July 10, 1998
To:Board of Health
From:Dr. Sheela V. Basrur, Medical Officer of Health
SubjectNo Fixed Address: Young Parents on the Street
Purpose:
Recent increases in the numbers of pregnant and parenting teens without stable housing is of urgent concern. The
working committee Young Parents, No Fixed Address (NFA) was convened in December, 1997 by Toronto Public
Health at the request of workers at local agencies (see Appendix 1), to help coordinate existing services for the growing
numbers of young parents and children without homes. The committee's concerns for the health and welfare of these
young families are discussed in this paper, along with recommendations for addressing the situation, based upon
available data and information collected by the group.
Source of Funding:
Not applicable.
Recommendations:
It is recommended that:
(1)the Board of Health support the working committee on Young Parents, No Fixed Address to ensure ongoing
co-ordination amongst youth serving agencies, and the continued development of flexible, alternative approaches that
address the urgent needs of this population;
(2)the Board of Health urge City Council to ensure an increased supply of safe, affordable transitional and permanent
housing stock and to eliminate barriers to access housing in both the public and private sector for this population;
(3)the Board of Health urge the provincial and federal Minsters of Housing to develop an increased supply of safe,
affordable, transitional and permanent housing stock and to eliminate barriers to access housing in both the public and
private sector for this population;
(4)the Board of Health direct Toronto Public Health to continue as a partner in the group, participating in programs
that will include: a) food access and supplementation; b) development of a youth advisory board; c) further
development of parent relief programs; d) development of responses to mental and emotional health problems; and e)
continued data collection and monitoring;
(5)the Board of Health continue to support existing programs and services essential to street youth such as provision of
classes outside schools in the community and advocate to the Minister of Education, the Toronto District School Board
and the Catholic School Board to ensure these programs;
(6)the Board of Health advocate to the Minister of Community and Social Services for adequate provincial funding for
child welfare and protection in order to ensure that caseloads are manageable and realistic for the protection of children
and the prevention of abuse and neglect;
(7)the Board of Health advocate to the Minister of Health and to the Minister of Community and Social Services for
the development of pro-active, early intervention strategies to prevent the rise in numbers of street youth and children;
(8)the Board of Health forward this report to the Assistant Deputy Minister - Integrated Children's Services, the
Toronto District School Board, the Catholic School Board, the Children's Action Committee, and the Toronto Child
Advocate;
(9)the Board of Health refer this report to Community and Neighbourhood Services for information and to City
Council for adoption; and
(10)the Board of Health forward this report to the Premier of Ontario to urge him to ensure that the growing needs of
young parents on the street be addressed through coordinated action of the part of the relevant Ministries.
Background:
Why are there youth without homes in Toronto?
The reasons young people trade their homes for the streets are confirmed in a number of studies.13,14,15,21 A 1992 study
of street youth in Toronto described "a population of adolescents in special circumstances, more than 70% of whom
leave home because of physical and/or sexual abuse."14 Confirmation of the high prevalence of chaotic childhood
experiences and serious emotional problems among these youth are found in several local data sources (see Tables 1A,
2A, Appendix 2).
Estimates of the number of homeless youth in Toronto are extremely wide-ranging13,15,21,29 and the source of
considerable debate. The statistics available indicate that between 5,000 and 20,000 teens spend time on the streets each
year. Studies which attempt to enumerate homeless populations are exceptionally difficult to complete due to the
transient lifestyles of this group. 25 A 'census' of homeless persons has not been undertaken in Toronto.
Youth Hostel utilization figures provide one "official" indicator of the size of the street youth population in Toronto.
According to statistics from Hostel Division, Community and Neighbourhood Services, approximately 325-340 youth
between the ages of 16-24 use hostels nightly in Toronto31. In addition, there are youth who avoid these services and
make alternative arrangements. Discussions with front-line professionals indicate that the number of youth in this latter
group may equal the number of youth registered in hostels. Overall, Hostel Division statistics record over 5,000 youth
using their facilities annually (see Table 3, Appendix 2).
There is strong evidence that the total number of street youth in Toronto has increased over the past several years.
