed the Department that they are prepared to further explore a fee for performance concept.

Conclusions :

In conclusion, action has been taken to respond to the direction of Council regarding the dental and denture programs. Staff anticipate that these actions will have a beneficial impact on the programs' budget.

Since the O.D.A. cannot meet Council's condition "that no General Welfare Assistance recipient in distress be refused treatment even if the allotted funds in the budget have been exhausted", staff have been unable to reach an agreement for the administration of the programs with the O.D.A.. However, it is recommended that staff continue to meet with the O.D.A. to further develop the fee for performance concept and its application to a contract for the administration of the consolidated dental and denture programs.

The Social Services Division will continue to manage the dental and denture programs with the current plan administrator and work with Great-West Life Assurance to identify opportunities to reduce costs without impacting services. Staff will report back to Metropolitan Council on the response from the O.D.A. as well as the status of the budget for the dental and denture programs in the fall of 1996.

Summary Chart :

This report conforms with the following:

Contact Name and Telephone Number :

Russ Stuart, Assistant General Manager:
392-5175

Appendix A

Executive Summary

(Excerpt from the Ontario Dental Association's Proposal to Metropolitan Council)

In order to meet the budgetary constraints of the motion passed by Metropolitan Council on February 1, 1996, concerning Metro's dental and denture programs for welfare recipients, the O.D.A. is proposing the following to Metropolitan Toronto:

(a) Metro adopt the O.D.A. Emergency Dental Program as administered by the O.D.A. The Table of Benefits is used by the Province, 15 municipalities and regional governments and numerous Children's Aid Societies. The Table of Benefits is specifically designed to meet the varying dental needs of those on government assistance;

(b) Metro adopt the Denture Program developed and administered by the O.D.A. This plan would, for the first time, put effective controls and limitations in place on Metro's denture program and enable Metro to manage its program costs. The plan is designed to encourage the repair of dentures rather than the provision of new dentures for the vast majority of customers. It also focuses on doing denture work that meets immediate health needs and helps a person return back to the work force. The plan keeps dental costs associated with dentures separate from costs associated with emergency services;

(c) the O.D.A. will provide Metro with a series of management tools and reports that allows Metro officials to monitor program costs and program delivery;

(d) the O.D.A. has an ongoing audit and complaints process. In addition, the O.D.A. will endeavour to ensure that those in need are getting the services they need;

(e) the O.D.A. offers a very competitive administration fee, which is all inclusive. The O.D.A. is prepared to enter into discussions with the Province to determine what efficiencies may be realized through the O.D.A.'s administration of all other publicly funded programs. The maximum amount the O.D.A. charges in administration fees is below the administration fees paid by Metro to the current administrator;

(f) Metro can realize significant saving on taxes otherwise payable to the Province for retail sales taxes and premium taxes;

(g) the O.D.A. will monitor the programs on a constant basis to determine if costs are heading outside of the spending allocated by Council and, if this is the case, the O.D.A. is recommending specific measures to control costs further; and

(h) the O.D.A. will provide Metro dentists with information on a regular basis to ensure they are aware of the concerns of Metropolitan Council. The O.D.A. will also consult with its member societies on a regular basis to monitor the operation of the plan.

Councillor Gordon Chong, at the meeting of the Human Services Committee on June 10 and 11, 1996, declared his interest in the foregoing matter, in that he is a member of the Ontario Dental Association.

FOR COUNCIL ACTION

IMPACT OF GENERAL WELFARE ASSISTANCE RATE REDUCTIONS.

The Human Services Committee recommends the adoption of the following report (May 27, 1996) from the Commissioner of Community Services:

Purpose :

This report has two related objectives. The first section assesses the impacts of the 21.6 per cent. reduction to social assistance rates, implemented in October, 1995, on people receiving General Welfare Assistance (G.W.A.) in Metropolitan Toronto. The second section examines the reasons for the recent decline in the G.W.A. caseload in Metropolitan Toronto in the context of longer term trends in the caseload. The reasons people have left the system are examined, and the broader factors that have contributed to the significant caseload decline that began in July, 1995, are identified.

Recommendation :

It is recommended that the Social Services Division continue to monitor the impacts of changes to Metro's social assistance system and caseload trends, and report to Metropolitan Council annually.

Summary of Findings :

(i) Impact of Rate Reductions on Recipients and Their Family's Ability to Meet Basic Needs:

The impact of rate reductions has been most pronounced in the housing area. More than 66 per cent. of people on G.W.A. in Metro who live in non-subsidized housing now pay more for shelter than their maximum shelter allowances, compared with 33 per cent. in August, 1995. Families have been particularly impacted: 83 per cent. of two parent families with two children have shelter costs above their shelter maximums.

Increasing numbers of recipients also face increased difficulties maintaining their current housing. As one means of ranking the relative levels of risk across the caseload, social assistance recipients paying more than the shelter maximum were divided into three groups: a low risk group which would have to divert less than 25 per cent. of their basic needs allowance to cover current shelter costs; an intermediate risk group which would have to divert between 25 and 50 per cent. of their basic needs allowance; and a higher risk group which would have to divert more than 50 per cent. of this allowance. A breakdown of the proportion of cases that fall into these three risk categories shows that:
(a) 24 per cent. would have to divert less than 25 per cent. of basic allowance to cover current shelter costs;

(b) 27.5 per cent. would have to divert between 25 and 50 per cent. of their basic allowance; and

In August, 1995, the respective totals were 22 per cent., 6.8 per cent., and 4.6 per cent. for these three categories.

Low vacancy rates, combined with low turnover rates for moderately priced apartments, continue to make it very difficult in the short term for people on social assistance to find cheaper accommodation. Current shelter maximums enable recipients who rent in the private market to afford only a small percentage of the accommodation available. There has also been a documented increase in evictions over the past year in Metropolitan Toronto, with the court system intervening with greater frequency to process eviction notices.

Impacts on other basic needs are also evident. The use of emergency food assistance programs has continued to increase. Findings from the Daily Bread Food Bank's 1996 survey indicate the number of food bank users across the Greater Toronto Area rose 54 per cent. to 154,000 people, between February, 1995, and this year. This increase includes a 68 per cent. increase in the number of children using the service. Other emergency food assistance programs have also seen sizeable increases in demand.

People also indicated, in a range of surveys conducted by community agencies and the Division, that they were having greater difficulty meeting other basic needs, including obtaining clothing. One important area affected by the rate reductions is the ability to look for work. Clients noted they are having increasing difficulty affording transportation, which is an important support to job seeking, as well as to attending training and education program, and using community resources.

A large number of children are now living in households receiving social assistance that pay more for their shelter than the maximum shelter allowance.

(a) In April, 1996, there were more than 40,000 children under 13 in such households, or 75 per cent. of all children living in non-subsidized accommodation. This compares with 43 per cent. of children in August, 1995.

(b) 12.5 per cent of children, or 6,758, lived in households that would have to divert more than 50 per cent. of their basic allowance to meet their current shelter costs. In August, 1995, the comparable figure was only 1.8 per cent, or just over 1,000 children.

Extensive research demonstrates that poverty places children's development at risk. Evidence from a range of sources indicates that children are being put at increased risk by both the social assistance rate reductions and the cuts to other community services.

Reductions to the social assistance program are being exacerbated by cuts to social programs provided within Metropolitan Toronto. The 1995 Community Agency Survey (Clause No. 11(f) of Report No. 8 of The Human Services Committee) clearly shows the effects on users of these agencies is reduced support and reduced accessibility. The impact on the wider community, including the Social Services Division, is a markedly reduced ability to assist people.

(ii) Assessing Recent Caseload Trends:

From June, 1995 to December, 1995, Metro's social assistance caseload fell by approximately 13.4 per cent., or 16,551 cases (see Chart 2, Appendix 2). Similar declines in caseload were experienced throughout the Greater Toronto Area and the Province.

The caseload declined as the result of a combination of factors. Changes to social assistance rates implemented by the Province in October, 1995, likely contributed to the decline in the number of single adults on the caseload in the latter part of 1995. This reduction in benefits had the effect of widening the gap between minimum wage jobs and social assistance benefits. It is clearly much easier for a single person to cope in Metropolitan Toronto with the income from a low wage job versus the benefits levels now provided under social assistance.

There has been considerable speculation as to why people have left the social assistance system since mid-1995. The primary reason people gave was that they had found jobs. Other reasons included transfers to the provincial system, assets or income in excess of legislated amounts and people moving from the municipality. These findings are supported by a similar study of terminations undertaken by the Regional Municipality of Ottawa-Carleton.

Caseloads typically tend to decline if there is a sustained period of employment growth resulting in the creation of jobs, notably full-time jobs. A review of employment data for 1995 shows that there was a significant increase in the number of people employed in the Census Metropolitan Area. As well, the number of people unemployed declined in the second half of 1995 (Chart 6, Appendix 2). The improving employment situation coincided with, and likely was one of the factors contributing to, the decline in Metro's caseload in the latter part of 1995.

The recent reductions in caseload need to be viewed in the context of broader trends and patterns in the caseload since the onset of the recession in 1989. A review of caseload trends over the longer term indicates that:

(a) the average length of stay has increased from five months to over eighteen months since 1989;

(b) those cases that have been on assistance the shortest period of time have been the first ones to leave;

(c) the number of new cases entering the social assistance system has fallen below the number of cases leaving the system, accounting for the decline in the caseload in the latter half of 1995;

(d) single adults account for the majority of the caseload decline while the proportion of families on assistance actually increased; and

(e) new divisional caseload management initiatives have contributed to the decline by assisting people find work and ensuring ineligible clients do not remain on the system.

Provincial changes to social assistance such as the introduction of Work for Welfare, ongoing divisional initiatives such as automation, Federal changes to the Unemployment Insurance Act and the general health of economy are the primary factors which will determine the future growth of the caseload. The large number of uncertainties inherent in each of these areas will continue to make it extremely difficult to predict caseload trends over the coming months.

Background :

In its July, 1995, economic statement, the provincial government announced that social assistance benefit rates would be reduced by 21.6 per cent. from current maximum levels. These reductions took effect October 1, 1995. The Division reported to Metropolitan Council on the potential impacts of social assistance rate cuts at its August 16, 1995, meeting (Clause No. 6 of Report No. 13 of The Human Services Committee).

On August 23, 1995, the Ministry of Community and Social Services announced significant eligibility changes to the General Welfare Assistance Act and Regulations, to be implemented in October, 1995. At its January 31, 1996, meeting (Clause No. 5 of Report No. 2 of The Human Services Committee), Metropolitan Council received a report describing the regulatory changes which affect the eligibility of employable persons and 16 and 17-year-olds, change the definition of spouse and mandate the reintroduction of home visits. The report also discussed the impacts these changes would have on customers and on the Division's workload.

In addition, on December 20, 1995, (Clause No. 9 of Report No. 22 of The Human Services Committee) the Division outlined the steps being taken to assist customers cope with the new rates. At that time, the Division indicated it would undertake a more systematic review of the impacts of rate reductions on social assistance recipients. The first section of this report documents the findings from this review.

Metro's social assistance caseload has declined substantially since June, 1995. Between March, 1994, and May, 1995, the number of cases on G.W.A. remained relatively stable; however, from June, 1995 to December, 1995, the caseload fell by approximately 13 per cent., or 16,000 cases. The caseload continued to decline modestly until March, 1996, and has leveled off in April. From its peak of 126,530 in March 1994, the caseload has declined by 18.2 per cent. to its current level in April of 103,512.

A number of key questions have been raised about why this decline occurred, including the role of recent provincial policy changes. In an effort to better understand why Metro's caseload has declined, the second section of this report reviews caseload trends over the past several years, and examines factors which account for the drop in the caseload.

