The Task Force on Community Access and Equity has not completed its mandate but is no longer active. The following information is provided for archival purposes.

The Task Force on Community Access and Equity was absorbed by the Roundtable on Access, Equity and Human Rights.

Draft Report

Diversity Our Strength
Access and Equity Our Goal

Task Force on Community Access and Equity
January 1999

Vision Statement:

"Diverse communities and groups make up the population of Toronto. The City of Toronto values the contributions made by all its people and believes that the diversity among its people has strengthened Toronto.

The City recognizes the dignity and worth of all people by equitably treating communities and employees, fairly providing services, by consulting with communities and making sure everyone can participate in decision-making.

The City recognizes the unique status and cultural diversity of the Aboriginal communities and their right to self-determination.

The City recognizes the barriers of discrimination and disadvantage faced by human-rights protected groups.

To address this, the City will create an environment of equality in the government and in the community for all people regardless of their race, ancestry, place of origin, colour, ethnic origin, citizenship, creed, sex, sexual orientation, gender identity, age, marital status, receipt of public assistance, political affiliation, disability, level of literacy, language and/or socio-economic status.

The City of Toronto will implement positive changes in its workforce and communities to achieve access and equality of outcomes for all residents and to create a harmonious environment free from discrimination, harassment and hate."

Foreward and Acknowledgements

This is a Draft Report of our work since April, 1998. We are presenting this report with a request that the Chief Administrative Officer report on administrative options to implement the proposed Action Plan.

Hundreds of individuals from diverse communities across the City of Toronto have invaluably enhanced this report. They contributed by taking the time to attend community consultations, write letters, submit briefs, send e-mails or telephone the Task Force.

We thank everyone who gave so generously of their time and shared their thoughts, experiences, insights and suggestions.

We are encouraged by the many actions taken by the new Toronto City Council during its first year to address:

• Human rights and harassment
• Hate activities
• Same-sex pension benefits
• Religious observances
• Equity requirements for suppliers
• Employment equity
• Anti-racism and multiculturalism grants
• Pay equity for Toronto women employed by the Government of Canada
• Sexual assault - police handling of complaints
• Immigrant and refugee issues.

We also express our appreciation for the enormous support and cooperation we received from staff.

To all who believe that Toronto's diversity is our strength, and who have a vision of a more accessible and equitable society, we hope this report continues the process of making sure that access and equity become central values and a reality within the City of Toronto.

Members, Task Force on Community Access and Equity
January, 1999.

The Context: Access and Equity in the City of Toronto

People around the world recognize Toronto for embracing and nurturing its diverse communities. Toronto City Council, at its meeting of March 4, 5, and 6, 1998, directed the Task Force on Community Access and Equity to identify the necessary "policies, structural functions, program priorities and evaluation processes" by which the City can:

1. "strengthen civic society, and, in particular, address the needs of those members of the community who face barriers to full participation in the life of the community;
2. take a more effective role in addressing the barriers faced by women, people of colour, Aboriginal people, people with disabilities, lesbians, gays, bisexual and transgendered persons, immigrants/refugees, different religious/faith communities;
3. strengthen community involvement and public participation in the decision-making processes of the municipality, particularly for equity-seeking communities;
4. continue the City's proactive role in linking and partnering with other institutions and agencies, as well as with the community, in engaging in initiatives in support of access and equity;
5. ensure that the contributions, interests and needs of all sectors of Toronto's diverse population are reflected in the City's mission, operation and service delivery;
6. continue the City's leadership in the community as a model employer with a workforce that reflects the diversity of its residents and who follows fair and equitable employment practices."

In developing a plan of action by which the City of Toronto can fulfill these tasks, the Task Force is mindful - and wishes to fully recognize - that it is building on a solid foundation of commitment and leadership established over the last twenty-five years. The Task Force wishes to build on these strengths and achievements and, at the same time, address areas of weakness in dealing with issues concerning the needs and rights of its diverse communities.

The City of Toronto has adopted a considerable array of policies, implemented innumerable programs and established a number of political and community structures to make sure that municipal activities include all sectors of the diverse population. Approximately forty advisory committees and staff work groups existed in the former municipalities to address various access, equity and human rights matters such as disability, gender, race, Aboriginal issues, immigration, refugee issues, sexual orientation, hate activity, employment equity, human rights, language rights and policing.

The Task Force decided not to dismantle the achievements of the last twenty-five years. Instead, it was determined to build on areas with a solid foundation of commitment and leadership. The Task Force was also concerned about improving practices and more strategically using resources in the prevailing climate of fiscal constraint and diminishing public sector resources.

The Task Force was established during a time of great social and political change in Toronto. These changes have presented numerous challenges to the people of Toronto, the new City Council, its committees and City staff. Many of the newer groups and communities who have only recently begun to participate in the civic process have expressed anxiety about continuing to be able to bring these issues to the attention of City Council. The Task Force needed to discuss with Toronto's communities and City staff how to make sure that the City continues to value access and equity and that it fully integrates them in the new City structures.

1.2 Task Force Process

A widely publicized selection process invited residents of Toronto to apply to serve as a member of the Task Force. Over seventy residents applied to sit on the Task Force. Eleven persons who most closely met the selection criteria, four Councillors and two community co-chairs were appointed. Readers can find a complete list of Task Force Members in Appendix A.

At its preliminary meeting, the Task Force decided that access, equity, and human rights programs in the new City should continue to address barriers to full participation which all equity-seeking groups experience, including those concerned with issues of poverty, class, and faith/religion. The Task Force also agreed to do its work by consulting with its stakeholders.

The Toronto Transition Team had already researched how the City should achieve access and equity by extensively consulting the community and had received considerable advice. The Task Force wished to build on this work and to concentrate on strategies and structures to achieve access and equity in Toronto.

The Task Force used a consultative process to expand upon the general directions which the Transition Team recommended. It provided information in English and eleven other languages, published a newsletter, and mailed out information to more than 4,000 community groups and organizations. It published the community consultation schedules in 22 ethno-specific newspapers. It placed numerous media releases and public service announcements on the wire service.

The Task Force held over fifty sectoral community consultations, including focus meetings with City Councillors and senior City staff. In addition, the Task Force directed staff to prepare a number of research reports.

The Task Force met monthly to receive presentations, written submissions, letters, and other comments from a broad range of community stakeholders, advocacy and anti-poverty groups and individuals concerned with access and equity. The Task Force heard stories of hurt, anger and hope. It heard many stories of pain from people who had been harassed or discriminated against because of their disability, faith, gender, national origin, race or sexual orientation.

1.3 A Diversity of People and Issues

The people of Toronto come from diverse backgrounds and individually may also face specific disadvantage or discrimination based on a range of human rights grounds.

Toronto's diversity has sustained a highly skilled workforce. It has enriched Toronto's cultural life significantly, and it has enriched it economically by enhancing Toronto's international position in a global economy.

While all sectors of our diverse communities contribute to and enjoy the positive attributes of our diversity, many barriers also prevent disproportionate numbers in those communities from participating fully.

"We live in a rapidly changing community with new constituents and new receivers of service. The changes in the community are evident in terms of the greater mobility of people with disabilities, increasing numbers of Aboriginal peoples, increasing numbers of women in the workplace and in business, diversity in religious customs, more acceptance and understanding of differences in sexual orientation and a dramatically changing cultural and racial landscape."
Task Force Consultation, June 1998.

In recent years, discussions about access and equity has focused on systemic and institutional forms of disadvantage and discrimination. At the same time, we must also recognize that the more blatant and overt forms of discrimination - verbal abuse, harassment, defacement of property, and physical assault - are increasing.

The Toronto Transition Team warned that "there must be constant vigilance against prejudice and discrimination, a constant striving for tolerance and mutual respect."