Utilization data from the Second Base Youth Shelter, one of nine hostels for youth between the ages 16 and 24, indicate
a steady increase in the number of youth seeking shelter, from just over 500 in 1994 to nearly 900 in 1996 (see Table 4,
Appendix 2). This 70% increase is particularly noteworthy, as it has been recorded in a facility located outside of
Toronto's downtown core. Along with the increasing number of homeless youth, the growing number of homeless
families sheltered outside of the inner city is significant, given the relatively few resources available in these areas. Of
particular concern is the lack of accessible medical care for homeless individuals outside of the city's central core.
The number of children of homeless young parents, growing up without permanent homes, is another concern. Records
from local maternity homes and shelters in downtown Toronto are the only data available regarding numbers of births
among homeless women (see Tables 5A-6C, Appendix 2). The most recent figures, from the mid-1990's, document
more than 200 births annually to residents in these facilities, with approximately 30% to teens.1,2,3,4. The addition of
women living in other circumstances at the time of delivery would likely bring this total to over 300 annually. More
recent information regarding increases in pregnancies among homeless teens suggest this figure may still underestimate
the number of children born to young mothers on the streets5,6,7 (see Tables 7-9, Appendix 2).
Discussion:
Health Issues
The erratic nature of street life poses obvious threats to the health of this growing homeless population. Of all the risks
they face, one of the most prominent fears among street youth is that of assault. Crime and violence ranked second
among the ten most important problems cited by Toronto street youth in a 1990 survey, exceeded only by
homelessness. The great majority have been physically and/or sexually assaulted at least once.13 Some youth report that
sleeping during the day and walking all night allows them greater peace of mind.
The danger of sexual assault is heightened by common practices of "survival sex" and prostitution. Street youth are
constantly in need of money and find that exchanging sex for housing, and other favors, are among their limited
options.23,26,28 Several young women involved in prostitution have been murdered over the past several years in Toronto,
although the precise figures are not readily available.
A recent study of homeless young women in Toronto indicates that more than half become pregnant. Multiple
pregnancies are also common, with 118 pregnancies among the 93 women interviewed . Lack of adequate prenatal care
adds to the inflated risks for homeless young women and babies and results in extremely high rates of premature
delivery. It is estimated that more than 10% of these babies do not survive.28
Substance abuse on the street is another serious concern. In an extensive study of Toronto street
youth in 1992, more than 25% reported problems with one or more drugs. Rates of alcohol use
were exceptionally high, with an average reported weekly consumption of 15 drinks. Over
one quarter of those interviewed had injected drugs at some point in their lifetime; four percent had shared needles with
others.14 The rate of HIV among street youth was reported as seven-times that expected in this age group.21
In addition, further serious health risks are related to inadequate nutrition, lack of rest, and limited opportunities for
good hygiene and prevention practices29,30,37. These factors further complicate high risk pregnancies while increasing
susceptibility to serious acute and chronic infections. Not surprisingly, these significant physical risks, coupled with an
often traumatic past, result in high levels of mental health problems as well. Estimates of clinical depression among
street youth range between 35-50%14. The number who attempt suicide is also disturbing. Of the 217 street youth
interviewed by the Addiction Research Foundation in 1992, 43% indicated at least one such attempt at some point in
their lives. Females were significantly more likely to report such attempts (61% vs 37%). Other studies confirm these
alarming rates.21,27,28
These critical health concerns naturally extend to the children of these youth. Numerous acute and chronic health risks
are associated with lack of access to adequate nutrition and to a clean, safe, and secure living environment in
childhood.15,27 In addition, many of these children suffer developmental delays, a result of low birth weight, as well as
lack of attention and stimulation. Added to these problems are increased risks of physical abuse and neglect, as well as
high levels of parental substance abuse, stemming from the often overwhelming levels of stress experienced by their
parents.20,32
Given these serious physical and emotional risks, it is not surprising that about one-half of the babies born to homeless
teens are no longer in their mother's custody by the time they are two years old. 38 Loss of custody is generally a
devastating failure to these young women, leading to further serious emotional problems for themselves and the
children.32 This is often a cyclical process; many of these women become pregnant again to try and replace this loss,
with further impact on their emotional state.
Addressing the Needs
The most urgent need of these young parents and their children is safe, affordable housing. Unfortunately, formidable
obstacles stand in the way. Of primary concern is the inadequate income on which these families must exist. Appendix
3 displays a sample monthly budget for a teenage mother on welfare. Based on the $957.00 stipulated by social
assistance, the maximum shelter allowance of $575.00 leaves only $382.00 to pay for food, transportation, and all other
needs each month. Those who are forced to pay more than the rent allowance provides must take additional money
from other items in the budget.