Comments and Discussion :

Methodology and Data Sources:

This report draws on a range of data and information sources. G.W.A. caseload data from April, 1996, were analyzed to determine the degree to which rate changes affected recipients' ability to pay for shelter, and their ability to meet other basic needs.

Information was also obtained from many other sources: people receiving social assistance, Social Services Divisional front line and management staff, community groups and agencies, and other governmental organizations. The data gathered comes from the G.W.A. data base, from anecdotal reports, and from internal and community-based surveys.

The second section of the report, which discusses reasons for the recent decline in Metro's caseload, uses caseload data from the computer data base, as well as economic data drawn from a range of sources. Information from the data base and from a manual review of 834 case files undertaken in February, 1996, provided data about why people left the social assistance system.

I. Impacts of Provincial Policy Changes on Social Assistance Recipients in Metro:

Introduction:

While the General Welfare Assistance caseload has declined since July, 1995, the absolute number of cases (103,000 representing 207,000 people in April, 1996) nonetheless remains high. People currently relying on social assistance face the situation of adapting to a new rate structure where maximum benefit levels have been reduced by 21.6 per cent.

This section addresses a number of key questions related to the impacts of these rate reductions. What are the effects on people's ability to house themselves and their families? What are the effects on their ability to meet other basic needs, including food, clothing and transportation? And what are the effects on the other areas of their lives?

The evidence indicates that many people receiving General Welfare Assistance in Metro are facing increasing hardship and increasing risk. Recipients are now in a situation where they have less income, as well as reduced access to community-based services, which are being scaled back in response to funding constraints. At the same time, they face rising everyday costs that range from user fees for community services to increases in transportation fares to annual increases in rent.

This section will discuss the effects of the rate cuts in the following areas:

(a) people's ability to meet their needs in the areas of housing and food, their ability to provide for other basic needs, and to prepare for and find employment;

(b) the impacts on children who depend on social assistance; and

Finally, the Division's efforts to assist people will be reviewed.

Social Assistance Rate Reductions:

As of October 1, 1995, amounts for social assistance in Ontario were decreased by an average of 21.6 per cent. Social assistance benefits are made up of two components: basic allowance and maximum shelter allowance. The rate reductions were applied to the maximum benefit levels available in each allowance area.

Table A (Appendix 1) sets out the present and previous rates for a single individual, a single parent with one child under 13 years' of age, and two parents with two children under 13. A family of four, specifically two parents and two children under 13, now receives maximum monthly benefit amounts up to $1,178.00 made up of $576.00 for basic allowance and up to a maximum basic shelter amount of $602.00. This compares with a previous total benefit of $1,503.00.

A. Impacts on People's Ability to Meet Basic Needs:

(I) Housing Impacts:

Shelter Costs:

Those paying rent in excess of the maximum basic shelter allowance, now a majority of the caseload, face a clear dilemma: if rent is to be kept up, money has to obtained from other sources. Those living in non-subsidized accommodation (renting in the private market, from family members or owning their own homes) face the greatest difficulties. They also comprise 89 per cent. of the caseload, with the large majority renting in the private market. In August, 1995, two months prior to the rate reductions, 33 per cent. of those living in these accommodation types had shelter costs above the shelter maximums. In April, 1996, this number had doubled to 66 per cent.

Examining the effects on the three most typical case types based on April, 1996, data, it is evident that families are particularly impacted, i.e.,:

(a) 61 per cent. of all single adults had shelter costs above the shelter maximums;

(b) 83 per cent. of all two parent families with two children had shelter costs above the shelter maximums; and

Many more social assistance recipients than before the rate reductions, both individuals and families, have shelter costs well above the current shelter allowance maximum benefit levels. Those who cannot find work face a limited number of choices if they remain in Metropolitan Toronto over the longer term: either they can divert money from their basic allowance, which is likely not sustainable for a long period; they can seek help from family and friends; they can share accommodations with others; or they can relocate, either because they lose their current accommodations or because they can find cheaper housing.

It is not possible to precisely gauge the risk that any one household faces of having to move from their current home. However, as one means of ranking the relative levels of risk across the caseload, social assistance recipients paying more than the shelter maximum were divided into three groups based on the amount of basic allowance they would have to divert to cover their current shelter costs: a low risk group which would have to divert less than 25 per cent. of their basic needs allowance to cover current shelter costs; an intermediate risk group which would have to divert between 25 and 50 per cent. of their basic needs allowance; and a higher risk group which would have to divert more than 50 per cent. of this allowance.

The proportion of cases that fall into these three categories is as follows:

(a) 24 per cent. would have to divert less than 25 per cent. of basic allowance to cover current shelter costs;

(b) 27.5 per cent. would have to divert between 25 and 50 per cent. of their basic allowance; and

In August, 1995, the respective totals were 22 per cent., 6.8 per cent., and 4.6 per cent. for these three categories. (See Table B, Appendix 1.)

Examining the impacts on different case types reveals the following proportion would have to divert more than 25 per cent. of their basic needs allowance to cover housing costs:

(a) 39 per cent. of single adults;

(b) 41 per cent. of single parent families with one child; and

This method establishes a low risk and higher risk group, with a significant number of people whose level of risk is intermediate. For the largest group, those in the intermediate situation, few resources would be left after up to 50 per cent. of their basic allowance was diverted to cover shelter costs. A single person would be left with $3.25 per day, a single parent with one child would have $3.70 per day per person, and a two-parent family with two children under $2.50 per day per person. Fewer resources would be available to those in the higher risk group. It would seem evident that these amounts of money are not sufficient to meet people's needs over any extended period.

A survey of 900 food bank users, 71 per cent. of whom were receiving social assistance, provides concrete evidence that many people are facing housing problems in Metropolitan Toronto. While 8 per cent. of those surveyed had been evicted, 21 per cent. reported being threatened with eviction, 36 per cent. reported that they had moved to cheaper accommodation, and 42 per cent. reported attempting to do so. In addition, 46 per cent. reported that they had paid their rent late, and 28 per cent. had missed rental payments.

Metro's Rental Market and Social Assistance Recipients:

Low vacancy rates, combined with low turnover rates for moderately priced apartments, make it very difficult in the short term for people on social assistance to find cheaper accommodation. Current shelter maximums, as demonstrated in a previous report submitted to Metropolitan Council in August, 1995, (Clause No. 6 of Report No. 3 of The Human Services Committee), enable recipients who rent in the private market to afford only a small percentage of the accommodation available.

Table C (Appendix 2) sets out the average rents in October, 1995, in the Toronto CMA. For people in Metro living on the current social assistance rates this means that:

(a) for a single adult the average cost of a bachelor apartment in Metro will be 163 per cent. of the maximum shelter allowance ($531.00 average rent in contrast with a maximum shelter allowance of $325.00);

(b) for a single parent with one child the average cost of a one-bedroom apartment will equal 129 per cent. of the new maximum shelter allowance ($661.00 average rent in contrast with a maximum shelter allowance of $511.00); and

(c) for a couple with two children the cost of an average two-bedroom apartment will be 133 per cent. of the new shelter maximum ($805.00 average rent in contrast with a maximum shelter allowance of $602.00).

As noted, low vacancy rates are a fact of life for social assistance recipients. The vacancy rate in the Toronto Census Metropolitan Area (C.M.A.) has been falling steadily over the last three years. In October, 1995, the most recent date for which this information is available, the vacancy rate was 0.8 per cent. This number represents vacancies in structures of three or more units, and means that for every 1,000 apartments in these structures eight were vacant and available for rent. In the Toronto CMA, this means that out of a total supply of 299,025 private rental units, 2,417 were available at any one time.

The Canadian Mortgage and Housing Corporation, in their fall Rental Market Survey, predicted that vacancy rates would fall further.

The cost of rental accommodation is also increasing. In 1995, average annual rent increases in Metro were between 2.2 and 3.3 per cent., depending on the number of bedrooms. Costs of accommodation are unlikely to decline in the near future, nor is it expected that vacancy rates in the rental housing sector will improve.

Loss of Housing:

Stable housing is the foundation on which most people depend to conduct their lives. Loss of housing can begin a cascade of events that disrupts every aspect of life. Indications are that a growing number of people face this situation.

There are three stages in the evictions process. The first stage occurs when a landlord serves a tenant with a "Notice of Termination", a document not requiring any official court intervention. According to legal clinics, most tenants do not go to court over eviction procedures due to arrears when they know they are unable to pay the outstanding rent. They simply vacate once the landlord has given them this notice. Thus, any statistical data is likely to under-report the actual numbers of evictions.

The court system becomes involved in the eviction process, at the second stage, with the filing of a "Notice of Application". If the tenant still does not leave once this stage is completed, the landlord proceeds to the final stage and files a "Writ of Possession" through the sheriff's office. A writ is "executed" when the sheriff's office comes and changes the locks.

Statistical data does indicate that the numbers of "Notices of Application" and "Writs of Possession" are increasing, although the Ontario government public service strike has affected the availability and accuracy of the numbers for February through April, 1996.

Notices of Applications increased as follows:

(a) 33 per cent. between January, 1995, and January, 1996 (1,735 in January, 1995, compared to 2,309 applications in January, 1996); and

(b) 11 per cent. between February, 1995, and February, 1996 (1,800 in February, 1995, compared to 2,006 applications in February, 1996).

The numbers of writs have also increased:

(a) between January, 1995, and January, 1996, the number of writs filed showed an increase of 16 per cent (588 versus 685); and

(b) between February, 1995, and February, 1996, the number of writs filed also increased by 16 per cent. (582 versus 677).

In January, 1996, 265 writs were executed, in comparison with 211 in January, 1995, an increase of 26 per cent.

(ii) Impacts on Other Basic Needs:

Food:

In tandem with the reduction in social assistance rates, the use of emergency food assistance programs has continued to increase. Food banks are not a complete solution for those who do not have sufficient resources to purchase food. Access is usually restricted to once a month for a three-day supply of food. As well, access may be difficult if people are unable to get to food banks during the hours of operation or if people lack enough money to pay for transportation.

The Daily Bread Food Bank conducts the most extensive survey of food bank use in Metro. Findings from its 1996 survey indicate the number of food bank users across the Greater Toronto Area in February, 1996, had risen by 54 per cent. to 154,000 people, from the previous year. This increase includes a 68 per cent. increase in the number of children using the service.

According to the Daily Bread survey, 79 per cent. of people affected by the rate cuts go without food more often as a result: 85 per cent. of this group indicated that they had turned to food banks more often; 86 per cent. indicated that they had decreased the amount of money they spent on food; and 59 per cent. had asked friends or relatives for food or money.

One example of an emergency food assistance program seeing an increase in its number of users is the Scott Mission's Grocery Assistance program. Between January and April, 1996, and the same period in 1995, this program saw a 53 per cent. increase in usage.

FoodShare's Hunger Hotline, a telephone hotline emergency food referral service, reported an increase of 30 per cent. in the number of calls logged between August, 1995, and January, 1996. Comparing January, 1995 with January, 1996, the increase was 24 per cent. (from 567 calls to 702). The number of people served rose 40 per cent. (from 1,138 to 1,592) for this same period. In a limited survey of callers in the fall of 1995, 88 per cent. of callers stated that the reason they were calling was because their social assistance was not enough.

One small focus group, comprising 15 women in an skills upgrading program, as well as an informal poll of 37 people living on social assistance, both conducted by staff, provided further evidence that many recipients are cutting back on food purchases. Specifically, individuals noted that they are buying less meat, fewer dairy products, and fewer fresh vegetables and fruits than previously.

Other Basic Needs:

Information about the direct impacts of rate reductions is limited. However, several organizations have surveyed people who are receiving social assistance to determine how they are being affected. These surveys are briefly reported on below.