To respond to these challenges, the Task Force focussed its consultations on those areas which were not the main focus of any other Council Task Force.

The issues on which we consulted were:

1. Aboriginal affairs
2. Disability issues
3. Lesbian, gay, bisexual and transgendered issues
4. Immigrant and refugee issues
5. Ethno-cultural and faith issues
6. Racial minorities
7. Equity for women
8. Hate activities
9. Literacy and communications
10. Low-income issues
11. Equity in the arts, culture and literature
12. Citizen participation
13. Municipal grants
14. Education and training
15. Transportation
16. Organizational structures and resources

In addition to seeking specific input on these issues, the Task Force considered a number of issues at each of its meetings.

1. Aboriginal affairs

   Toronto's Aboriginal population is estimated to be between 65,000 and 100,000. Aboriginal peoples live throughout Toronto. However, the majority are concentrated in the downtown core, namely in the east, west and northwest ends of the former City of Toronto. Some are permanent residents; some are members of the 2nd and 3rd generation to have lived here. Many move back and forth between Toronto, their home reserves and communities and/or other cities across Canada.

   Toronto's Aboriginal peoples possess diverse languages and cultures. Though the majority are from Ontario, Toronto's Aboriginal peoples are from every area of Canada.

   Many Aboriginal people in Toronto are proud of their identity and follow traditional beliefs. They speak an Aboriginal language, practice traditional spiritual ceremonies and participate in traditional circles or Elders' conferences.

   Their population also reflects a diverse range of professions, occupations and income levels. They work in various endeavors, including the public and private sectors, in arts and entertainment, and human services. Some are successful entrepreneurs; others work as consultants, trainers, professionals or in economic development.

   Many Aboriginal people are successful. Nevertheless, compared to the general population, Aboriginal peoples experience tremendous difficulties in gaining access to much needed social, health and economic services. They suffer from a lack of affordable and adequate housing and little or no employment and income. Although the numbers of Aboriginal peoples entering and completing university and college have increased, many more have little or inadequate education and employment skills. Those who do have an income earn, on average, substantially less than those in the general population.

   The number of Aboriginal children in care is five times the overall average. (Royal Commission on Aboriginal Peoples, RCAP 1993). Aboriginal women live an average ten years less than non-Aboriginal women, 66 years compared to 76 years. (Statistics Canada, 1991). Almost 60 per cent of Aboriginal people are 25 years or less compared to almost 40 per cent of the general population.

   Many are more likely to abuse substances, and experience mental and physical health problems. Another major problem is homelessness. Aboriginal people make up 25 per cent of Toronto's homeless population.

   "Governments have moved so slowly to address the challenges and needs Aboriginal peoples face in urban settings. Even though the recommendations of the Royal Commission on Aboriginal Peoples address this issue, Federal government initiatives to address the RCAP documents seldom refer to it and the City itself needs to look at this report and respond to it also."
   Toronto resident, October, 1998.

   "We need you to understand that Aboriginal peoples are a distinct people and that you cannot group them together with other ethno-racial groups when you discuss issues of access and equity. We have a unique historical relationship with the rest of Canada."
   Toronto resident, October, 1998

2. Disability issues

   People with disabilities in Toronto continue to face physical, attitudinal and systemic barriers in gaining access to City services. Lack of access to services due to communication barriers, compounded with negative attitudes and stereotyping of people with disabilities may lead to feelings of exclusion, segregation and diminished feelings of worth. An estimated 17 per cent of the population have some form of disability. With an aging population and the doubling of those over 75 by the year 2011, the percentage of those with some form of disability will increase.

   "How many deaf or hard of hearing persons work for the City"?
   Consultation on Disability Issues, June, 1998

   "Access is much more than a wheelchair ramp."
   Consultation on Disability Issues, June, 1998

   Anywhere from 50 to 80 per cent of people with disabilities are unemployed or have never participated in the labour market. The number of people with disabilities hired has declined steadily since 1993, with women with disabilities being the hardest hit.

   "City staff play an important role in... affecting the quality of life of all residents. Since the City of Toronto is one of the most diverse cities, knowledge of, and demonstrated sensitivity to, the needs and aspirations of the City's diverse population should be included among core competencies for all City staff, and this should be a factor in all future hiring of City staff."

   "Performance agreements for all city staff should include accountability for making sure that they adequately address the needs of disabled and other equality-seeking groups."
   Consultation on Disability Issues, July 1998.

   An estimated 38.1 per cent of people with disabilities have incomes of less than $20,000 compared to just 16.1 per cent of the total population. More than one quarter of persons with disabilities have incomes that fall below the poverty line. Failure to allocate resources to provide workplace accommodation prevents people with disabilities realize their full entitlement to participate in employment.

   "Too many injuries occur on Wheel Trans from rough handling by operators and tipping of people in wheelchairs... Drivers of taxis contracted by TTC and private taxi services sometimes refuse passengers who have a guide dog... When you're black, disabled and a woman... it's worse... the City should recognize and respond to the issues arising from multiple barriers..."
   Consultation on Disability Issues, June, 1998

   The Task Force heard from many people that the City could improve mobility for people with disabilities by changing infrastructure and improving transportation services, for example:

   • Improving streetscapes by installing ramped corners with tactile warning strips;
   • Improving access and enforcing clear paths on all pedestrian walkways;
   • Installing specialized traffic signals - audio signals and signals which can prolong the pedestrian walkcycle at user request for those who cannot cross safely within the standard cycle timing.
   • Improving the services provided by the TTC, Wheel Trans, and increasing the number of accessible taxi cabs.

   "The excuse is that feasibility is determined in terms of need... but to me, it's a safety issue. Can I phone my boyfriend for a ride [if there isn't a TTY available]? Am I worth nothing at all?"
   Consultation on Disability Issues, June, 1998.

   City Council can be proactive with architects and developers to enhance the requirements for accessibility under the Ontario Building Code. Collaboration between the public and private sectors is required to augment the City's stock of affordable accessible housing, both privately and publicly owned.

   "The Federal Government has not acted on the Canadians with Disabilities Act. To date, it has only acted on 8 of the 52 recommendations that the Federal Task Force on Disability Issue included in its October, 1996 report. People with disabilities need to have our rights protected by law. The City should speak up on our behalf."
   Consultation on Disability Issues, June, 1998

3. Lesbian, Gay, Bisexual and Transgendered Issues

   The lesbian, gay, bisexual, transgendered population in Toronto is the third largest in North America if we use current estimates that about ten per cent of the population is predominantly lesbian or gay. (Coalition for Lesbian and Gay Rights in Ontario, 1991). Lesbian, gay, bisexual and transgendered people pay taxes and use City services; they are homeowners, tenants and the homeless. They are from different walks of life. They are also among the public servants who provide services in City departments, agencies, boards and commissions. By working in different fields and also by volunteering, they contribute to the productivity, well-being, vigour and vitality of Toronto.

   Recognizing the principles of human rights and that lesbian, gay, bisexual and transgendered people contribute to the City's workforce, City Council extended same-sex spousal benefits to all City employees in February, 1998. Council needs to take the next step to establish a pension benefits program for same-sex spousal families, and the program should remain in place until government change prohibitive legislation. To do so recognizes the changing patterns of families.

   At the same time, the lesbian, gay, bisexual and transgendered community continues to struggle against deep-seated prejudices and oppression. The policies and practices of institutions systematically exclude lesbian, gay, bisexual and transgendered people. At the same time, anti-gay violence threatens them daily. Such hate activities terrorize the individual victim and the entire community.