Compounding the problem is the very limited availability of affordable housing. Waiting lists for subsidized units in
social housing have tripled since 1990.17 As of February, 1998 the combined waiting lists for MTHA, MTHCL, and
Cityhome stood at approximately 41,000.18 A vacancy rate of well below 1% in the private market further limits
availability.
The absence of a centralized system allowing applicants to access information on a range of housing units has been a
further impediment. The system of advertising and filling vacancies is often informal. Homeless youth, generally
without telephones or mailing addresses, have limited access to information regarding upcoming vacancies. The new
Toronto Social Housing Connections system has been designed to simplify the process, with information on 800
buildings, as well as other social services. However, the supply of affordable units will not be increased by this project.
Additional complications exist for mothers under 18 years of age. Often considered too young to sign a lease by private
landlords, some temporarily use rooming houses. These accommodations are often dirty and unsafe, and not
appropriate for infants and children. Shelters and other shared
accommodations are additional options, but are often overcrowded, and unsuitable for young children, intensifying the
young mother's feelings of loneliness, vulnerability, and despair.19
Along with the urgent need for stable housing, homeless teen parents require strong, ongoing support with parenting.
The conditions which bring youth to the streets generally imply a severing of ties with their own parents. While friends
on the street may provide a surrogate family, they generally cannot provide support in terms of parenting
responsibilities. As a result, these teens are generally caring for small children 24 hours a day, without a permanent
residence, and with little money. Front line workers note that assistance with parenting is vital in preventing crises of
desperation that do occur33. 'Hot' lines for these emergency situations are another urgent need. In addition to crisis
services, programs which offer information on parenting are vital in insuring the well-being of the children of street
youth. Education for males, to help them assume their responsibilities as fathers, is crucial. Because their own
childhood experiences generally leave these teens without positive role models in caring for their own children,
programs which incorporate information on parenting with a wide range of other basic health services, including
information on child health and nutrition, are vital to ensuring child protection.
The prevalence of serious addiction problems among street youth call attention to another critical need. The birth of a
child is a life changing experience, which can provide the motivation for a new parent to overcome drug dependency
and work toward a more stable lifestyle for themselves and their children. 22,26,32 Numerous studies have identified the
lack of treatment programs with provisions for day care as a major barrier in addressing are addiction problems in
young mothers over the past several years.32,33 Unfortunately, however, the gap remains. Reports of increasing numbers
of babies born in Toronto with evidence of prenatal drug exposure further emphasize the need for maternal addiction
treatment.33 Long-term counseling and other supports, to prevent relapse in these vulnerable new parents, is an essential
part of drug addiction treatment.
Conclusions:
Despite limited access to food, shelter, and health care for themselves and their children, youth on the street are often
"service-shy". Early experiences with child welfare agencies can be traumatic, often resulting in a lack of trust in
authority. Fear of losing their children to these same authorities creates perhaps the most difficult barrier to overcome
in working with homeless teens, transcending all areas of need. This dilemma clearly illustrates the cyclical nature of
the problems of child abuse, neglect, homelessness, and early pregnancy. Further stigmatization resulting from life on
the streets can be an additional disincentive to receiving urgently needed food and shelter or attending to medical and
dental emergencies. Local agencies, including Public Health, devote considerable efforts to "outreach," which involves
identifying individuals in need of assistance and encouraging them to accept help. Discussions with outreach staff
indicate that beyond the fear of these young women is often a tremendous desire to provide a better life for their
children. A number of local programs have demonstrated how these many of these young women can draw upon the
strengths they use to survive on their own to achieve this goal.32,38
The network of agencies formed through Young Parents No Fixed Address has, in its first six months of existence,
demonstrated the importance of inter-agency collaboration in working with resistant yet needy clients. Modifications to
the system of identifying high risk parents and children, expanded case conferencing, use of designated teams and
coordination of services and data collection have been initiated through this partnership. Such collaboration is seen as
vital in helping to ensure that these youth and their children do not "fall between the cracks."
Significant increases in child welfare rolls over the past several years virtually guarantee a continued growth in the
street youth population in Toronto (see Tables 10A - 11, Appendix 2). The promise of an expanding population of
young families living without permanent homes underscores the urgent need for increased attention to this tragedy on
Toronto's streets.