As noted above, the Division also conducted two small surveys of social assistance recipients. Recipients noted that it is now normal for people to fall behind on payment of telephone, cable and utility bills. Recipients are now also increasingly going to used clothing stores for children and simply not buying clothing for themselves. Community centres and schools that have helped organize clothing exchanges report high turnouts.

Recipients also reported they had virtually no resources available for non-basic items, such as any form of recreation. The Daily Bread Food Bank survey found that 61 per cent. of respondents indicated that they had given up recreational activities and entertainment. A significant minority of those surveyed indicated that they had been able to get some help from family or friends, however, they were concerned about how long this could go on. Families with access to other government income such as GST rebates, income tax refunds, or child tax credits noted they were incorporating this into their budgeting and still having difficulty.

(iii) Impacts on the Ability to Prepare for and Look for Work:

One important area affected by the rate reductions is the ability to afford transportation, which is an important support to the ability to look for work, attend training and education programs, and use community resources.

The survey of community organization users discussed above found that 25 per cent. of respondents reported that cuts to social programs had an impact on their access to transportation. Sixty-five per cent. of the recipients who divisional staff surveyed cited a lack of sufficient money for their transportation needs, including getting themselves and their children to school, and accessing resource centres, community agencies, and food banks, as well as searching for work.

The same clients also indicated they need money for stamps, printing of resumes, faxing, attending interviews, checking with employment and resource centres, buying newspapers, and personal grooming in order to maintain an acceptable appearance. Previously, it was noted that people are having increased difficulty paying bills. Clients who cannot maintain telephone service will be seriously hampered in their ability to search for work.

Reports from education and training programs that assist people increasingly find that, if transportation costs are not supplied, it has become harder for people to attend. Numbers from one institution offering adult credit courses are down 30 per cent. compared to the previous year. The Centre for Advancement in Work and Living's Independent Living Skills program has experienced something that has never happened before: people (half the class) leaving training programs at different times over the course of a month in order to get to their local food banks during the food banks' hours of operation.

Finally, the Daily Bread survey showed that half of respondents affected by the rate cuts indicated that the cuts had hampered their ability to find jobs while 70 per cent. said they use public transit less. Nonetheless, the survey found that 70 per cent. of those affected by the cuts reported that they had intensified their job searches.

D. Impacts on Children:

While the absolute number of cases on G.W.A. has been slowly declining, the number of children on assistance has remained relatively constant. In April, 1996, there were 63,444 children under the age of 13 in families receiving social assistance versus 65,674 in August, 1995. This represents a 3.4 per cent. decrease since August, 1995, in contrast with the overall caseload decline of 14.7 per cent. for the same period.

It is evident that a large number of children are living in households that pay more for their shelter than the maximum shelter allowance, e.g.:

(a) in April, 1996, there were more than 40,000 children under 13 in such households, or 75 per cent. of all children living in non-subsidized accommodation. This compares with 43 per cent. of children in August, 1995; and

(b) in April, 1996, 12.5 per cent of children, or 6,758, lived in households that would have to divert more than 50 per cent. of their basic allowance to meet their current shelter costs. In August, 1995, the comparable figure was only 1.8 per cent, or just over 1,000 children.

Extensive research demonstrates that poverty places children's development at risk. Poverty has been correlated with poorer school performance, behavioural and emotional problems, child abuse and neglect, and delinquency. Poverty increases the incidence, the cumulative impact, and the persistence of these and other risks. In its response to the Social Service Division's information package on rate reductions, the Clarke Institute of Psychiatry wrote, "In summary, we believe that the welfare reductions recently introduced will be quite devastating for many of the vulnerable children we see."

The fear expressed by community agencies and by the majority of the more than 200 deputations who addressed Metropolitan Council in January, 1996, was that children are being put at increased risk by both the social assistance rate reductions and the cuts to other community services.

In 1995, children 19 years of age and younger represented 22 per cent. of Metro's population. In February, 1996, children 18 and under made up 40 per cent. of food bank users. Schools in areas where a high proportion of the children come from families living on social assistance report changes ranging from heightened anxiety and despair, among both parents and children; to increased incidence of petty thievery; to increased attendance at breakfast and lunch programs; to the creation of morning school-wide snack programs, food banks and clothing exchanges. The Toronto Children's Breakfast Club, which serves 2,200 children in 30 locations across Metropolitan Toronto, reports a 20 per cent. increase in users since October, 1995.

Increasingly, community agencies report they are made aware of instances of children shoplifting for food and clothing, and stealing school lunches. These same agencies reported that, in some cases, children are being split up among friends and relatives as parents make decisions with regard to survival of the family.

A divisional survey of social assistance recipients provided additional evidence that the short-term effects on children are increased hardship and deprivation, ranging from inadequate winter clothing, to the inability to participate in school outings that require some monetary contribution, to a lowered quality of food and nutrition.

E. Reductions in Community Supports:

Reductions to the social assistance program are exacerbated by cuts to social programs provided within Metropolitan Toronto. Recent cuts announced by the provincial government come on top of reductions that have been made over the past two years as a result of the expenditure control program and cuts in Federal funding.

The result is a nearly across the board reduction in programs and services available to Metro's most vulnerable residents.

Divisional staff have documented the closure or reduced service capacity of community agencies they have traditionally made referrals to, or which they have obtained assistance from directly. Staff have
noted that the resources they use in the community to assist recipients are being significantly affected by reductions in funding.

The 1995 Community Agency Survey conducted by the City of Toronto, Metro, and the Social Planning Council of Metropolitan Toronto (Clause No. 11(f) of Report No. 8 of The Human Services Committee) drew responses from 629 agencies that confirmed this trend. The data collected indicated that, in 1995, 162 programs were cancelled, while, in 1996, 106 were thought likely to face cancellation, and 331 more were "under review" from the point of view of cancellation. For 1996, 57 per cent. of all employment skills training and skills development programs, 56 per cent. of all legal services, and 52 per cent. of all general service sector programs were seen to be at risk. At the same time, reports from community agencies are that demand has increased.

The effects on users of these agencies is reduced support and reduced accessibility. The impact on the wider community, including the Social Services Division, is a markedly reduced ability to assist people. For those on assistance, not only is cash assistance reduced but agency assistance is being reduced as well.

F. Divisional Interventions:

At the divisional level, self-help resource centres have been developed and made available at each Area Office to assist recipients to obtain employment, both full and part-time. This is essential because, as a result of enhanced earning exemptions, clients can now retain a larger amount of income from employment while remaining eligible for social assistance. Over 14,000 social assistance recipients declared earnings from employment in April, 1996.

Specialist staff have played a critical role, assisting customers directly, and in partnership with community agencies, to improve budgeting, child care, and food preparation skills. Housing counsellors have seen their workloads escalate as the majority of customers confront the challenge of maintaining their current housing arrangements, or of relocating.

Divisional staff have made extensive efforts to work with the community to provide customers with information about community resources. Area Offices have worked closely with their local communities voluntarily contributing to food drives, clothing depots and various support groups to further lessen the effects of reduced benefits and services. Staff have also co-ordinated community outreach through local schools and agencies to provide information relating to regulation and rate changes, to housing, to legal services, and to other expressed needs. Local offices have developed relationships with community partners for the purpose of identifying service related issues, maximizing community resources, and developing local initiatives.

The Division has also recently proposed revised policies with regard to the treatment of loans, gifts and donations from family and friends, which were approved by Metropolitan Council at its April, 10, 1996, meeting. The objective is to permit families, friends and other community benefactors to supports customers efforts to meet immediate basic needs, as well as to stabilize their financial situations over the longer term.

The Division is continuing to investigate innovative ways of assisting customers to meet their basic needs, and ultimately, become independent of social assistance. As part of the its ongoing research, the Division is assessing the feasibility of implementing initiatives undertaken in other jurisdictions.

II. Recent Caseload Trends and Implications for Delivery of Social Assistance in Metro:

Introduction:

A number of key questions have been raised about why people have left the social assistance system since mid-1995. The following section identifies and discusses the combination of factors which have contributed to the recent decline in the caseload . First, the impact of recent provincial changes to the social assistance program, notably reductions in social assistance rates, are discussed. The primary reasons people have left the social assistance rolls are then examined using information from the computer data base, and from a manual review of 834 case files undertaken in February, 1996. Finally, the effect of changes in the performance of the economy on Metro's caseload, specifically employment growth and unemployment rates in the latter part of 1995, is reviewed.

The recent reductions in caseload need to be viewed in the context of broader trends and patterns in the caseload since the onset of the recession in 1989. First, increases in the average length of stay for clients on social assistance are reviewed. Changes in the numbers of new cases entering the system versus the number of cases leaving the system are subsequently described, followed by an overview of the changes in the mix of single adults and families on the caseload. Finally, the effects of divisional caseload management strategies are assessed.

A. Provincial Changes to Social Assistance Regulations:

During the summer of 1995, the provincial government made a series of announcements around the General Welfare Assistance program that impacted both eligibility and entitlement. Chief among these was the 21.6 per cent. reduction in social assistance benefit rates from then current maximum levels. At the same time, the Province also introduced more restrictive criteria governing initial eligibility and ongoing entitlement, including regulatory changes which affect the eligibility of employable persons and 16 and 17-year-olds, change the definition of spouse and mandate the reintroduction of home visits.

The October rate reduction did result in approximately 1,300 cases being initially terminated because of their employment earnings. However, most of these cases were reinstated in December, 1995, after the Province introduced new Supports to Employment Program (S.T.E.P.) earnings exemptions.

Taken together, the provincial rate reductions and eligibility changes likely contributed to the sizeable decline in the number of single adults on the caseload in the latter part of 1995. This reduction in benefits had the effect of widening the gap between minimum wage and social assistance benefits. Income from minimum wage jobs provide single adults with greater capacity to live in a high cost region like Metropolitan Toronto, versus the reduced benefits now provided on social assistance. (See Table A, Appendix 2.) Single adults, because they do not support dependants and are typically more mobile than families, have the flexibility to pursue lower paying jobs.

As will be discussed below, the number of new cases entering the system declined significantly in the last half of 1995. To what extent provincial changes discouraged eligible individuals or families from applying for social assistance cannot be measured. However, while the pattern of a decrease in new cases was evident prior to the provincial announcement, and was influenced by other factors discussed above, the rate reductions likely intensified the magnitude of the decline. Overall, based on the evidence surveyed in this report, a combination of factors contributed to the decline in the caseload in the second half of 1995.

B. Why Have People Left the Caseload?:

As the caseload fell in the second half of 1995, there was considerable speculation as to why people were leaving the system. Often, people leaving the system do not advise the Division about their circumstances. It is also difficult, and requires significant staff time and resources, to track people no longer on assistance. To determine why people have left the social assistance system, the Division undertook an analysis of cases that were terminated between August, 1995, and April, 1996, supported by a manual file review of 834 cases for the month of February, 1996.

Data obtained from the computer data base shows that the reason for exiting the system most often cited has been employment. (See Table B, Appendix 1.) Additional reasons for leaving the system that consistently ranked high included transfers to the provincial system and assets or income in excess of legislated amounts. The data obtained from the file review ranked, from highest to lowest, the top five reasons for leaving assistance as follows:

(a) employment (29 per cent.);
(b) transfer to the provincial system (21 per cent.);
(c) assets or income in excess of legislated amount (13 per cent.);
(d) client received Unemployment Insurance Benefits (9 per cent.); and
(e) moved from the municipality (8 per cent.).

In addition, anecdotal information from the February file review indicates that a significant percentage of those leaving the municipality did so to either take jobs or improve their employment prospects.