   In a survey of anti-gay/lesbian violence in Toronto, 78 per cent of all survey respondents reported experiencing verbal assaults, 38 per cent reported being chased and followed, and 21 per cent reported being punched, kicked and beaten because someone assumed them to be lesbian or gay. (Department of Justice and the 519 Church Street Community Centre, 1997)

   "..this type of violence undermines the lesbian/gay struggle towards self-acceptance, higher self-esteem, and sense of belonging or community."
   Consultation on Lesbian, Gay, Bisexual and Transgendered Issues, June, 1998

   In addition to the levels of homophobia, this community also has critical needs. A high proportion of "street kids" and the homeless are gay, and they need affordable housing. The City continues to show leadership in improving community and police relations, and providing access to fair and equitable employment and health care, but there is a need for continued awareness programs.

   &Tensions between certain communities and the police are increasing and nation-wide debates on providing equal rights to lesbians, gays, bisexuals and trangenders continues. The City can't ignore these issues."
   Consultation on Lesbian, Gay, Bisexual and Transgendered Issues, June, 1998.

   "Some people think that lesbians, gays, bisexuals and transgenders only live downtown on Church Street. People have to wake up and realize we live all over the City and want acceptance wherever we are. The City has to promote our rights across its boundaries in the same way it addresses racism and anti-semitism."
   Consultation on Lesbian, Gay, Bisexual and Transgendered Issues, June, 1998.

4. Immigrant and refugee issues

   Toronto has the largest immigrant population of any urban area in Canada. According to the 1996 Census, immigrants and refugees comprise 48 per cent of the population of Toronto. By 2001, foreign-born residents will comprise the majority of the Toronto population. Over 70,000 immigrants and refugees come to Toronto every year, and approximately 60 per cent of refugee claims in Ontario originate in Toronto. They come from 169 countries and speak over 160 languages or dialects. Approximately 42 per cent of new immigrants and refugees speak neither English nor French on arrival.

   Contrary to popular belief, immigrants, on average, consume fewer social services than Canadian-born residents (Employment and Immigration Canada, 1989), and they contribute more taxes over a lifetime than people who are born in Canada. (Toronto Star, March 7, 1995, p. A10) If we give newcomers the opportunity to overcome the difficulties of their initial adjustment and become a part of our society, they will contribute their skills, talents, energy and capital to benefit everyone in Toronto.

   Recent Immigrants to the GTA: Total = 446,515

   
   Source: Statistics Canada, 1996

   Statistics Canada officials expect that birthrates will soon have no effect on increasing the population. They also expect that immigration will be Canada's main source of population growth. As the major immigrant reception centre in Canada, the City needs to develop long-term strategic directions to address the impact of immigration on City planning and service delivery.

   Percentage of All Immigrants to Toronto

   

   Source: Statistics Canada
   

   Recent Immigrants to Toronto (1991-1996): Total = 315,470
   
   Source: Statistics Canada, 1996
   
   

   In September, 1997, the Advisory Committee on Immigration and Refugee Issues of Toronto collaborated with the Trillium Foundation and Toronto Public Health to hold an "Urban Forum on Immigration and Refugee Issues&. The Task Force reviewed the results of this Forum in addition to the submissions made by the immigration and refugee sector.

   The following summarizes the recommendations from this Forum.

   The City of Toronto can:

   • Recognize that the City is in a strategic position to advocate on behalf of immigrants and refugees to all levels of government for equitable immigration and refugee policies and practices.
   • Improve the access of immigrants and refugees to the City's decision-making process by:
     • providing community education and information on the municipal political structure and ways for residents to get involved
     • working with community organizations in conducting consultations and outreaching to the grassroots of the immigrant and refugee communities
     • providing information in the formats and languages appropriate to immigrants and refugees in a timely manner.
   • Initiate, support and provide funding for research and public education on the contribution of immigrants and refugees to dispel the myths and negative stereotypes of immigrants and refugees.
   • Continue to develop and implement policies, programs and resources to make sure that it provides access and equity in governing the city and delivering services to immigrants and refugees, specifically in the following areas:
     • multilingual and multicultural services
     • public health
     • general welfare assistance
     • economic development
     • employment equity
     • affordable housing
     • access to emergency shelters and health and community services for refugee claimants
     • additional support for refugees who have experienced war, torture and other human rights abuses.
   • Acknowledge the unique ability of ethno-racial community agencies in effectively serving immigrants and refugees and support them by equitably allocating funds from the City and other levels of government.
   • Work in partnership with the business sector, community colleges, universities and regulatory and professional associations to improve access to trades and professions for immigrants and refugees.

   "Governments have reduced funding and staffing for programs to support immigrants and refugees in settling in Canada and integrating into Canadian society. The new City has to do something about this; otherwise our community support system is going to be lost."
   Consultation on Immigration and Refugee Issues, June, 1998.

   "Our community is full of professionals, highly skilled trades men and-women in various fields. In fact, Toronto has the largest number of cab drivers with PhDs. This situation is so disempowering that it is hard to explain to our children the value of education. The City should work with the provincial and federal governments to recognize our professions so that we can work in our fields."
   Consultation of Immigration and Refugee Issues, June, 1998.

5. Ethnocultural and faith issues

   Such great diversity in Toronto also brings inevitable complexity. Clearly, categorizing people and their needs simply according to their race, ethnicity, language or religion would be a serious oversight and disservice. These are not mutually exclusive characteristics which we can use to conveniently categorize, but, rather, important elements of each community which are interrelated and complex. Consequently, we must examine barriers and opportunities to fully understand and appreciate these interactions.

   Many unique combinations and blends of faith, culture, ethnicity, language and race produce Toronto's wonderful vibrancy but, at the same time, they present a complex catalogue of needs, barriers and social obstacles that we must address.

   Some barriers include lack of recognition of faith communities, which results in the absence of faith centres in various workplaces, or flexibility in work schedules to recognize religious observances. Many hate activities are directed to these communities and these can be addressed by ensuring that City staff are trained or become aware of how this lack of recognition affects these communities. In particular, the Task Force heard examples of intolerance during public meetings at which applications for rezoning were considered.

   Ultimately, this City's ability and willingness to truly understand and appreciate the depth of this elaborate and dynamic mix will determine just how effective it can be in improving access and ensuring full participation.

   "We are people from different faith communities. We are concerned about access to City facilities. The City should respect our specific ways of life and accommodate our diverse religious observances. In return, the City benefits from the social, cultural, and economic enrichment and strength from our communities."
   Consultation on Ethno-Racial Issues, June, 1998.

6. Racial minorities

   Canadians use the term "racial minority" to describe anyone, other than the Aboriginal people, who is non-white in color or non-Caucasian in ancestry, even though they may have been born in Canada or are Canadian citizens. In 1991, racial minorities comprised 30 percent of Toronto's population, and by 2001, experts project that they will comprise 54 per cent of the population (Tana Turner, 1995).

   CHART GOES HERE
   Source: Statistics Canada

   Racial minority groups have contributed to Toronto's economic health and success in a global market. The retail and commercial activities of these communities not only provide services and employment but also support other sectors of the economy. (Ken Jones, Centre for the Study of Commercial Activity) Limited data exist about the rates that members of racial minorities participate in mainstream institutions.

   Despite the fact that these communities contribute economically and culturally, many face disproportionate levels of poverty. In 1991, 62 per cent of single men and 58 per cent of single women from racial minority groups lived below the poverty line. (United Way of Greater Toronto, 1997) The unemployment rates of racial minority groups in 1991 were higher than the overall rate of unemployment, with the highest rate of 25.8 per cent among people of African origins. (Michael Ornstein, Institute for Social Research, York University, 1996)

   While poverty, low education and unemployment exist in every ethno-racial group, these problems are spread very unequally among ethno-racial groups. Those most disadvantaged in Toronto include members of First Nations, Africans, Jamaicans, Tamils, Sri Lankans, Pakistanis, Bangladeshis, Vietnamese, Iranians, Latin Americans and Hispanics. (Michael Ornstein, 1996)

   Innumerable studies and reports undertaken in Toronto in recent years have continued to identify the huge inequalities respecting the differential life chances, socio-economic position and treatment of racial minorities in such areas as employment, the criminal justice system, education, income and housing. We urgently need to shift priorities and services to address the needs of these most marginalised communities.