Contact Name:
Dr. Jack Lee, Regional Director
Toronto Public Health
Tel:(416) 392-7467
Fax:(416) 392-0713
E-mailjlee1@city.toronto.on.ca
Dr. Joyce Bernstein, Epidemiologist
Health Information & Research
Toronto Public Health
Tel:(416) 392-6788
Fax:(416) 392-7418
E-mail: jbernste@city.toronto.on.ca
Appendix 1
Agencies Participating in Young Parents No Fixed Address
Catholic Children's Aid Society
Children's Aid Society of Metropolitan Toronto
City of Toronto, Community and Neighbourhood Services
City of Toronto, Public Health
Covenant House
Jewish Family and Child Services
Evergreen Health Centre
Humewood House Association
Inner City, Youth Link
Jessie's Centre for Teenagers
Massey Centre
Hostel Services
Native and Child Family Services
Robertson House
Rosalie Hall
Ryerson University
SHOUT Clinic
St. Michael's Hospital
Street Outreach Services
Appendix 2
1. From a file review at the Children's Aid Society (CAS) - Division of Long Term Care, 1998
A profile of 41 young mothers, formerly in care of the CAS. These women were between 16 and 24 years old.
TABLE 1A:Past abuse experienced by mothers*
Number of Mothers |
Percent |
Type of Abuse Experienced |
31 |
76% |
Emotional |
27 |
66% |
Physical |
23 |
56% |
Sexual |
* Out of the 41 women, 17 experienced all 3 forms of abuse
TABLE 1B:Highest Grade Level Achieved:
Number Who Completed : |
|
Grade 13 |
1 (2%) |
Grade 12 |
3 (7%) |
Grade 11 |
18 (44%) |
Grade 10 |
9 (22%) |
Grade 9 |
6 (15%) |
Grade 8 |
3 (7%) |
Currently 17 of the 41 women are enrolled in school, 24 are not
2. From a file review at Covenant House , Profile of 41 Mothers, 1995.
TABLE 2:Past abuse experienced by mothers
Number of Mothers |
Percent |
Type of Abuse Experienced |
31 |
76% |
Emotional |
21 |
51% |
Sexual |
13 |
32% |
Physical |
12 |
29% |
Psychiatric problems |
3. From Hostels Division, Community and Neighbourhood Services
TABLE 3:Number of Youth Aged 16-24 Staying in a Metro Hostel, 1992-1996
1992 |
1993 |
1994 |
1995 |
1996 |
6047 |
5440 |
5218 |
5737 |
5434 |
4. From Second Base Youth Shelter
TABLE 4:Number of Clients Requesting Shelter, Ages 16-21, January, 1, 1994-December 31,1997
|
1994 |
1995 |
1996 |
1997 |
# of Clients |
501 |
609 |
703 |
891 |
5. From City of Toronto Birth Records 1990-1995 ("Old" city of Toronto only, not Metro):
TABLE 5A:Live Births to Mothers living in Hostels
|
1990 |
1991 |
1992 |
1993 |
1994 |
1995 |
Total |
Number of Live Births |
37 |
48 |
34 |
29 |
27 |
33 |
208 |
TABLE 5B:Age of Mothers Living in Toronto Shelters by Year:
|
1990 |
1991 |
1992 |
1993 |
1994 |
1995 |
Total |
Under 15 |
1 |
0 |
0 |
1 |
1 |
1 |
4 |
15 to 19 |
16 |
20 |
10 |
5 |
9 |
7 |
67 |
20 to 24 |
9 |
10 |
11 |
11 |
6 |
11 |
58 |
25 to 29 |
8 |
6 |
11 |
6 |
5 |
6 |
42 |
30+ |
3 |
12 |
2 |
6 |
6 |
8 |
37 |
Total |
37 |
48 |
34 |
29 |
27 |
33 |
208 |
6. Maternity Homes:
TABLE 6A:Number of Residential Clients Served - Rosalie Hall, 1996-1998
|
April, '96 - March, '97 |
April, '97-March '98 |
Residential Clients |
97 |
92 |