These findings are supported by a similar study of terminations undertaken by the Regional Municipality of Ottawa-Carleton. They found that the top three reasons for termination were employment income, referral to F.B.A., and moved from the municipality. They also found that the majority of cases terminated between September, 1995, and February, 1996, were single employables.

C. Changes in the Economy:

There is a well known historical relationship between Metropolitan Toronto's General Welfare Assistance caseload and the broader economy. Changes in the rate of economic growth, and specifically in the rate of employment growth and unemployment, have direct impacts on the caseload. When there is a downturn in the economy, such as a recession, caseloads rise in proportion to the numbers of people who lose their jobs.

This was dramatically illustrated in 1989, when Metropolitan Toronto experienced its worst recession in the post-war period. Between 1990 and 1992 , the unemployment rate in the Census Metropolitan Area (C.M.A.) almost tripled from 4.3 per cent. to 12 per cent. For the first time ever, this rate exceeded the national average. It is widely believed that Metro's unemployment rate, although not available, was even higher than the C.M.A.s.

The recession, combined with massive restructuring of the Metro economy, resulted in large scale job losses, particularly in the manufacturing sector, in the construction industry and among people in certain occupations, such as clerical workers. Unlike the recession in the early 1980's, many of the better paying, full-time jobs have been permanently lost because plants have shut down or workers have been replaced by new technologies. Filling in the Future, a monograph prepared by the Social Development Division in 1995, further documents the severe impacts Metro experienced in the early 1990's.

The effect on the social assistance caseload was rapid and powerful. Between 1989 and 1991, new cases entering the social assistance system in Metropolitan Toronto increased from 5,500 to almost 12,000 per month in 1991. The caseload more than doubled, from 38,000 to 87,000. By 1993, the caseload had reached 120,000, peaking at 126,500 in March 1994.

The extended rise in the caseload reflected the length and depth of the recession in Metropolitan Toronto, and its after effects. Although the recession technically ended in 1992, the unemployment rate remained significantly higher in Metropolitan Toronto than in the Province overall. The numbers of unemployed and on social assistance attest to the largely jobless nature of the economic recovery in the region until very recently.

In periods of economic recovery, caseloads have tended to decline if there is a sustained period of employment growth resulting in the creation of jobs, notably full-time jobs. A review of employment data for 1995 shows that there was a significant increase in the number of people employed in the Census Metropolitan Area. As well, the number of people unemployed declined in the second half of 1995 (Chart 1, Appendix 2). The improving employment situation coincided with, and likely was one of the factors contributing to, the decline in Metro's caseload in the latter part of 1995.

Unless there is a sustained period of high economic growth, which does not appear likely at this time, it is unclear whether caseloads will decline much further as a result solely of economic factors. Based on the historical pattern of recessions over the past 20 years, the consequence of strong job growth have been to reduce caseloads from peak levels but not return them to pre-recession levels.

Despite recent increases in job growth, the C.M.A. as a whole has not yet returned to its previous employment peak reached in late 1989. Unemployment rates, which have recently been increasing, and stand at 9.9 per cent. in Metropolitan Toronto, remain higher than in the CMA and the Province. Significant public sector downsizing will also decrease the net effects of stronger private sector job creation in Metropolitan Toronto.

Ongoing changes in the Unemployment Insurance (now renamed Employment Insurance) program have also impacted the social assistance caseload. In 1994, only 42 per cent. of unemployed people in Ontario were receiving U.I. payments versus 64 per cent. in 1990. At the same time, 42 per cent. were receiving social assistance versus 23 per cent. in 1990. The recently announced changes will likely accelerate this trend, which will obviously have an effect on Metro's caseload in the future. Recently announced changes to the Workers' Compensation system may similarly increase the number of people who will now have to rely on social assistance. The Division will assess the implications of continuing changes in these program areas and report to Metropolitan Council later this year.

D. General Caseload Trends (1988 to 1995):

Overall, two trends have been dominant in terms of changes in the caseload over the past year: changes in the length of stay on the caseload; and changes in the number of new cases entering the system versus cases leaving the system. Despite recent caseload declines, the Division continues to serve a large number of separate cases annually, totalling over 203,000 cases in 1995. These trends are examined below.

The following are some of the highlights of the analysis of caseload trends:

(a) those cases that have been on assistance the shortest period of time have been the first ones to leave;

(b) the number of new cases entering the social assistance system has fallen below the number of cases leaving the system, accounting for the decline in the caseload in the latter half of 1995;

(c) singles adults account for the majority of the caseload decline while the proportion of families on assistance has actually increased;

(d) divisional initiatives have contributed to the decline, but it is difficult to quantify their exact impact; and

(e) the rate of caseload decline has levelled off in April.

Length of Time on Assistance:

One dominant trend over the last several years is the continued growth in the average time a case is in receipt of assistance. Over a five-year period, 1991 to 1995, the number of months that a person or family receives assistance increased from about 5 months to 18 months. This trend has continued even though the caseload fell by 16,551 cases during the last six months of 1995.

In fact, a large percentage of the cases that left the system in 1995 were on assistance for a relatively short period. For example, of the cases that left the system between August and December, 1995, over 50 per cent. were on assistance for less than one year; and about one-third had received assistance for less than six months. This applies particularly to single adults, who appear to be part of a "last on-first off" group.

The gap between the time singles are staying on the caseload versus families is steadily increasing. Currently, the average length of stay for single adults is 17 months compared with just under 22 months for families. (See Chart 2, Appendix 2.) This means that an increasing proportion of Metro's caseload are families who are on assistance for longer periods of time. This has ramifications for the levels of resources and supports that will be necessary to assist families in becoming independent.

Trends in New Cases Coming onto Social Assistance versus Cases Leaving the System:

In September, 1989, Metro's G.W.A. caseload numbered 34,800 cases. By March, 1994, it was 126,530, a 264 per cent. increase covering a 55-month period. Between March, 1994, and May, 1995, the number of cases on G.W.A. remained relatively stable; however, from June, 1995, to December, 1995, the caseload fell by approximately 13.4 percent. or 16,551 cases. (See Chart 3, Appendix 2.) Similar declines in caseload were experienced throughout the Greater Toronto Area and the Province.

Whether the caseload grows or declines within a specific period is determined by the respective rates at which new cases enter the social assistance system compared to the rate at which cases leave the system. It is clear that the rate at which new cases entered the system began to decline in the first part of 1991. (Chart 4, Appendix 2.) Between the second half of 1991 and the last half of 1995, the average number of new cases each month fell from about 12,000 to 6,200 cases. Cases exiting the system remained relatively stable, between 8,000 and 9,000 per month, during the same time period.
It was not until the second half of 1995 that the number of new cases fell substantially below the number of cases leaving the system. It is this gap between new cases and cases leaving the program that led to the decline in the overall caseload in the latter part of 1995. The rate at which new cases are entering the system has remained only slightly below the number of cases leaving for the first part of 1996, resulting in a further moderate decline on the overall caseload.

However, while the caseload declined by 13.4 per cent. between June and December, 1995, the total number of people receiving assistance during that period declined by only 8.2 per cent., from 232,272 to 213,206 (see Chart 2). Thus, the number of people being assisted has decreased at a noticeably slower rate than the number of cases. As will be explained below, this is due to the changing proportion of families versus single adults on the caseload.

During the first four months of 1996, the number of new cases entering the system has levelled off at approximately 5,500 cases per month. The number of cases leaving social assistance has steadily declined, from as high as 10,274 in November, 1995, to about the same level as new cases. (See Chart 5, Appendix 1.) The result of these two trends is a decrease in the number of cases dropping off the system, from a high of 4,142 in September, 1995, to about 74 in April, 1996. As a result, the caseload has recently levelled off.

The same factors identified as influencing caseload trends at the beginning of this section will continue to impact them in the future. Provincial legislative changes such as the introduction of Work for Welfare, divisional initiatives such as continued automation, Federal changes to the Unemployment Insurance Act and the general health of the economy are critical factors which will determine the future growth of the caseload. The uncertainties inherent in each of these areas will make it difficult to accurately predict caseloads for the foreseeable future.

Caseload Mix - Singles and Families:

Since 1988, the percentage of employable recipients on G.W.A. has increased significantly. In December, 1988, 59 per cent. of the caseload were considered employable. By December, 1995, the employables share of the caseload had increased to 73 per cent. (See Chart 6, Appendix 2.)

Single employable adults were the segment of the caseload which increased the most between 1989 and 1991, and which primarily accounted for the substantial growth in the caseload over this period. (See Chart 7, Appendix 1.) Consequently, single adults have comprised the majority of cases, accounting for as much as 52.6 percent. of the overall caseload in August of 1991.

Cases categorized as Temporary Ill Health, Permanently Unemployable have not changed significantly over the last several years. Single-led caseloads, however, have continued to increase, equalling 24.1 per cent. of the caseload as of December, 1995 (25,587 cases), up from 19.6 per cent. one year earlier.

This trend was sharply reversed during the recent period of caseload decline. Of the nearly 16,551 case decline between June and December, 1995, over 10,818 cases, or 65 per cent., were single employables. During the same period, the number of new singles entering the system fell by 31 per cent. Adult singles now comprise only 36 per cent. of the caseload. Correspondingly, the proportion of families on the caseload has significantly increased since 1991. (See Chart 7.) Clearly, the change in the number of single adults entering the system is one important reason why the caseload declined in the latter half of 1995.

E. Divisional Caseload Management Initiatives:

The Division has been undertaking an extensive redesign of the social assistance delivery system over the past several years. As part of this overhaul, the Division has introduced two major caseload management strategies: service planning strategies including employment program supports and new caseload monitoring and review strategies. The combination of active service planning and caseload monitoring and review have played an important role by assisting customers find employment and ensuring ineligible clients do not remain on the system.

Each employable recipient is required to participate in a service plan to achieve financial independence. Employable customers may choose from a number of program options that are best suited to achieve financial independence at the earliest point possible. Participation in the program options are regularly reviewed, adjusted and monitored to ensure customers meets their eligibility requirements.

Examples of employment program support, administered by the Division, include creation of self-help employment resources centres in each area office, innovative programs such as the Job Incentive Project which placed 2,230 social assistance recipients into non-remunerated, voluntary, full-time training placements, and placement of recipients in short-term skill training programs.

Caseload monitoring and review initiatives include enhanced verification processes, Insurance Crime Prevention Bureau, credit checks and information-sharing agreements (e.g., Immigration). For example, as a result of information obtained during secondary file reviews, almost 1,000 terminations were effected between June and December, 1995, because recipients were no longer eligible.

In the latter part of 1995, the Division also transferred as many aged and permanently unemployable cases to the provincial system as possible to ensure their benefit levels would not be impacted by the October rate reductions. Between July and December, 1995, the Division transferred just over 4,200 cases to the provincial system, the second highest number of transfers for a six-month period since the first half of 1992.

IV. Conclusions:

The rate reductions implemented in October, 1995, represent the most significant change to the social assistance system in decades. Drawing on information from a range of sources, this report assesses the impacts to date on people receiving General Welfare Assistance in Metropolitan Toronto.

For the majority of people on social assistance in Metropolitan Toronto, paying for housing and meeting other basic needs is becoming increasingly difficult. Substantial evidence exists that many people on social assistance face an increased risk of losing their housing. If money has to be diverted from the basic needs allowance to retain housing, other areas suffer: whether it is the ability to purchase sufficient and healthy food, to buy appropriate clothes for children, or to actively look for work. For children, the impacts of living in families experiencing financial stress are potentially graver, and may be felt over long periods as a result of the implications for physical, emotional and intellectual development.

Over the longer term, there are indications that a growing number of recipients will have greater difficulty sustaining themselves and their families in a high cost region such as Metropolitan Toronto. At the same time, the community-based sector, which has historically provided a wide range of services to low-income people, is also being affected by ongoing reductions in funding.