   While community organizations feel "naming racism" as a cause of systemic discrimination is an important step, actually implementing "special programs" to alleviate discrimination has not yet taken place. They believe that the City should continue to enhance the initiatives of the former municipalities in addressing systemic racism as well as racially motivated hate activities in our society.

   The former municipal race relations committees, for instance, recommended steps to improve race relations between the police and racial minority groups and address issues such as the discrimination of the criminal justice system against racial minorities, particularly black people, and police shooting of members of racial minorities.

   The former municipalities implemented some of the recommendations from the former municipal race relations committees with varying degrees of success. However, they did not act upon many of the recommendations. The City has to firmly commit itself to strengthening the capacity of the communities affected by racism and work in partnership to address inequities based on race.

   When the Task Force consulted with community, participants indicated that the existing budget allocation of the City's Multicultural Grants Program for anti-racism and anti-hate was inadequate for addressing the systemic barriers faced by racial minorities alone, given their numbers in Toronto.

   Community participants also expressed the need for the City to monitor its departments and special purpose bodies to make sure that they develop and implement access and equity plans in distributing grants, allocating resources, hiring and in delivering services.

   "We've heard a lot of lip service about employment equity. The City should make public its plans to implement employment equity on the basis of the ethno-racial population percentage... As far as we are concerned, the City should be responsible and accountable across all levels for removing systemic barriers that limit our civic participation."
   Consultation on Interim Report, October, 1998.

   "In just the past couple of years we have seen the closing of Ontario Welcome House which supported the immediate integration of newcomers to the range of public services available to them; the dismantling of the Anti-Racism Secretariat and the elimination of the funding and programs delivered by the Secretariat; the repeal of the Employment Equity Act; no action on a commitment to increase provincial support to the Ontario Human Rights Commission; lack of open dialogue on the Ontarians with Disabilities Act; and the elimination of numerous advisory committees addressing equality rights for women, people with disabilities, ethno-racial communities, Aboriginal peoples and others."
   Submission to Transition Team, 1997.

7. Equity for Women

   Women comprise 51 per cent of Toronto's population. The diversity among the population is also reflected among women. The Task Force found no surprises while considering women's issues.

   Research reveals these ongoing women's concerns:

   • Obtaining safe and affordable housing, childcare, recreation, and health care services;
   • Reducing job ghettoization, job loss, and low pay;
   • Preventing sexual harassment and violence against women and increasing community safety.

   These are all areas requiring municipal attention.

   Single-parent - households the majority of which are led by women - account for all of Toronto's net gain in family households.
   Housing Patterns & Prospects in Metro Toronto, 1996.

   All of the growth in jobs for women is in part-time positions. (Canadian Labour Congress, 1996) While more women joined the ranks of the 25 highest paying professions between 1990 and 1995, women continued to dominate the lowest paying occupations, holding 68 per cent of jobs that include nannies, sewing-machine operators and early childhood educators.

   While women's income average $14,681 a year, men in comparable jobs took home $17,912 (Statistics Canada, 1996). Wage disparities by gender and Provincial cuts to welfare, women's services and housing in Toronto have increased poverty among women and risked the safety of abused women and their children. (United Way of Greater Toronto, 1998)

   "Cuts to English as a Second Language classes will impact on immigrant women's ability to obtain citizenship and therefore to participate in the electoral process."
   Consultation on Women's Issues, June, 1998

   "There are more single parent families headed by women who are living in poverty and there is also a widening gap between rich and poor. This affects a large number of city residents and we need to address this as it affects the quality of life in Toronto and limits opportunities for women and the poor."
   Consultation on Women's Issues, June, 1998.

   We also heard about the continuing need for City policies and programs which benefit women, children and their families, such as:

   • Family Planning and Sexual Health Programs
   • Motherisk and Parents Helping Parents Programs
   • Child Poverty Programs/Healthiest Babies Possible
   • Housing Programs which serve low-income, homeless or women at risk from domestic abuse
   • Daycare Programs/Grants
   • Gender equity in Parks and Recreation Services
   • Accessibility for people with disabilities/elderly
   • Programs that serve the needs of lesbian/bisexual women

   "Many women cannot participate in mainstream enterprise because of their race, disability, language, etc. - what are the ways in which the City can /will facilitate the participation of these women in this economy?"
   Consultation on Women's Issues, June, 1998.

   "The City has to create opportunities for us to find ways of cutting across the multiple identities of race, disability and language if we are to participate in the mainstream. We simply cannot sit back watching the skills and talents of women not being used to their full potential."
   Consultation on Women's Issues, June, 1998

   Despite the diversity among Toronto women, many participants in the consultations felt that this was not reflected in outreach activities, public meetings, the electoral process and in employment.

   Participants would like to see women supported by the City in the areas of employment training and small business initiatives. Many women cannot participate in mainstream enterprise because of their race, disability, language and other such issues, and they would like to see the City facilitate the participation of these women in the City's economy. Women want to see strategies which remove barriers, especially to male-dominated trades and professions.

   Cuts to English as Second Language classes will have an impact on immigrant women's ability to obtain citizenship and, therefore to participate in the electoral process. The electoral process is inaccessible to women who require translation or other kinds of assistance at the polling stations.

   The particular needs of women with disabilities were often raised. They said that they do not get information about when and where services are provided. There are safety and service delivery issues with Wheel Trans, particularly when they have to wait to be picked up in isolated locations. Women said that pedestrian safety was important especially at some intersections and crossings as women with strollers and seniors take longer to cross than the signals allow.

   Older women are poorer, experience more chronic illnesses and use more health and social services. Non shelter based services for abused women from diverse backgrounds require funding.

   Participants also made many suggestions about the organizational structures and points of access needed within the municipal government for women from the City's diverse communities to participate in City life.

8. Hate activities

   People direct hate activities at others simply because of their victims' race, sexual orientation, gender, disability or religion. We should try to minimize its significance as a consequence of hard economic times or simply one aspect of an increasingly violent society, or to dismiss it as aberrant and pathological behaviour of ignorant extremists. We cannot ignore the impact on victims. It attacks all of us, our security in the community and our right to live in peace. Violence occurring in a multiracial, multicultural nation like Canada, should in itself cause concern. Collectively, governments and communities need to effectively deal with individuals or organized groups expressing hate.

   While most hate or bias crimes go unreported, the following table, from data compiled by the Toronto Police Hate Crimes Unit, indicates those communities most victimized. 1068 incidents were reported to the police between 1993 and 1997.

   MOST VICTIMIZED GROUPS

   CHART GOES HERE
   Source: Toronto Police Services Hate Crimes Unit, Statistical Report 1997
   

   "I walked into the restaurant and the next thing that happened was that I was being kicked and punched in my face by this young white male... he kept calling me f.....g n....r and I fell to the floor. The blows have left me blind in one eye."
   Victim of hate motivated attack, Toronto, 1998

   Toronto Police statistics show a 19 per cent increase in hate crimes in the first six months of 1998 compared to the same period in 1997. Therefore, the continuation of the successful initiatives undertaken by the various former municipalities on anti-racism, race relations and hate crimes is essential to the deterrence of the growth of hate crimes.

   Successful initiatives included: legislation; educating police, students, municipal employees and communities; producing advertisements, press releases, research and publications; conducting community outreach; and, being an advocate with the Attorney General to press charges wherever appropriate.