Average Age of Resident |
17.7 |
18.9 |
TABLE 6B:Selected Annual Program Statistics - Massey Centre for Women, East York
|
1993-1994 |
1994-1995 |
1995-1996 |
1996-1997 |
Prenatal Clients |
41 |
71 |
50 |
61 |
Postnatal Clients |
N/A |
44 |
40 |
69 |
Average Age |
17 |
18 |
18 |
17.5 |
# of babies prenatal |
27 |
N/A |
32 |
34 |
# of babies Post-natal |
N/A |
N/A |
40 |
68 |
# in high school |
38 |
64 |
53 |
60 |
TABLE 6BB:Massey Hall, Additional Services
|
1993-1994 |
1994-1995 |
1995-1996 |
1996-1997 |
Visits to Parent-Child
groups |
1186 |
4885 |
5400 |
4476 |
Parent Relief |
190 children |
227 children |
348 children |
N/A |
Day Care |
64 children |
57 children |
70 children |
77 children |
TABLE 6C: From Humewood Centre, York
|
April, 1996-March,1997 |
April, 1997-March,1998 |
No. of Prenatal Clients |
10 |
12 |
Average Age |
17.5 |
17.6 |
7. Evergreen Health Centre
TABLE 7:Pregnancy and Follow up visits treated at Evergreen from 1994 to 1997 (Per 1000 visits)
|
1994 |
1995 |
1996 |
1997 |
Pregnancy and follow up |
37 |
52 |
52 |
61 |
8. SHOUT clinic
TABLE 8:No. Of visits with children under 5 years of age
|
1994 |
1995 |
1996* |
Number of Visits |
66 |
87 |
508 |
*1996 data incomplete
9. Ontario Ministry of Health, Selected Newborn Diagnoses, 1986-1997
TABLE 9:Selected Newborn Diagnoses among babies born in Toronto
|
86 |
87 |
88 |
89 |
90 |
91 |
92 |
93 |
94 |
95 |
96 |
97 |
Drug-induced damage |
2 |
2 |
3 |
0 |
4 |
6 |
8 |
5 |
1 |
4 |
4 |
5 |
Noxious influences through
placenta |
5 |
7 |
8 |
12 |
32 |
35 |
46 |
59 |
61 |
69 |
77 |
58 |
Newborn drug withdrawal
syndrome |
4 |
7 |
11 |
16 |
23 |
26 |
23 |
23 |
16 |
17 |
18 |
17 |
TOTAL* |
11 |
16 |
22 |
28 |
59 |
67 |
77 |
80 |
74 |
89 |
99 |
76 |
*A newborn may appear in more than one category, with the resulting effect on the total.
10. From Catholic Children's Aid Society (CCAS)
TABLE 10A:Child Admissions and Re-admissions to Care
|
1994 |
1995 |
1996 |
1997 |
# of Admissions
/Re-admissions |
784 |
844 |
868 |
931 |
TABLE 10B:Reasons for Admissions & Re-admissions, 1997
Reason |
Number |
% |
Parenting problems |
251 |
27 |
Child Abuse |
157 |
16.9 |
Child Behaviour Problems |
154 |
16.5 |
Illness/Handicap |
136 |
14.6 |
Substance Abuse |
119 |
12.8 |
Miscellaneous |
52 |
5.6 |
Abandonment |
51 |
5.5 |
Adoption |
11 |
1.2 |
11. Children's Aid Society of Metropolitan Toronto
TABLE 11:Number of Children in Care, 1995-1997
|
1995 |
1996 |
1997 |
Number of Children |
1528 |
1624 |
1831 |
Appendix 3
Sample Budget for Single Mother with One Child
INCOME:$957.00
EXPENSES:
Rent 575.00
Food 130.00
Diapers 60.00
Baby food and supplies 65.00
Telephone 30.00
Clothing 25.00
Household Supplies 20.00
Transportation 30.00
Miscellaneous 22.00
TOTAL: $957.00
References:
1. Birth registrations, 1990-1995, City of Toronto, Department of Public Health, Health Information Section.
2. Annual Program Statistics, Massey Centre, Housing and Resource Centre for Pregnant Young Women and Single
Mothers, April 1, 1992 - March 31, 1997.