Methods to measure impacts have only gradually been developed throughout the region. As a result, there is not yet sufficient information to accurately gauge the magnitude and distribution of impacts, or to identify wide-ranging trends. The Division will continue to monitor the situations customers face, with respect to the crucial area of housing, as well as other specific needs, as expressed to both Divisional staff and community agencies. The overriding short-term goal is to help people meet their basic needs. The long-term goal still remains helping people prepare for, and find, work.

It is also important to monitor impacts to determine, over time, what constitute the most cost-effective approaches to assisting people who need help in the Metro community. If rate reductions ultimately mean that people on social assistance, notably children, will require expensive health or child protection interventions, initial cost-savings in social assistance may be more than offset by costs incurred elsewhere.

Beginning in July, 1995, social assistance caseloads fell significantly in Metropolitan Toronto, mirroring a trend that occurred Province wide. In April, 1996, the caseload levelled off after nine months of decline. The evidence reviewed indicates caseload decline occurred as a result of a combination of factors: reductions in social assistance rates which increased the attractiveness of low wage jobs especially for single adults; a gradually improving employment situation; and divisional case management and caseload monitoring strategies.

A review of caseload trends since the onset of the recession in 1989 clearly reveals changes in the length of time people remain on assistance, and the changes in the proportion of singles and families on the caseload. It is increasingly evident that the social assistance system program no longer functions as a short-term emergency program. With unemployment rates remaining high, and other income support programs facing ongoing changes which restrict eligibility, G.W.A. has become the core source of income and employment assistance for ever larger numbers of Metropolitan Toronto residents

Therefore, changes in the caseload mix will have significant implications for the delivery of social assistance in Metropolitan Toronto. Additional resources will be required to serve the increasing number of families who remain on the caseload and have substantial barriers to employment. Similarly, if eligibility for programs such as Work for Welfare is extended to single parents, supports in the form of child care will be critical to assisting these recipients obtain work or community placements.

Appendix I

Table A

Social Assistance Benefits

Before and After October, 1995, Benefit Rate Changes

Single Adult

Pre-October 1, 1995 Post-October 1, 1995

$ $

Basic Allowance 249.00 195.00
Maximum Basic Shelter 414.00 325.00
Total Maximum Benefit 663.00 520.00

Single Parent, One Child

(Under 13 Years)

Pre-October 1, 1995 Post-October 1, 1995

$ $

Basic Allowance 569.00 446.00
Maximum Basic Shelter 652.00 511.00
Total Maximum Benefit 1,221.00 957.00

Two Parents, Two Children

(Both Children Under 13 Years)

Pre-October 1, 1995 Post-October 1, 1995

$ $

Basic Allowance 735.00 576.00
Maximum Basic Shelter 768.00 602.00
Total Maximum Benefit 1,503.00 1,178.00

Table B

Metro Community Services Department

Social Services Division

Cases Paying Shelter Cost Above Shelter Allowance Maximums:

Level of Risk Based on the Percentage of Basic Allowance Diverted to Cover Shelter Costs

April, 1996

No. of Cases Percentage of Cases

Level of Risk Total Cases Children Total Cases Children

(0-12) (0-12)

Minimum (Shelter Costs Below Maximum 30,971 13,683 33.6 25.4
Shelter Allowance)

Lower (Divert Between 0 25% of 21,872 15,521 23.7 28.8
Basic Allowance)

Medium (Divert Between 25-50 of 25,461 17,991 27.6 33.3
Basic Allowance)

Higher (Divert 50 of Basic Allowance) 13,812 6,758 15.0 12.5

Totals 92,115 53,953

Metro Community Services Department

Social Services Division

Cases Paying Shelter Cost Above Shelter Allowance Maximums:

Level of Risk Based on the Percentage of Basic Allowance Diverted to Cover Shelter Costs

August, 1995

No. of Cases Percentage of Cases

Level of Risk Total Cases Children Total Cases Children

(0-12) (0-12)

Minimal (Shelter Costs Below Maximum 72,519 32,209 66.3 57.0
Shelter Allowance)

Lower (Divert Between 0 25% of 24,332 19,022 22.3 33.7
Basic Allowance)

Medium (Divert Between 25-50 of 7,464 4,234 6.8 7.5
Basic Allowance)

Higher (Divert 50 of Basic Allowance) 5,011 1,028 4.6 1.8

Totals 109,325 56,493

Table C

Average Rents as of October 1, 1995, Toronto CMA

Average Rents In Structures With 3 Or More Units

Unit Type October 1995 Rent

Bachelor 531.00

1-Bedroom 661.00

2-Bedroom 805.00

3-Bedroom 957.00

Appendix 2

Table A

Comparison of General Welfare Entitlement and Gross Minimum Wage Earnings

1990 and 1996

General Welfare Entitlement and Minimum Wage Earnings - 1990 and 1996

1990 1996

$ $ General Welfare Assistance

Monthly 567.00 520.00

Yearly 6,804.00 5,240.00

Minimum Wage (hourly)* 5.40 6.85

Weekly (40 hrs.)* 216.00 274.00

Yearly* 11,232.00 14,248.00

*All wages are based on gross figures and calculated wages assume a 40-hour work week

Welfare Entitlement as a Percentage of Minimum Wage Earnings for 1990 and 1996

1990 1996

General Welfare Entitlement as

a Percentage of	61	44
Minimum Wage Earnings*

*All wages are based on gross figures and calculated wages assume a 40-hour work week.

(A copy of each of Appendix 2 Table B and Charts 1-7 referred to in the foregoing report was forwarded to all Members of Council with the agenda of the Human Services Committee for its meeting on June 10 and 11, 1996, and a copy thereof is on file in the office of the Metropolitan Clerk.)

FOR COUNCIL ACTION

AUTHORIZED SIGNATURES FOR GENERAL
WELFARE ASSISTANCE ACCOUNTS.

The Human Services Committee recommends the adoption of the report dated May 27, 1996, from the Commissioner of Community Services.

The Human Services Committee reports, for the information of Council, having requested the Commissioner of Community Services, following consultation with the Metropolitan Solicitor, to report to the Human Services Committee on whether it is necessary to report to Council regarding authorized signatures for General Welfare Assistance Accounts.

The Human Services Committee submits the following report (May 27, 1996) from the Commissioner of Community Services:

Purpose :

To update the list of authorized signatures for General Welfare Assistance Accounts.

Recommendation :

It is recommended that the following changes be made to the list of authorized signatures:

Additions: Svetlana Urosevic

Delia Senador

Background :

Cheques for General Welfare Assistance are drawn on special imprest bank accounts under the control of the Commissioner of Community Services. The bulk of these cheques are issued centrally, however, some are issued in local area offices. The Metropolitan Council authorizes certain personnel in the Metro Community Services to sign cheques issued in the local area offices, amount of any such cheques not to exceed $3,000.00.

FOR COUNCIL ACTION

RECOVERY OF MAINTENANCE ARREARS -
HOMES FOR THE AGED.

The Human Services Committee recommends the adoption of the following report (May 23, 1996) from the Metropolitan Solicitor:

Purpose :

Recovery of maintenance arrears.

Funding Sources, Financial Implications and Impact Statement :

Maintenance arrears of $26,459.48 as of April 10, 1996.

Recommendation :

It is recommended that authority be granted to commence court action against the estate of S.S., B.H. and W.H., to appeal any decision where warranted, to discontinue or settle any such claim or action where it is concluded that it is reasonable to do so and to execute any documents in furtherance thereof.

Council Reference/Background/History :

On February 5, 1991, S.S. was admitted to Lakeshore Lodge Home for the Aged and remained a resident of Lakeshore Lodge until her death on April 10, 1996.

S.S. had a will which appointed B.H. and W.H. as executors and trustees.

In addition, as a condition of admittance B.H., S.S.'s sister, executed an agreement to pay for S.S.'s maintenance costs. B.H. has failed to make the requisite payments as required by her written undertaking.

The arrears as of April 10, 1996, are $26,459.48.

The General Manager of the Homes for the Aged Division has referred this delinquent account to the Legal Department for collection as all other means to satisfy the arrears have failed.

Comments and/or Discussion and/or Justification :

The Commissioner of Community Services concurs in this report.

Conclusion :

The requested authorization be granted.

Summary Chart :

This report conforms with the following:

Council Approved Three-year

Plan (n/a)
Corporate Personnel and

Administrative Policies (n/a)

Approved Capital Budget (n/a)

Approved Current Budget (n/a)

Standing Committee Approved

Program Priority (n/a)

Metro Official Plan (n/a)

Contact Name and Telephone Number :

Kalli Y. Chapman: 392-8464

FOR COUNCIL ACTION

PURCHASE OF HOSTEL SERVICES AGREEMENT -
STREETCITY HOSTEL.

The Human Services Committee recommends the adoption of the following report (May 15, 1996) from the Commissioner of Community Services:

Purpose :

To request approval to expand our contract with Homes First Society to include the new Streetcity project scheduled to open at 53 Strachan Avenue in late 1996.

Funding Sources, Financial Implications and Impact Statement :

This new Streetcity project will be funded identically as the existing Streetcity located at 393 Front Street and Metro's expenditures will be 80 per cent. cost-shared under the provincial General Welfare Assistance Act.

Recommendations :

It is recommended that:

(1) the Department of Community Services be authorized to enter into a purchase of hostel services with Homes First Society for the new Streetcity project located at 53 Strachan Avenue;

(2) the agreement will cover a maximum of 85 beds for both men and women at a rate of $22.75 per person per day;

(3) any and all payments under such agreement are subject to the receipt of 80 per cent. provincial cost-sharing for persons who are Ontario residents, and 100 per cent. cost-sharing for non-Ontario residents and Aboriginal Canadians;

(4) this agreement be conditional on Homes First Society meeting all operating guidelines and standards set by the Department; and

(5) the appropriate Metropolitan Officials be authorized to take the necessary action to give effect thereto.

Comments and/or Discussion and/or Justification :

The existing Streetcity project at 393 Front Street has been in operation for over seven years and provides very unique accommodation to a very hard to house population. By most standards, it has been judged a success. Without Streetcity, most of these men and women would live in institutions, hostels or worse - on the streets.

During its entire existence, Streetcity has lived with uncertainty. The building at 393 Front Street was slated for demolition to make way for the ill-fated Ataratiri project. At best, it was expected to last for only three to four years.

For this reason, Homes First Society had been actively looking for another empty warehouse. They finally secured the property at 53 Strachan Avenue and received capital funding from the Province to develop a new Streetcity at this location. The scheduled opening date is October, 1996.

Because of the growing problem of homelessness, and because there are no plans to demolish 393 Front Street, Homes First Society has decided to seek support for keeping the original Streetcity open. The City of Toronto has already agreed to pay for most of the renovations and maintenance. The provincial government has agreed to let Homes First Society continue to use this old warehouse property.

Despite the minimal facilities provided at the original Streetcity, most residents do not want to move. Many have lived at this location for several years and truly consider it to be their home. For some, change is very difficult, and we believe that any disruption may result in a return to street-life. We cannot assume that they will find alternative housing or that they will use other hostel programs.

The financial arrangements with Streetcity are also unique. It is a program that straddles hostel living and community living. It is not quite a hostel and nor is it housing - rather, it is a hybrid of the two. This is reflected in the funding arrangement. Streetcity is partially funded by a hostel per diem and partially by rent which residents pay out of their disability allowances or social assistance. Overall, the unit cost is comparable to a general hostel such as Seaton House.

The hostel per diem of $22.75 for Streetcity is equivalent to our per person cost of placing families in motels. Recent caseload trends show a decline in families and an increase in singles. Therefore, we expect that there will be enough underspending in motels to cover the cost of expanding the Streetcity program at 53 Strachan Avenue while keeping 393 Front Street in operation.