9. Literacy and communications

   According to the 1996 International Adult Literacy Survey, 22 per cent of Canadian adults have serious problems reading printed materials. Both people who speak English and people whose first language is not English face this problem. Literacy levels directly affect a family's quality of life, by its impact on income levels and employment status. People living in Canada with the lowest level literacy skills have a 26 per cent rate of unemployment.

   "Over 80 per cent of Canadians in the lowest level literacy category and 60 per cent in the second lowest level have no income or an income of less than $27,000."
   International Adult Literacy Survey, 1996

   Literacy organizations deal daily with homeless people or people who live in crisis because of unstable housing and who are for the most part living in isolation. How do people with low level literacy skills and or English as a second language read the City's public notices? English-speaking and non-English speaking people with low literacy levels face barriers to participation in the electoral process.

   "Try reading a pamphlet about user fees - nothing is clear."
   Consultation on Literacy, 1998

   Participants identified the need for City departments to continue translating materials so people whose first language is not English can read them. City information must follow clear language and design guidelines. Translation services need to be in place for all City programs and services to enable equitable access. Translation services need to have flexibility, be community-specific and well advertised so that all residents of the City are aware of their availability. Many participants reinforced the necessity for language and cultural interpreters.

   "Somali-speaking Public Health staff are important."
   Consultation on Low-Income Issues, October, 1998

   Documents written in technical language are not accessible to people with low literacy skills or for whom English is a second language. Our increasing dependency on technology demands that users have higher literacy skills and understand English. People who do not have access to a computer or electronic information face tremendous barriers, creating an underclass in our society. For those with English as a second language, voice mail is often unintelligible and intimidating. People need to speak to a real person to find out how and where to have their needs met.

   "Information is on our website" or "telephone your concerns" ...doesn't help us. We don't have phones, and in my building the phone downstairs is broken most of the time."
   Consultation on Low-Income Issues, October, 1998

   Because adult literacy is strongly linked to employment, employers must implement policies promoting literacy, English in the workplace, programs and lifelong learning for all. People practice literacy skills most often in the workplace. Employers and labour representatives state that productivity and quality of work increases as a result of workplace literacy and English as a second language programs. Labour relations, worker morale and self-confidence improve through basic language skills programs.

   "Literacy is not just about being able to read and write, it's about having power in society."
   Consultation on Literacy, November, 1998.

   Low literacy skills are an element of poverty, therefore, homeless support programs need to include reading classes.

   However, provincial cutbacks have had a serious impact. Although new literacy programs are being introduced for children, adults who cannot read or write are being forgotten. Parents influence school-readiness in young children. Many studies have shown that improving parents' literacy skills will directly and positively affect children as they develop language skills. Grants programs must target these specific issues and affected communities. The City's commitment to Word on the Street and International Literacy Day activities has continued to bring attention to literacy issues.

10. Low-income issues

    City Council gave the Task Force a primary mandate to examine the issues that human rights protected groups have. However, the consultation process reinforced the fact that these groups, have encountered persistent patterns of poverty.

    "Much research has described the 'colour of poverty' in our society."
    Consultation on Low-Income Issues, October 1998.

    Low-income groups across the City explained that municipal services are critical to their lives. In particular, the groups discussed housing, social assistance, childcare, parks and recreation programs, transit and policing.

    Social assistance is a major factor in gaining access to housing, but assistance does not cover first and last months' rent. Consequently, many social assistance recipients cannot secure housing. Affordable housing is necessary to gain access to employment and education.

    "I want to take my three children to the library but we live too far away. The bus costs $14.00 but I only have $200 left after rent. Which should I choose books or food?"
    Consultation on Low-Income Issues, October, 1998.

    People in this City are putting 70 to 80 per cent of their monthly income towards rent and for many single mothers, this means they must choose between food and rent.
    Consultation on Low-Income Issues, October, 1998

    The federal and provincial levels of government are withdrawing from providing housing for low-income people. The City needs to put more resources into affordable housing.

    In one consultation session in Rexdale attended by over 30 people, not one person was able to send their child to a Parks and Recreation program offered by the City, because of the fee. Even in cases where City services are free, such as libraries, the cost of getting there is a barrier.

    The cost of getting to ESL classes, upgrading and or training programs is $3.20/day - 20 days = $64.00, which translates into about 12% of non-housing social assistance.
    Consultation on Low-Income Issues, October, 1998.

    "The TTC is too expensive for us, I know people who are walking for hours to get to the places they need to go."
    Consultation on Low-Income Issues, October, 1998.

    The City must understand that the cost of childcare and transportation are barriers for low-income people to attend programs and services.

    Low-income people have difficulty obtaining information about the programs and services the City offers. Voice-mail prevents people from getting information because many people have cancelled their residential phone service to cope with a 21 per cent cut to social assistance. For these individuals, staff are needed to answer a telephone.

    Barriers to civic participation are further exacerbated for those without a telephone or access to information technology. Not having a telephone also excludes them from programs such as needs assessment surveys and polling. Therefore, their specific concerns are not included because they have not been part of the information-gathering process.

    Geographically dispersed service delivery also becomes important to ensure equitable access to municipal services. Information about City services has to be directly delivered to people, rather than waiting for people to come to an office to get it. This means augmenting local service delivery with a staff person who goes to community agencies or schools, on a regular, well publicized basis.

    "I'm busy with just surviving - paying bills, dealing with housing, and health care. I don't have time to come to meetings or get involved with this stuff."
    Consultation on Low-Income Issues, October, 1998

    The City must be proactive and make sure that people with low-income have equitable access to civic life. The City's role does not end with providing programs and services under its own jurisdiction. The City of Toronto must assume a leadership role in promoting access and equity with other levels of government and other institutions.

    "Someone has to go to bat for vulnerable people."
    Consultation on Low-Income Issues, October, 1998

    People with low incomes face obstacles daily. Nevertheless, they are active citizens and have strong voices in improving their neighbourhoods for their families and the community in which they live.

11. Equity in the arts, culture and literature

    The arts provide one of the most visible ways a society can embrace cultural diversity. Talent and creative energy explode from Toronto's diverse cultural communities, benefiting the whole City and contributing significantly to its economic vitality. This unique cultural fusion has brought tremendous dividends to the City. As the urbanist Lewis Mumford said, "It is through the performance of creative acts in art, in thought, in personal relationships, that the city can be identified as something more than a purely functional organization of factories, and warehouses, barracks, courts, prisons, and control centres."

    Clearly, investing in arts and culture has paid off for the City. However, many artists from specific cultural communities were critical at the level of funding available for initiatives. They felt excluded and often marginalized from contributing to society. We must find ways to respond equitably, inclusively, proactively and meaningfully to an arts and cultural scene that no longer reflects what has been characterised as a Eurocentric approach to funding structures, policies and programs.

    As part of its consultation process, the Task Force reviewed the cultural equity strategies of the Toronto Arts Council (TAC). The Task Force found that these strategies have helped to transform the Toronto Arts Council into a more inclusive organization and believes that the municipal government and other sources of arts and cultural funding should replicate these strategies in many other forms.

12. Civic participation

    Among the values consistently identified throughout the Task Forces' consultation process was the importance of citizen involvement in the affairs of the City and the necessity for a pro-active stance towards embracing the diverse communities within the city. In noting the "healthy pressure today for enhanced democracy and accountability to the public," the Report of the Toronto Transition Team advised that "the new City must not put obstacles in the way of citizen access and participation in the democratic process."

    The Task Force was impressed through its consultation process that progress towards a more equitable and inclusive society will not be secure unless the affected communities themselves are able to fully participate in the decisions that affect their lives and be a part of societal change. The City has to inform the communities about its services, programs and ways of participating in City affairs.