3. Statistical Summary, Rosalie Hall, 1996-1998.
4. Statistical Summary, Humewood House, 1995-1997
5. Summary of Utilization Statistics, Hostel Division, Community and Neighbourhood Services, 1992-1996.
6. Conditions Seen Per 1000 Visits, Evergreen Health Centre, 1994-1997.
7. Encounters with Children under 5 years of age, SHOUT Clinic, 1995-1997.
8.Case file Review, Covenant House, 1995.
9. Case File Review, Children's Aid Society of Metropolitan Toronto, 1998.
10.Child Admissions/Re-admissions, Monthly and Accumulative report on Services, Catholic Children's Aid Society,
December, 1997, page 27.
11. Client Statistics, January 1, 1994 - March 23, 1998, Second Base Youth Shelter.
12.Children in Care, telephone conversation with Bruce Leslie, Children's Aid Society of Metropolitan Toronto.
13.Smart, R.G. et al (1990) Drugs, Youth, and the Street, Addiction Research Foundation.
14. Smart, R.G. (1992), Drifting and Doing, Changes in Drug Use Among Toronto Street Youth, 1990-1992, Addiction
Research Foundation.
15.Fitzgerald, Michael(1995), "Homeless Youth and the Child Welfare System:Implications for Policy and Service",
Child Welfare, v. 74, May/June, 1995, pp.717-730.
16. Ambrosio, E., et al, The Street Health Report, Street Health, 1992.
17.ONPHA, Quick Connections, March, 1998.
18. Personal Communication, Sheryl Pollock, City of Toronto, Housing, May 6, 1998.
19.Jessie's Housing Program, Jessie's Centre for Teenagers, October, 1997.
20. Crack Use Among Families Seen By the Children's Aid Society of Metropolitan Toronto, Metro Research Group
on Drug Use, Children's Aid Society of Metropolitan Toronto, 1992.
21.Read, S., D. DeMatteo, and B. Bock (1993), HIV Prevalence in Toronto Street Youths, The Hospital for Sick
Children, 1993.
22. Report of the Task Force into Illicit Narcotic Overdose deaths in British Columbia, Office of the Chief Coroner,
1994.
23.Butters, J., A. Hallgreen, and P. McGillicuddy (1997), "Poor Women and Crack Use in Downtown Toronto", Street
Health and the Addiction Research Foundation.
24. Presentation to the City of Toronto Alternative Housing Subcommittee, M. Surbeck, May 30, 1997.
25.Patychuk, D., J. Phillips and D. McKeown, "Draft Report: Deaths Among the Homeless in the City of Toronto,
1979 to 1993," City of Toronto, Department of Public Health, July, 1996.
26. Focus group with former Street Youth, Toronto Dept. Of Public Health, April 6, 1998.
27.A Study of Young Mothers in Metro Toronto, Young Mothers Resource Centre, April, 1993.
28. Findlay, Sheri, Karen Leslie, Reuven Jhirad, Derek Stephens, "Pregnancy in Toronto's Street Youth," presented at
the Pediatric Academic Society Meeting, New Orleans, May, 1998.
29.Lee, J., S. Gaetz, and F. Goettler, "The Oral Health of Toronto's Street Youth," Journal of the Canadian Dental
Association, v. 60, #6, June/July, pp. 545-548.
30. Pennbridge, J. R. MacKenzie and A. Swofford, "Risk Profile of Homeless Pregnant Adolescents and Youth,"
Journal of Adolescent Health, v. 12, pp.534-538.
31.Commissioner of Community Services, "Status Report on Hostel Services", November 8. 1996, Report to the
Human Services Commissioner,
32. Drug Use In Toronto, 1997, Research Group on Drug Use.
33.FAX on Drugs, "Need to Address Substance Abuse Problems in Approximately 25% of Child Welfare Cases in
Metropolitan Toronto," vol. 2, No.7, Research Group on Drug Use, July 24, 1997.
34. Drug Use in Toronto, 1998, Research Group on Drug Use.
35.Radford, Joyce L., Stay in School: An Evaluation of the Ambassador Dropout Prevention Program, Toronto, Drug
Abuse Prevention Centre, June, 1993.
36. Martin, Fay E., Reflection to Action: The Ambassador Program, Toronto: Drug Abuse Prevention Centre, February,
1997.
37.Killion, Cheryl M.(1995), "Special Health Care Needs of Homeless Pregnant Women," Advanced Nursing Science,
vol. 18(2), pp.44-56.
38. Breaking the Cycle, The Evaluation Report, February, 1998.