Without this expanded service and given the rising singles caseload, we may need to consider more beds in this area. In our view, it is more appropriate to support services such as Streetcity than to simply open more regular hostels.

Conclusion :

Our singles caseload is growing and the option of expanding the Streetcity model provides an appropriate response. Funds are available in our final 1996 budget to cover this cost.

Summary Chart :

This report conforms with the following:

Council Approved Three-year Plan (n/a )

Corporate Personnel and

Administrative Policies (n/a )

Approved Capital Budget (n/a )

Approved Current Budget (x )

Standing Committee Approved

Program Priority (n/a )

Metro Official Plan (n/a )

Contact Name and Telephone Number :

John Jagt,
Director of Hostel Services Division:
392-5358

FOR COUNCIL ACTION

DISCRETIONARY MINOR CAPITAL ALLOCATIONS FOR HOSTELS.

The Human Services Committee recommends the adoption of the following report (May 14, 1996) from the Commissioner of Community Services:

Purpose :

To seek Committee and Council approval to administer 100 per cent. provincial funds to several shelters for minor capital needs.

Funding Sources, Financial Implications and Impact Statement :

The funds for these minor capital expenditures are provincial monies forwarded to Metro for distribution to shelters that most need it to address their health and safety needs. There is no financial implication for Metro.

Recommendations :

It is recommended that:

(1) the Department of Community Services be authorized to administer 100 per cent. provincial funds to hostels for minor capital needs;

(2) the allocations totalling $43,759.00 shown in this report be approved;

(3) 80 per cent. of these amounts be advanced to the hostels when required, with the remaining 20 per cent. to be released after the work is completed and appropriate expenditure documents have been submitted; and

(4) the appropriate Metropolitan Officials be authorized to take the necessary action to give effect thereto.

Council Reference/Background/History :

In 1992, the Department entered into a legal agreement with the Ministry of Community and Social Services regarding discretionary minor capital allocations for community-based hostels. Under this agreement, a total of $219,679.00 was made available to help hostels with items related to improving health and safety. In 1993, a further $100,000.00 was released to Metro. In 1994, $164,335.00 was given to Metro. Unfortunately, we did not receive any monies for 1995. However, a small balance remained which allowed us to meet several serious needs during that year. This year we have received $98,700.00 from the Province, this increases the fund balance to $111,817.61.

The Ministry has helped hostels with minor capital needs for many years. They have asked the Department to assist in these allocations because we are in closer contact with these services and are better able to assess their specific health and safety needs.

Again, these allocations have a zero net cost to the Corporation.

Comments and/or Discussion and/or Justification :

The Department is prepared at this time to proceed with three allocations totalling $43,759.00. This would leave $68,058.61 for other needs identified during the year. The three allocations we want to go with at this time are as follows:

(1) Street Haven - for adult women
(fire safety upgrades)

$21,500.00
(2) YWCA Stop 86 - for youth (repair flood damage, improve heating, etc.)

16,759.00
(3) WoodGreen Red Door - for families (plumbing upgrades)

5,500.00
Total $43,759.00
Conclusions :

Hostel Services have met with each group and are satisfied that the above reflects their needs. We are pleased to be in a position to assist them in such times of restraint at no cost to the Corporation; and ask that these requests be approved.

Summary Chart :

This report conforms with the following:

Contact Name and Telephone Number :

John Jagt,
Director of Hostel Services Division:
392-5358

FOR COUNCIL ACTION

ENACTMENT OF BY-LAW No. A-12 TO AMEND
BY-LAW No. A-9 - THE METROPOLITAN TORONTO HOUSING
COMPANY LIMITED - SALES OF REAL ESTATE - DEFINITION
OF "REAL PROPERTY".

The Human Services Committee recommends the adoption of the recommendation of the Board of Directors of The Metropolitan Toronto Housing Company Limited embodied in the following communication (May 3, 1996) from the Corporate Secretary:

The Board of Directors of The Metropolitan Toronto Housing Company Limited at its meeting held on May 3, 1996, had before it a report (May 1, 1996) from the Metropolitan Solicitor advising that By-law No. A-9 was enacted on April 7, 1995, as required by the Municipal Act for local boards, to deal with the sale of real property (declarations of surplus/appraisal/public notice); that the said by-law incorporates, in clause 1(g), the stipulation that a "sale" includes a lease of 21 years or longer; that clause 1(h) defines "site" to mean a parcel of real property, which is defined in clause 1(f) to mean land owned by the Housing Company; that section 2 of such by-law covers binding arrangements for the "sale of any site"; suggesting that it is, therefore, arguable that when the Housing Company disposes of a leasehold interest of which it is the tenant, it is engaging in the sale of a site (the leasehold interest) and must adhere to the requirements concerning declarations of surplus, appraisal and public notice, even though the granting of a lease for less than 21 years by the Housing Company as a landlord is expressly exempted from those requirements; that to avoid any such anomaly as between leases for less than 21 years under which the Housing Company is the landlord and those under which it is a tenant, the aforementioned by-law should be amended accordingly; submitting draft By-law No. A-12 which, if enacted, will expand clause 1(f) with text excepting leasehold interests for less than 21 years from the definition of "real property" and thereby ensure consistent application of the by-law regardless of whether the Housing Company is the landlord or the tenant; and recommending that:

(1) By-law No. A-9 be amended by the enactment of an amending by-law as set forth in draft By-law No. A-12 attached to this report;

(2) following enactment of By-law No. A-12 as described in Recommendation No. (1), the same be submitted for confirmation to the Housing Company's sole shareholder, the Metropolitan Corporation, through its governing body the Metropolitan Council; and

(3) the appropriate Housing Company and Metropolitan Officials be authorized to take the necessary action to give effect to Recommendations Nos. (1) and (2).

The Board of Directors adopted, without amendment, the aforementioned report, and enacted By-law No. A-12 as described in the foregoing Recommendation No. (1).

The Board of Directors recommended that the Human Services Committee, and Council, confirm By-law No. A-12 as described in the foregoing Recommendation No. (2).

(Report dated May 1, 1996, addressed to the

Board of Directors, The Metropolitan Toronto Housing

Company Limited, from the Metropolitan Solicitor)

Purpose :

To submit a draft amending by-law to amend By-law No. A-9 to clarify that "real property" as defined therein does not include leasehold interests having terms less than 21 years.

Recommendations :

It is recommended that:

(1) By-law No. A-9 be amended by the enactment of an amending by-law as set forth in draft By-law No. A-12 attached to this report;

(3) the appropriate Housing Company and Metropolitan Officials be authorized to take the necessary action to give effect to Recommendations Nos. (1) and (2).

Board Reference/Background/History :

By-law No. A-9 was enacted on the 7th day of April, 1995, to deal, as required by the Municipal Act for local boards, with the sale of real property (declarations of surplus/appraisal/public notice). The by-law incorporates, in clause 1(g), the stipulation in the Act that a "sale" includes a lease of 21 years or longer; it can then be properly inferred that leases of shorter duration are not sales and are not subject to the requirements of the by-law. The wording in the Act may properly be interpreted as applying to both the granting of a lease (where the Housing Company is the landlord) and the disposal of a leasehold interest (where the Housing Company is the tenant and is either assigning, subletting or surrendering).

However, clause 1(h) of the by-law defines "site" to mean a parcel of real property. "Real property" is in turn defined by clause 1(f) to mean land owned by the Housing Company. By clause 1(d), which incorporates the definition of "land" set forth in the Municipality of Metropolitan Toronto Act, "land" includes any interest in land. Section 2 of the by-law covers binding arrangements for the "sale of any site" and it is therefore arguable that when the Housing Company disposes of a leasehold interest of which it is the tenant, it is engaging in the sale of a site (the leasehold interest) and must adhere to the requirements concerning declarations of surplus, appraisal and public notice, even though the granting of a lease for less than 21 years by the Housing Company as a landlord is expressly exempted from those requirements.

Comments and/or Discussion and/or Justification :

To avoid any such anomaly as between leases for less than 21 years under which the Housing Company is the landlord and those under which it is a tenant, the by-law should be amended accordingly. Draft By-law No. A-12 attached to this report will, if enacted, expand clause 1(f) with text excepting leasehold interests for less than 21 years from the definition of "real property" and thereby ensure consistent application of the by-law regardless of whether the Housing Company is the landlord or the tenant.

THE METROPOLITAN TORONTO HOUSING COMPANY LIMITED

By-law No. A-12

BE IT ENACTED as a By-law of the Company as follows:

1. Clause 1(f) of By-law No. A-9 is amended by adding at the end thereof the text ", other than a leasehold interest for less than 21 years".

2. This by-law shall be deemed to have come into force on the 7th day of April, 1995.

ENACTED this 3rd day of May, 1996.

WITNESS the Corporate Seal of the Company.

PRESIDENT SECRETARY

FOR COUNCIL ACTION

APPOINTMENTS TO SPECIAL COMMITTEES
ADVISORY COMMITTEES, TASK FORCES AND
EXTERNAL ORGANIZATIONS.

The Human Services Committee recommends that:

(1) the following be appointed to the Special Committees, Advisory Committees, Task Forces, and external organizations noted, for a term of office expiring on November 30, 1997, and until their successors are appointed:

- Advisory Committee on Homes for the Aged

Councillor Caroline DiGiovanni, designee of the Metropolitan Toronto Chairman

Chair, Human Services Committee

- Seaton House Advisory Committee

Councillor Olivia Chow

- Metro Advisory Committee on Services to Homeless and Socially Isolated Persons

Councillor Jack Layton, designee of the Metropolitan Toronto Chairman

Chair, Human Services Committee

- Metro Cycling and Pedestrian Committee

Councillor Caroline DiGiovanni

- Metro Task Force on Services to Young Children and Families

Councillor Caroline DiGiovanni

Councillor Olivia Chow

Councillor Dennis Fotinos

- Metro Women Abuse Protocol Project

Councillor Maria Augimeri

- Metropolitan Toronto District Health Council

Councillor Jack Layton

- Ontario Municipal Social Services Association

Councillor Blake F. Kinahan

- Ontario Social Development Council

Councillor Dennis Fotinos

- Project Rebirth Steering Committee

Councillor Maria Augimeri

- Task Force on Greenwood Racetrack Redevelopment

Councillor Brian Ashton

- Task Force to Review the Concerns of the Taxicab Industry

Councillor Dennis Fotinos

- Taxis on Patrol

Councillor Lois Griffin

- Tripartite Steering Group for H.O.P.E.

Councillor Dennis Fotinos

Councillor Caroline DiGiovanni; and

(2) the following not be reconstituted at this time:

- Homes for the Aged Task Force; and

- Task Force to Review the Issue of Patient Billing for Ambulance Services.

The Human Services Committee submits the following communication (May 29, 1996) from Councillor Gordon Chong, Chair, Human Services Committee:

Purpose :

To make appointments to Special Committees, Advisory Committees, Task Forces and external organizations under the purview of the Human Services Committee.

Recommendations :

It is recommended that:

(1) appointments be made to the following Special Committees, Advisory Committees, Task Forces and external organizations:

Advisory Committee on Homes for the Aged

- Designee of the Metropolitan Toronto Chairman

- Chairman, Human Services Committee

(Note: positions in accordance with the Terms of Reference.)

Seaton House Advisory Committee

- one appointment

Metro Advisory Committee on Services to Homeless and Socially Isolated Persons

- Metropolitan Toronto Chairman or his Designee

- Chair, Human Services Committee

(Note: positions in accordance with the Terms of Reference.)