    It is equally important for the City to be informed about the communities' concerns and expectations and solicit the communities' input in the planning and design of policy, services and programs. Civic participation, however, is not just about exchange of information and two-way communication. It also means an opening up of the process of government so that residents can influence decision-making in the City.

    Communities unfamiliar with the City's structure and operation, such as new immigrant communities, may not have the understanding or knowledge to effectively participate in the City's activities. They would require outreach and support from the City as well as their own community development initiatives. Communities which have been the target of exclusion will also not be as quick to participate unless their experience is acknowledged, and efforts are made to hear and address their experience.

    Citizen participation also requires effective communication and public participation strategies to overcome the barriers faced by communities. Some strategies include:

    • holding specific consultations with community organizations
    • providing information in different languages as well as alternate formats
    • using existing networks established by communities to post information
    • holding meetings in facilities which are fully accessible to people with disabilities
    • making specific arrangements with Wheel Trans or special taxis to facilitate attendance and participation at meetings
    • providing support such as attendant care, interpreters, translators, child care, TTC tickets
    • using teleconferencing and cable network strategies, electronic discussion groups or call centres for people who may be homebound
    • having flexible meeting schedules to accommodate the varying work schedules of people
    • using clear language and design in print communication for populations with low levels of literacy
    • attending annual or special meetings of community organizations to provide information as well as to gain input.

    To increase the access and participation of all members of the community in the decision-making process, the Task Force believes that a broad range of approaches to working with and involving residents needs to be implemented by the City.

13. Municipal grants

    Creating a new City of Toronto presents an opportunity for the municipal government to make sure that it applies principles of access and equity consistently across programs and entrenches them throughout the grants system. As the new City harmonizes its various services, it needs to address staffing level criteria, and how it distributes funds, makes decisions, and selects agencies receiving funds. This is an invaluable opportunity to enable the community-based, non-profit sector to support and develop principles of access and equity and to involve communities in decision-making.

    In this context, the Task Force recommends that the City of Toronto:

    • Implement the City's anti-racism, access and equity policy in evaluating grant applications;
    • Make sure that the City's grants programs can assist agencies they fund in reorganizing so that both older and newer organizations can perform effectively in developing their communities;
    • Require its grants programs to reallocate funding as required to respond to City's changing demographics;
    • Require its grants programs to be consistent in communicating what they expect and require from funded agencies and the broader community regarding access and equity.
    • Expand its Multicultural Grants program for anti-racism, anti-hate activities to address a range of access and equity initiatives and change the program's name to "Access and Equity". The program should continue to focus upon anti-racism and anti-hate activities until the City provides additional funds.
    • Include ethno-specific and other equity-seeking agencies when discussing how it distributes grants and that such agencies receive the funding, organizational and community development support they require to be effective;
    • Make sure that its grants programs consider effective means of helping to develop ethno-specific and other equity-seeking "umbrella" organizations.

14. Education and training

    Education and training issues were often raised during Task Force consultations and in research materials. The Task Force was alarmed by various announcements made about:

    • the lack of priority given to the use of curriculum guidelines regarding equity and human rights issues;
    • the development of equity policies which do not address all equity issues;
    • school closures.

    The Task Force believes that this is an important area in which City Council can be an important advocate to the province and to school boards. Through the discussion of these issues in our classrooms, students and future generations learn to respect and value differences. Public awareness and education programs are important reminders of the City's commitment to achieving equity and fairness in all aspects of our society.

    In addition to the school system, the Task Force believes that comprehensive training programs should be offered in all workplaces and in institutions such as hospitals and police services.

15. Transportation

    A critical factor affecting the access, mobility and participation of people with disabilities and low-income residents in the City is public transportation.

    The conventional forms of public transportation, such as the subway system, buses and streetcars are usually not accessible to people with disabilities. Subway stations have few or no elevators. TTC operators do not always call out stops. There are not enough low-floor buses and consultation participants reported that, when asked to lower the step, operators of these buses may say, "Too close to the curb& or "No time". Reading the route signage on buses and streetcars can also be difficult.

    Wheel Trans has serious problems serving people with disabilities. The eligibility criteria to receive services from Wheel Trans have become more stringent. Wheel Trans considers blind and visually impaired people, people with ambulatory difficulties and people with developmental disabilities as not being disabled enough. Currently, more than 10,000 clients have registered with the Canadian National Institute for the Blind (CNIB), and most are not eligible for Wheel Trans. Neither are accessible taxicabs readily available for them. Some taxi drivers do not want to pick up passengers who have a guide dog. About 3,000 people registered with CNIB are housebound because transportation is not available for them and they are unable to carry out basic activities, such as grocery shopping or going to medical appointments.

    People who use Wheel Trans often experience scheduling problems and delays. This has prevented many from finding employment or keeping their jobs. As a result of the Wheel Trans Late Cancellation Policy, people with disabilities are afraid to stay home when they are sick as they may be penalized and denied service. The Task Force also heard stories about the rough handling of people with disabilities by operators, such as tipping people in wheelchairs. Racial minority women with disabilities complained that they are subjected to derogatory remarks by operators.

    For low-income residents, public transportation is their only way of getting to places. Because of the cost of TTC tickets, they spend a considerable portion of their limited income on public transit Some cannot go to a food bank because they cannot afford to pay the TTC fare. A mother of three children said at a the Task Force consultation that she wanted to take her children to the library, but the bus trips would cost $14 and she had $200 left after paying rent. Women in low-paying occupations such as domestic workers, refugees and people on public assistance bear the brunt of the adverse impact of the lack of access to affordable and more frequent public transportation.

    Addressing access to public transportation is therefore one critical element of an overall strategy to achieve access and equity in the City of Toronto. An increased level of resources is needed to introduce, increase and improve services. It is one way of ensuring equal access to life opportunities for all of the City's residents.

16. Organizational structures and resources

    Policies and statements are meaningless without the resources for operating programs. The Task Force reviewed the background research prepared for the Toronto Transition Team. The Task Force noted wide variation among the former municipalities regarding policies, resource allocation, administrative structures, community advisory committees and inter-agency/staff working groups with respect to access, employment and pay equity, service equity and human rights issues. The Task Force found that in 1997, 38 of the new City's 44 access and equity staff positions were staff of either the former City of Toronto or Metro Toronto. Harmonizing policies and programs is likely to require an increase to more evenly distribute programs across all regions of the City.

    In August, 1998, the Task Force considered the corporate restructuring process that was underway and provided some general advice to City Council. The Task Force recommended that redeploying access, equity employment equity and human rights staff take place on an interim basis until it presented its Final Report. The Task Force also recommended that the City observe access and equity principles whenever it restructured and staffed its organization, as well as when it developed strategic policies and priorities.

1.4 Task Force Review of Access, Equity and Human Rights Policies and Programs

The Task Force gathered information about the equity policies, programs and services of the former municipalities. These policies, programs and services have long promoted access and equity for women, people with disabilities, ethno-racial minorities, Aboriginal peoples, lesbian, gay, bisexual and transgendered communities, immigrants and refugees, and other human rights protected groups.

The Task Force believes that the City should preserve and continue best practices to address access and equity issues while advocating for positive and meaningful change.

Employment Equity

All of the former municipalities of the City of Toronto had established programs to support equal employment opportunities. Members of the public reminded the Task Force on several occasions that the new City of Toronto needed to affirm its policy of committing itself to employment equity for the present period of downsizing and restructuring, and for the long term. They heard that a comprehensive framework for employment equity must include input from the community, advisory committees and bargaining agents and should incorporate a result-oriented corporate employment equity plan. The plan should be accessible and equitable and offer measurable outcomes with an annual report to City Council.

Human Rights, Harassment and Hate Activity

Each of the former municipalities had policies to comply with human rights legislation, to be proactive and prevention oriented regarding discrimination and harassment and to show corporate leadership. The Task Force received information regarding a harmonized human rights, harassment and hate activity policy framework which protects employees, residents of the city of Toronto and the users of municipal services. This new policy framework led the Task Force to discuss how to make sure the new City continues these principles and how it administers them.

Purchasing and Fair Wage

The Task Force noted that City Council adopted a new, City-wide Fair Wage policy, developed from policies of the former municipalities. The policy allows companies to compete equally when bidding for contracts. It requires that companies under contract with the City provide their employees with fair wages, good working conditions, a benefits package and to adopt a policy of non-discrimination.

Limited data exists on how well designated groups do in the purchasing process. The Task Force examined some data from the contract compliance program of the former City of Toronto.

The Task Force has considered ways to continue levelling the playing field in competitions for City work and enhance the City's reputation for ethical and fair business dealings. Some of these are:

• Make sure that Proposal Calls address the issues of diversity and equity.
• Identify the businesses that are owned by designated groups and types of goods and services that they provide; and use sources of information such as directories and bidder application forms combined with the Equal Opportunity Declaration Form on non-discrimination.
• Conduct outreach in conjunction with community organizations. This outreach should be multi-lingual, address levels of literacy and provide information in alternative formats. Meetings should be held in accessible locations.
• Modifying the bidding process to:
  1. Reduce the size of contracts to enable small businesses to be more successful in competing;
  2. Encourage larger suppliers to jointly submit proposals from smaller firms or to identify which type of goods and services these firms can provide.

Designated Group Participation in the Purchasing Process of the Former City of Toronto

Civic Awards and Scholarships

Toronto City Council presents equity, access and human rights awards each year to residents who have helped to make the City a better place by promoting equitable treatment for women, contributing to better race relations and improving access for people with disabilities. The Task Force recognizes the success and importance of promoting access and equity for diverse communities through these awards programs.

The Task Force has noted that in addition to the civic awards program, the City has established a number of post-secondary scholarships. The Task Force believes that this is a useful strategy for improving access and equity in the community.

Other policies and programs

The Task Force noted that during the past year, City Council approved a number of policies and/or programs to address:

• Employment equity
• Human rights and harassment
• Hate activity
• Benefits to same sex spouses
• The Urban Forum on Immigration and Refugee Issues
• The anti-racism, access and equity policy of the grants programs
• The implementation strategy from the Urban Aboriginal Economic Development Seminar
• The requirement for suppliers to adopt the City's anti-discrimination policy
• Police handling of sexual assault

The Task Force reviewed and endorsed these policies.

Numerous other access and equity policies, programs and services were in place in the former municipalities and will require harmonisation. The Task Force intends that its Action Plan and Recommendations give direction on how the following policies and programs are to be harmonised.

• Employment Equity special programs
• Employment policies and practices
• Anti-racism, multi-ethnic and race relations
• Workplace accommodation
• Appointments to agencies, boards and commissions
• Improved access to city contracts by ethno-racial and Aboriginal businesses, small businesses, and businesses owned by women and people with disabilities
• Special recreation programs
• Ethno-racial, linguistic and Aboriginal access to city services
• Accessibility of Council and public meetings to persons who are deaf and hard of hearing and who may require other support for their participation.

In summary, the evidence from consultation and research provides a picture of the disparities and extent of inequalities in Toronto. Large numbers of Toronto's population continue to be marginalized and excluded from the mainstream of Toronto life. This is the context from which the Task Force on Community Access and Equity undertook its consultation process. The Task Force believes that the City of Toronto must take a fuller and more comprehensive approach to dealing with the issues of access and equity than has been attempted thus far.

It asks:

• How can the City of Toronto develop effective policies and cost-efficient programs that are accessible and equitable for all sectors of the changing population?
• How can the City make sure that all members of the community can equally benefit from services when the cultural, racial and religious nature of the population is changing so rapidly and dramatically?
• How can the City provide leadership to reduce widening inequalities and increasing discrimination?

II. Emerging Themes From Consultations: Vision and Principles

2.1 Vision Statement

"Diverse communities and groups make up the population of Toronto. The City of Toronto values the contributions made by all its people and believes that the diversity among its people has strengthened Toronto.

The City recognizes the dignity and worth of all people by equitably treating communities and employees, fairly providing services, by consulting with communities and making sure everyone can participate in decision-making.

The City recognizes the unique status and cultural diversity of the Aboriginal communities and their right to self-determination.

The City recognizes the barriers of discrimination and disadvantage faced by human-rights protected groups.

To address this, the City will create an environment of equality in the government and in the community for all people regardless of their race, ancestry, place of origin, colour, ethnic origin, citizenship, creed, sex, sexual orientation, gender identity, age, marital status, receipt of public assistance, political affiliation, disability, level of literacy, language and/or socio-economic status.

The City of Toronto will implement positive changes in its workforce and communities to achieve access and equality of outcomes for all residents and to create a harmonious environment free from discrimination, harassment and hate."

2.2 Principles

Four major themes emerged from the consultation process:

1. Strengthening the Civil Society
2. Civic Leadership
3. Accountable, accessible and equitable governance
4. Aboriginal Self-Determination

The submissions, the consultations, as well as, access and equity policies of the former municipalities reflected these themes. The Task Force articulated an underlying basic principle for each theme, providing a consistent and coherent philosophy behind the Task Force's recommendations to achieve access and equity in Toronto.

1. Strengthening the Civil Society

To ensure an equitable and inclusive society, existing municipal policies recognize that some communities do not have the capacity to participate fully in the civic process, to respond to municipal initiatives, nor to identify and overcome both systemic and individual discrimination. To rectify this situation, the following principle emerged:

The municipality shall support community-based voluntary organizations to make sure that all sectors of Toronto's diverse communities are able to effectively participate in and influence the decisions that affect their lives.

The Task Force is extremely concerned about broadening opportunities to enhance civic participation, and in particular, about the role, mechanisms and support that the City requires for involving communities in City decision-making.

The former municipalities involved representatives from diverse communities in municipal decision-making and civic life. In this context, more than 40 committees, advisory bodies and community reference groups were established to respond to issues raised by the human rights protected groups and/or by departments charged with the responsibilities to address their needs.

To continue and enhance this work, the Task Force, therefore, recommends that the City establish seven City-wide community advisory committees and other mechanisms to strengthen civic life.

The Task Force also noted during the course of its consultations that many residents of the City (including property taxpayers) are currently excluded from being appointed through the City's Nominating Committee process because of the requirements for Canadian citizenship and to be at least 18 years. This matter was raised by deputants who brought copies of the City's advertisements and who pointed out that these were requirements introduced by City Council earlier this year and were not previously required by all of the former municipalities.

In view of the potential for systemic discrimination against groups, as well as direct discrimination on the basis of age and citizenship and because of our interest in increasing the diversity of persons being appointed, the Task Force recommends that the City advocate that restrictions regarding age and citizenship be struck. Moreover, the Task Force members believe that selections should be based on ability.

With respect to working groups established by the Community Councils, these should be flexible to permit membership from persons who "work" in these communities.

To strengthen the civic society, the Task Force recommends that Council commit adequate resources to community-based, non-profit organizations for advancing the principles of equity, access, anti-racism and full participation. Furthermore, Council should take a leadership role and allocate adequate resources to eliminate hate-motivated activity, improve community police relations, and to promote community building and harmony. Resource allocation should be based on principles of encouraging community development practices based on a "bottom up" process, respecting the uniqueness of local communities ("one size does not fit all") and providing intervention and mediation where appropriate.

The City should establish and maintain grant programs, including specialized programs aimed at responding to specific community needs. Mechanisms should be established to apply equity principles and criteria to all grant programs.

The City should also work in partnership with external agencies, institutions, and community groups, with the objective of strengthening and building community capacity.