Metro Cycling and Pedestrian Committee

- one appointment

Metro Task Force on Services to Young Children and Families

- three appointments

(Note: positions in accordance with the Terms of Reference.)

Metro Woman Abuse Protocol Project

- one appointment

Metropolitan Toronto District Health Council

- one appointment

Ontario Municipal Social Services Association

- one appointment

Ontario Social Development Council

- one appointment

Project Rebirth Steering Committee

- one appointment

Task Force on Greenwood Racetrack Redevelopment

- one appointment

Task Force to Review the Concerns of the Taxicab Industry

Task Force to Review the Issue of Patient Billing for Ambulance Services.

- two appointments

Taxis on Patrol

- one appointment; and

Tripartite Steering Group for H.O.P.E.

(2) the following not be reconstituted at this time:

- Homes for the Aged Task Force

The Human Services Committee also submits the following communication (June 7, 1996) from the Metropolitan Chairman:

Purpose :

This report outlines my recommendations regarding the reconstitution of specific Special Committees, Sub-Committees and/or Task Forces under the purview of the Human Services Committee.

Funding Sources, Financial Implications and Impact Statement :

None.

Recommendations :

It is recommended that:

(1) Councillor C. DiGiovanni be reappointed to the Advisory Committee on Homes for the Aged;

(2) Councillor M. Augimeri be reappointed to the Metro Woman Abuse Protocol Project; and

(3) Councillor J. Layton be reappointed to the Metro Advisory Committee on Services to Homeless and Socially Isolated Persons.

Council Reference/Comments :

These three committees continue to serve a necessary and valid purpose and should be continued. I am recommending that the three Councillors who currently sit on these committees be reappointed as indicated.

Conclusions :

The following appointments should be continued:

(1) Councillor C. DiGiovanni to the Advisory Committee on Homes for the Aged;

(2) Councillor M. Augimeri to the Metro Woman Abuse Protocol Project; and

(3) Councillor J. Layton to the Metro Advisory Committee on Services to Homeless and Socially Isolated Persons.

Summary Chart :

This report conforms with the following:

Contact Name and Telephone Number :

Ms. Patricia Simpson,
Metropolitan Toronto Chairman's Office:
392-8001

FOR COUNCIL INFORMATION

OTHER ITEMS CONSIDERED BY THE COMMITTEE.

(a) RESPECTING THE METROPOLITAN LICENSING COMMISSION REVIEW OF BY-LAW NO. 20-85.

The Human Services Committee reports having:

(1) received the following communications from The Toronto Taxicab Owners and Operators Association and Taxicab Consulting Services;

(2) directed that the Metropolitan Licensing Commission be requested to:

(i) release the by-law review undertaken by Mr. George H. Rust-D'Eye so that the public can determine whether or not the $80,000.00 was well-spent; and

(ii) conclude its review of the matter of leases and designated agent agreements by the fall of 1996, and report thereon to the Human Services Committee by the end of 1996; and

(3) directed that the Chief Administrative Officer be requested to report to the Human Services Committee, as soon as possible, on the status of his review of the mandate, role and structure of the Metropolitan Licensing Commission:

(April 29, 1996) from Mr. Lawrence Eisenberg, President, The Toronto Taxicab Owners and Operators Association, expressing concern with regard to the process for the review of By-law No. 20-85; and requesting that, since By-law No. 20-85 is a Metro by-law and not a Metropolitan Licensing Commission by-law, Metropolitan Council immediately put a stop to the current procedure by the Commission, and further to take charge of the re-writing process of By-law No. 20-85;

(May 10, 1996) from Mr. Lawrence Eisenberg, President, The Toronto Taxicab Owners and Operators Association, providing additional background information with regard to the issue of the By-law review; and

(May 13, 1996) from Mr. Stan Steiner, President, Taxicab Consulting Services.

The following persons appeared before the Human Services Committee in connection with the foregoing matter:

- Mr. Andy Reti, on behalf of The Toronto Taxicab Owners and Operators Association;

- Ms. Pat Chapman;

- Mr. Herb Sporn;

- Mr. Lloyd Pollock, Celebrity Taxi; and submitted a brief in regard thereto;

- Mr. Michael Carman;

- Mr. Stan Steiner, Taxicab Consulting Services; and

- Councillor Howard Moscoe, North York - Spadina.

(b) AMENDMENTS TO BY-LAW NO. 20-85 LIVERY CABS/LIMOUSINES.

The Human Services Committee reports having deferred consideration of the following reports with a request that the Chair of the Human Services Committee, or his designate, one of the Human Services Committee members appointed to the Metropolitan Licensing Commission, together with appropriate staff, be requested to review the draft by-law amendments with all concerned parties, and report thereon with any recommendations to the Human Services Committee in September, 1996:

(i) (April 25, 1996) from the General Manager, Metropolitan Licensing Commission, advising that the Metropolitan Licensing Commission on April 27, 1995, approved recommendations with regard to Livery Cabs/Limousines; and recommending that:

(1) Section 9 of Schedule 8 to By-law No. 20-85, as amended, a by-law "Respecting the licensing, regulating and governing of trades, callings, businesses and occupations in the Metropolitan Area", be further amended by striking the words "(other than a livery cab)" in the first line therein;

(2) Sections 10, 11, 46, 92, 95, 96, 97, and 98 of Schedule 8 to By-law No. 20-85 be repealed;

(3) Subsection 48(2) of Schedule 8 to By-law No. 20-85 be repealed;

(4) Subsection 1(11) of By-law No. 20-85 be repealed and the following be substituted therefor:

"(11) `Cab' means taxicab";

(5) Subsection 1(26) of By-law No. 20-85 be repealed and the following be substituted therefor:

"(26) `Limousine' means any automobile, other than a taxicab, for hire for the conveyance of passengers in the Metropolitan Area.";

(6) Schedule 1 to By-law No. 20-85, as amended, be further amended by striking the words "livery cab" wherever they appear therein and inserting in lieu thereof the word "limousine";

(7) By-law No. 20-85, as amended, be further amended by adding Schedule 42 thereto, relating to Owners and Drivers of Limousines, attached to this By-law as Schedule "A";

(8) the said Schedule "A", attached hereto, shall form part of this By-law; and

(9) this By-law shall come into force on the date of its enactment;

(ii) (June 4, 1996) from General Manager, Metropolitan Licensing Commission, advising that the Metropolitan Licensing Commission on May 30, 1996, had before it a report dated May 17, 1996, from the General Manager with regard to the matter of Livery Cabs; that the Commission decided to recommend to Metropolitan Council that:

(1) the vehicles described in the new schedule to By-law No. 20-85 continue to be called Livery Cabs;

(2) both stretch vehicles and sedan vehicles may be used as Livery Cabs. A luxury type vehicle equivalent to a Chrysler New Yorker or better will be acceptable for use as a Livery Cab; and

(3) the minimum rate for the first hour of Livery Cab service will be $55.00. There will be a mandatory one hour minimum. The requirement to file additional rates will be deleted from the By-law;

and recommending that this report be approved in conjunction with the report dated April 25, 1996;

(iii) (June 6, 1996) from Mr. Stan Steiner, President, Taxicab Consulting Services; and

(iv) (May 13, 1996) from Mr. Lloyd Pollock, President, Celebrity Taxi.

The following persons appeared before the Human Services Committee in connection with the foregoing matter:

- Mr. Joe Ironi, President, Personnel Limousine Limited;

- Mr. Martin Jacobs, Ontario Limousine Owners Association;

- Mr. Andy Reti, on behalf of The Toronto Taxicab Owners and Operators Association; and submitted a brief in regard thereto;

- Mr. Douglas McCutcheon, President, Rosedale Livery Limited;

- Mr. Andy Reti, on behalf of Taxicab Consulting Services;

- Mr. Andre Plante; and

- Councillor Howard Moscoe, North York - Spadina.

(c) LICENSING OF VENDORS OF NON-MOTORIZED, BICYCLE-DRIVEN CARTS.

The Human Services Committee reports having received the following communication and report:

(i) (April 22, 1996) from Mr. Michael Gee, McCarthy Tetrault, solicitors for Good Humor/Dickie Dee Ice Cream; outlining the problems associated with the licensing fee of the vendor as well as the vehicle; and requesting that Metropolitan Council exercise its power under Bill 26 by defining their client's distributors' vendors and those of other similar refreshment vehicle operators as a class distinct from the year-round motorized operations; and

(ii) (June 4, 1996) from the General Manager, Metropolitan Licensing Commission, advising that the Metropolitan Licensing Commission on June 4, 1996, had before it a report (May 17, 1996) from the General Manager in response to the communication (April 22, 1996) from Mr. Michael Gee, McCarthy Tetrault; indicating that the Commission decided that the licence fees, as approved for implementation on July 1, 1996, should not be varied for ice cream cart attendants; and recommending that the report be received for information.

The following persons appeared before the Human Services Committee in connection with the foregoing matter:

- Mr. Michael Gee, McCarthy Tetrault, on behalf of Good Humor/Dickie Dee Ice Cream;

- Mr. Amo Blazes, Ice Cream Vendors Association;

- Mr. Steve Mavros, Ice Cream Vendors Association;

- Mr. Sunny Bhatia, Polar Ice Cream; and

- Councillor Howard Moscoe, North York - Spadina.

(d) HOUSING PROSPECTS AND PATTERNS IN METRO.

The Human Services Committee reports having recommended to Council, through the Planning and Transportation Committee, the adoption of the joint report (May 24, 1996) from the Deputy Commissioner of Planning and Commissioner of Community Services respecting the report, entitled "Housing Prospects and Patterns in Metro", subject to amending:

(i) Recommendation No. (1) by adding the words "Executive Director, Economic Development Division" after the words "Deputy Commissioner of Planning", so that such recommendation reads as follows:

"(1) the Commissioner of Community Services, the Deputy Commissioner of Planning and the Executive Director, Economic Development Division, develop a strategy to encourage the development of affordable housing in Metropolitan Toronto which includes consideration of the options identified by the Advisory Committee on Services to Homeless and Socially Isolated Persons;";

(ii) Recommendation No. (5) by adding the words "and area municipalities within Metro" after the initials "GTA", so that such recommendation reads as follows:

"(5) the Minister of Municipal Affairs and Housing be requested to develop, in consultation with Metro, the Regions in the GTA, and area municipalities within Metro, a comprehensive strategy to encourage an equitable distribution of housing mix throughout the GTA; and";

(iii) Recommendation No. (6) by adding the words "Metro M.P.P.s, Metro Federal M.P.s and Healthy Cities Initiative (Toronto Branch)" after the words "Minister of Municipal Affairs and Housing", so that such recommendation reads as follows:

"(6) copies of the report "Housing Prospects and Patterns in Metro," together with this covering report, be forwarded by the Metropolitan Clerk to the area municipalities, the Regions of Peel, York, Durham and Halton, the Minister of Municipal Affairs and Housing Metro M.P.P.s, Metro Federal M.P.s and Healthy Cities Initiative (Toronto Branch).":

(May 24, 1996) from the Deputy Commissioner of Planning and Commissioner of Community Services respecting housing prospects and patterns in Metropolitan Toronto; highlighting the need for a comprehensive strategy to address the issues related to the findings of a major housing research study; and recommending that:

(1) the Commissioner of Community Services and the Deputy Commissioner of Planning develop a strategy to encourage the development of affordable housing in Metropolitan Toronto which includes consideration of the options identified by the Advisory Committee on Services to Homeless and Socially Isolated Persons;

(2) the Commissioner of Community Services report to the Human Services Committee on the status of federal and provincial policy directions regarding housing for low-income people;

(3) the Area Municipalities be requested to work with Metro Planning to identify sites for townhouses suitable for purchase by young families and to determine appropriate housing forms and mechanisms to encourage and expedite the development of those sites;

(4) Metro Planning co-ordinate among Metro Departments and Agencies, Boards and Commissions the integration of capital infrastructure and services for Metro's designated reurbanization areas that have the highest potential to accommodate housing needs;

(5) the Minister of Municipal Affairs and Housing be requested to develop, in consultation with Metro and the Regions in the GTA, a comprehensive strategy to encourage an equitable distribution of housing mix throughout the GTA; and

(6) copies of the report "Housing Prospects and Patterns in Metro," together with this covering report, be forwarded by the Metropolitan Clerk to the area municipalities and the Regions of Peel, York, Durham and Halton, and to the Minister of Municipal Affairs and Housing.