2. Civic Leadership

As the level of government that is the closest, most direct, open and accessible to the community, it was impressed upon the Task Force that the municipality is increasingly looked upon as the first and most important vehicle for resolving the community's most pressing concerns, even when the issue may not be directly within its jurisdiction. The principle that addresses this role is:

The municipality, in concerning itself with the social well-being of all its residents, shall assert a proactive role in responding to community issues, influencing public opinion and pursuing broad-based efforts in partnership with the community and other institutional sectors to address diversity issues.

To assert its leadership role, the Task Force recommends that the City of Toronto use its influence with other levels of government, the private sector, other agencies and institutions, and the community at large in pursuit of diversity issues as an advocate, mediator, catalyst, consensus builder, coordinator and partner.

3. Accountable, Accessible and Equitable Governance

Common threads running through the consultations, as well as in the former municipal policy statements, are terms such as "accountable governance" and "communication mechanisms." They reflect the principle that:

All residents of the City shall have access to full and meaningful participation in the decision-making, policy development, planning, delivery, monitoring and evaluation of municipal services and programs.

There was consensus among deputants throughout the consultation process that the municipal government has access and equity responsibilities as:

• an employer;
• a provider of services and programs;
• a purchaser of goods and services;
• a grant giving agency.

With respect to its responsibilities as an employer, the policy principle is:

The diverse population of the City of Toronto shall be reflected and represented throughout every level of the municipal workforce, including its Agencies, Boards, Commissions and Special Purpose Bodies.

The dignity, worth and contribution of each person shall be respected in an equitable municipal work environment.

As a provider of services and programs, the policy principle is:

All residents shall be entitled to municipal services and programs which are racially sensitive, culturally and linguistically appropriate, gender appropriate, accommodate disability, and are adequately resourced to ensure equitable access and outcomes.

As a contractor of goods and services, the policy principle requires that:

The municipality shall ensure equitable access and allocation to providers of goods and services; ensure that organizations which supply goods and services to the municipality through contractual agreements implement and maintain employment equity; and adopt anti-discrimination and anti-harassment practices.

As a grant-giving body, the policy principle requires that:

The municipality shall ensure that its financing and grants are equitably allocated to reflect the changing and differential needs of all sectors of the community in order to achieve equitable outcomes.

In summary, the principles of an accessible accountable and responsive municipal government are clearly linked with providing civic leadership, and strengthening the civil society. This requires a capacity to identify community trends and needs on access and equity issues. Secondly, it means providing the capacity by which City Council can assert its leadership and direction on these issues. Thirdly, it means ensuring that communities have the capacity to respond directly to issues of disadvantage, discrimination and exclusion.

4. Aboriginal Self-Determination

There was consensus among Task Force members in support of the principle of Aboriginal Self-Determination.

The right to self-determination for all Aboriginal people is based on an inherent right and flows from the occupation of the land since time immemorial and is recognized and enshrined under the Royal Proclamation of 1763 and the Constitution Act, 1982;

The right to self-determination and treaty rights are portable rights which reside within the person and continue to exist regardless of whether that person is on or off First Nations land.

The Task Force takes its guidance from the Report of the Royal Commission on Aboriginal Peoples, (RCAP, 1993) which contained recommendations with respect to cultural identity, services, and representation.

"Cultural identity:

Aboriginal cultural identity be supported and enhanced in urban areas by:

1. Aboriginal, municipal, territorial, provincial and federal governments initiate programs to increase opportunities to promote Aboriginal culture in urban communities,
2. Municipal governments and institutions and Aboriginal elders co-operate to find ways of facilitating Aboriginal spiritual practices in the urban environment; and
3. All governments co-operate to set aside land in urban areas dedicated to Aboriginal cultural and spiritual needs.

Aboriginal service institutions:

Provincial, territorial and municipal governments give priority to making the existing Aboriginal service delivery system more comprehensive as the most effective means of meeting the immediate needs of urban Aboriginal people.

...ensure that existing and new Aboriginal service institutions have a stable and secure funding base by (a) making contribution and grant agreements with aboriginal service institutions for periods of at least five years; and (b) adjusting funding for existing and new Aboriginal and non-Aboriginal agencies to reflect actual services provided and caseloads.

Representation of urban Aboriginal People:

Positions be designated for Aboriginal representations on local boards and commissions responsible for services and the boards of institutions in which Aboriginal people have a significant interest.

Municipal councils and school boards in municipalities with a large Aboriginal population establish aboriginal affairs committees to provide advice and guidance on Aboriginal issues.

Municipal, Provincial, Territorial and Federal government seek opportunities for co-management arrangements, managing and operating urban institutions, programs and services in which they have an interest."

To respond to these, the Task Force recommends that City Council establish an Aboriginal Office mandated to act as an advocacy/liaison office to the community and the City of Toronto.

The Task Force also recommends that City Council endorse the principle of Aboriginal self-determination and work with the Aboriginal community to achieve this.

2.3 Monitoring, Measurement and Administrative Structures

In the Interim Report, the Task Force presented a very detailed outline of mechanisms for citizen input, monitoring, investigations, evaluation and for conducting access and equity audits or reviews. Over the course of the past eight months, the Task Force considered various proposals including having an arm's length Toronto Equity Council, an Ombudsperson, an Access and Equity Auditor, a Public Advocate/Complaints Office, 11 community advisory committees, a Commissioner of Access and Equity, and regional committees.

Feedback on the Interim Report indicated that the proposals needed simplification. Therefore, the following process and framework is proposed to measure ongoing implementation.

Departmental Action Plans

1. Using the Policy Framework outlined in this report, the Access and Equity Centre will develop a Guide for Preparing Action Plans.
2. Each Department will prepare an Access, Equity and Human Rights Action Plan, and will identify the resources allocated to the Plan and the timetable for completing the Plan.
3. The Plans will be approved by the Chief Administrative Officer and forwarded to City Council.
4. Once per year Departments will prepare a Status Report on implementation. These Status Reports will be forwarded to the community advisory committees on Access, Equity and Human Rights.

Corporate Plans

5. Once per year the Chief Administrative Officer is requested to provide annual reports on the following Corporate programs and policies as noted in the attached Action Plan.
   1. Employment and Pay Equity
   2. Human Rights and Harassment
   3. Hate Activity
   4. Designated group participation in the purchasing process, and periodic sample surveys (every 5 years) of supplier workforces
   5. The participation and selection rates of human rights protected groups in civic appointments.
6. For the next two years, the Chief Administrative Officer is requested to provide an annual status report on the implementation of the attached Corporate Action Plan and Recommendations.

External Evaluation

7. For each term of Council (every 3 years), an external access, equity, and human rights evaluation/audit will be conducted on the City's progress in achieving its goals. An advisory group will be established for this access, equity and human rights evaluation/audit and shall include one representative from each of the community advisory committees. The report will be submitted to City Council by an external evaluator who shall also review the success of mechanisms for citizen participation.

Agencies, Boards, Commissions or Special Purpose Bodies

8. A similar process is recommended for agencies, boards, commissions and special purpose bodies.

Administrative Structures

In addition to the above process, we are requesting the Chief Administrative Officer to provide options for administrative structures to implement the proposed policy framework and the foregoing evaluation and monitoring process. Once these options are received, the Task Force will finalize its Report to City Council. In developing the administrative options for implementation of the Action Plan and Recommendations, the Task Force has these suggestions regarding organization design.

• Consider the establishment of a Corporate access, equity and human rights unit with a reporting relationship to a Commissioner level or the Chief Administrative Officer;
• Consider the establishment of departmental access equity and human rights units with responsibilities for the development and implementation of departmental access, equity and human rights action plans.
• Consider the establishment of access, equity and human rights office locations at each of the civic centres to facilitate public and employee access.

Return to task force home page.