The Human Services Committee reports having received a presentation on the aforementioned report from the following:

- Deputy Commissioner of Planning;

- Ms. Ana Bassios, Planning Department;

- Mr. Greg Suttor, Community Services Department; and

- General Manager, Housing Division, Community Services Department.

(e) MUNICIPAL LAW ENFORCEMENT PROGRAM.

The Human Services Committee reports having referred the following communication to the Metropolitan Solicitor and Chair of the Metropolitan Toronto Police Services Board, with a request that they report to the Human Services Committee on the status of the Municipal Law Enforcement Officer issue:

(April 26, 1996) from the Director of Council Services and City Clerk, City of York, advising that the Council of the City of York on April 17, 1996, adopted Clause No. 95 of Report No. 9 of its Administrative Services Committee, headed "Municipal Law Enforcement Program", wherein it recommended:

"That the City Solicitor continue discussions with representatives of The Municipality of Metropolitan Toronto and the other Metro area municipalities in an effort to develop uniform by-laws to control parking on private and municipal property, to provide for the appointment of Municipal Law Enforcement Officers, and to prohibit the removal of vehicles unlawfully parked on private or municipal property except in accordance with municipal by-laws passed for that purpose."

Councillor Howard Moscoe, North York - Spadina, appeared before the Human Services Committee in connection with the foregoing matter.

(f) THE ROLE OF STANDING COMMITTEES - GUIDELINES ON IMPLEMENTING METRO TORONTO'S ANTI-RACISM, ACCESS AND EQUITY POLICIES.

The Human Services Committee reports having deferred consideration of the following communication and presentation until its next meeting to be held on July 29, 1996:

(March 29, 1996) from the Metropolitan Clerk advising that the Metropolitan Council on March 27, 1996, adopted, as amended, Clause No. 1 of Report No. 1 of The Council Action Committee to Combat Racism, headed "The Functions of The Council Action Committee to Combat Racism", wherein it recommended that the Chief Administrative Officer be requested to arrange a 15-minute staff presentation for each Standing Committee respecting the guidelines referred to in "Appendix `B' The Role of Standing Committees - Guidelines on Implementing Metro Toronto's Anti-Racism, Access and Equity Policies."

(g) REPORT ON SOCIO-ECONOMIC INDICATORS OF ETHNO-RACIAL EQUALITY IN METROPOLITAN TORONTO.

The Human Services Committee reports having referred the following communication to the Commissioner of Community Services with a request that she report thereon prior to the 1997 Grants process:

(May 6, 1996) from the Metropolitan Clerk advising that the Anti-Racism Access and Equity Committee on May 2, 1996, directed that a copy of the report (April 10, 1996) from the Chief Administrative Officer on Socio-Economic Indicators of Ethno-Racial Equality in Metropolitan Toronto and a copy of the study prepared by Mr. Michael Ornstein, Institute for Social Research, York University, entitled "Ethno-racial Inequality in Metropolitan Toronto: Analysis of the 1991 Census", be forwarded to the Human Services Committee, with a request that the Committee review the results of the study and compare the relevant economic positions of groups identified to the extent to which they receive community services and Metropolitan grants, with a view to having this analysis inform the grants process for the balance of 1996 and 1997.

(h) MEMBERSHIP OF THE HUMAN SERVICES COMMITTEE.

The Human Services Committee reports having received the following communication; and having expressed its appreciation to Councillor Dennis Fotinos for his work as Chair of the Committee during the past eighteen months:

(May 9, 1996) from the Metropolitan Clerk advising that Council on May 8, 1996, appointed the following as members of the Human Services Committee for a term of office commencing on June 1, 1996, and expiring on November 30, 1997, and until their successors are appointed, viz:

B. Ashton B. Hall

O. Chow B. Kinahan

C. DiGiovanni M. Lastman

D. Fotinos F. Nunziata

N. Gardner A. Tonks (ex-officio)

L. Griffin

G. Chong, Committee Chair

(i) 1995 PERFORMANCE MEASURES - FINAL REPORT -

COMMUNITY SERVICES DEPARTMENT.

The Human Services Committee reports having received the following report:

(May 24, 1996) from the Commissioner of Community Services submitting, for information, a comparison by program of results against targets for those performance measures specified in the 1995 Current Estimates Executive Summary and subsequent modifications.

(j) MANAGEMENT LETTER - HOSTEL SERVICES DIVISION.

The Human Services Committee reports having received the following reports:

(i) (May 27, 1996) from the Metropolitan Auditor submitting, for information, a copy of the Management Letter addressed to the Commissioner of Community Services containing comments on systems and procedures arising from the 1995 audits of the Hostel Services Division of the Community Services Department;

(ii) (May 22, 1996) from the Commissioner of Community Services responding to the recommendations and comments embodied in the Management Letter from Metro Audit.

(k) TRANSFER OF TWO PURCHASED HOSTEL AGENCIES TO MINISTRY OF HEALTH.

The Human Services Committee reports having received the following report:

(May 14, 1996) from the Commissioner of Community Services advising that, effective June 1, 1996, the administrative and financial responsibility of the following purchased hostel service agencies, which are presently funded through the Metro Community Services Department, Hostel Services Division, will be taken over by the Ministry of Health:

(1) The Salvation Army Anchorage - a 36-bed long-term alcohol and drug recovery home for men; and

(2) The Society of St. Vincent De Paul House - an 11-bed pretreatment and post-detoxification transition house for men 18 years and over;

and noting that the transfer of these programs will result in savings of up to $228,608.00 gross, and $45,721.00 net, for the seven months remaining in 1996.

(l) PROGRAM FOR HOMELESS CHILDREN.

The Human Services Committee reports having received the following report; and having directed that a copy thereof be forwarded to the Metro Task Force on Services to Young Children and Families for consideration in the preparation of their final report.

(May 14, 1996) from the Commissioner of Community Services responding to the request of the Human Services Committee on October 30, 1995, to report on the needs of children in motels, including statistics; providing an outline of the programs for children of Family Residence and Robertson House; and recommending that the report be received for information.

(m) STAFFING LEVELS IN HOSTELS.

The Human Services Committee reports having received the following report:

(May 23, 1996) from the Commissioner of Community Services responding to the request of Council on March 7, 1996, to report on the staffing levels that would be required to ensure that the safety and care of the homeless can be adequately provided throughout 1996 in the face of increasing projected occupancy of hostels in 1996, and to the request of the Human Services Committee on May 13, 14 and 21, 1996, to report on the recommendations of the Metro Advisory Committee on Services to Homeless and Socially Isolated Persons embodied in a communication from Councillor Jack Layton; noting that to date the projected increase in hostel occupancy for 1996 has not taken place and that numbers have slowly returned to previous levels; commenting on the staffing levels and standards; indicating that the Department remains committed to managing within the 1996 budget, including the 1995 downsizing targets, as recommended by the Budget Advisory Team, and approved by Council; and recommending that the report be received for information.

(n) CASELOAD TRENDS IN HOSTELS.

The Human Services Committee reports having received the following report:

(May 14, 1996) from the Commissioner of Community Services responding to the request of the Financial Priorities Committee on February 20 and 21, 1996, to provide a further report on the issue of homelessness as it relates to families; describing the homeless caseload over the past number of months; and recommending that the report be received for information.

(o) EMERGENCY PREPAREDNESS - EXERCISE WATERSHED '96.

The Human Services Committee reports having received the following report:

(May 21, 1996) from the Commissioner of Community Services advising, for information, that under By-law No. 21-96, Metro Community Services is responsible for and authorized in the event of an emergency to take charge of all welfare and social services agencies to deal with the effects of the emergency; indicating that a design team consisting of several Metro departments and Metro Community Services developed Exercise Watershed '96 over a seven-month period which covered pre-planning, responding to and recovering from the emergency; that Exercise Watershed '96 was conducted on May 13 and 14, 1996; providing an outline of the exercise; and concluding that, despite room for improvement, the exercise was no doubt a success as it tested many elements of the Metro Emergency Social Services Plan.

Respectfully submitted,

GORDON CHONG,

Chair
Toronto, June 10 and 11, 1996

Rosalind Dyers
Tel. 392-8018

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© 1996 The Municipality of Metropolitan Toronto

Table 1 - Rental Affordability in Metro, 1991

Household Income	Number of Households by Per Cent. of Income Spent on Housing			Total
Household Income	<30%	30-49%	50%+
$1-$13,362	20,000	11,900	47,100	79,000
$13,363-$23,297	25,200	33,100	15,000	73,300
$23,298-$32,256	47,000	19,400	3,200	69,600
>$32,256	202,900	15,400	1,100	219,400
Total Tenants	295,100	79,800	66,400	441,300
Source: 1991 Census, special runs (rounded to nearest 100)

N	-	New Applicant
DNR	-	Did Not Reapply
JA	-	Joint Applicant
JA*	-	Joint Application
LP	-	Last Payment for Agency Program Three-Year Phased Out Funding Since 1994 and

LP*	-	Last Payment for Agency Program Three-Year Phased Out Funding Since 1994
A	-	Annualized
WA	-	Withdrew Application

Agency:	Metropolitan Special Committee on Child Abuse
	1320 Yonge Street, Suite 301
	Toronto

Actual Operating Budget	-	$956,241.00	Projected Operating Budget	-	$893,424.00
Metro Grant Approved	-	$283,100.00	Metro Grant Request	-	$254,790.00

Actual Operating Budget	-	$516,470.00	Projected Operating Budget	-	$456,226.00
Metro Grant Approved	-	$290,000.00	Metro Grant Request	-	$275,500.00

Basic Allowance	249.00	195.00
Maximum Basic Shelter	414.00	325.00
Total Maximum Benefit	663.00	520.00

Basic Allowance	569.00	446.00
Maximum Basic Shelter	652.00	511.00
Total Maximum Benefit	1,221.00	957.00

Basic Allowance	735.00	576.00
Maximum Basic Shelter	768.00	602.00
Total Maximum Benefit	1,503.00	1,178.00

(1)	Street Haven - for adult women (fire safety upgrades)	$21,500.00
(2)	YWCA Stop 86 - for youth (repair flood damage, improve heating, etc.)	16,759.00
(3)	WoodGreen Red Door - for families (plumbing upgrades)	5,500.00
	Total	$43,759.00

DONOR HUMANITARIAN ASSISTANCE DATABASE

AN END TO ISOLATION

REPORT ON MISSION TO HAUD AREA, REGION 5

THE HYDROCARBON POTENTIAL OFTHE OGADEN BASIN, ETHIOPIA, EAST AFRICA

A Segment of the

"EAST AFRICA REGIONALHYDROCARBON STUDY" (EARHS)

Conducted By

ALCONSULT INTERNATIONAL LTD.

ALCONSULT INTERNATIONAL LTD.

Transfer interrupted!

Ethiopia, the Ogaden Region

THE HYDROCARBON POTENTIAL OF
THE OGADEN BASIN, ETHIOPIA, EAST AFRICA

"EAST AFRICA REGIONAL
HYDROCARBON STUDY" (EARHS)