Provincial Operational Review of the
City of Toronto's Implementation of Ontario
Works and Child Care Fee Subsidy Programs
The Community and Neighbourhood Services Committee recommends the adoption of
the recommendations of the Children and Youth Action Committee embodied in the
following communication (October5,1998) from the City Clerk, and reports having
received the reports dated August 27 and September 29, 1998, from the Commissioner
of Community and Neighbourhood Services:
Recommendations:
The Children and Youth Action Committee on September 28, 1998, recommended to the
Community and Neighbourhood Services Committee:
(1)that Council endorse the Children and Youth Action Committee's opinion that the best
way to provide child care is through high quality child care options and that there is a need for
expectations/standards related to ensuring high quality in the formal but unlicensed sector;
(2)that the Children's Services Division of Community and Neighbourhood Services be
requested to continue to design and embark on a consultation plan on the best way to serve the
21,000 children eligible under Ontario Works and the 15,000 children currently on the child
care subsidies waiting list; and a package of choice that contains licensed quality child care,
library services and park/recreation "after four programs" be presented to parents as part of the
consultation plan, along with an overview of the Quebec model for child care;
(3)that the three operating principles (first come, first served; parental choice; and equity), by
which the Toronto Children's Services Division of Community and Neighbourhood Services
operates to provide child care of high quality, be reaffirmed and that the "modifications" to
service being discussed visibly embody these three principles so that the improvements in
substitute care for children developed since the introduction of the Day Nursery Act of 1944
are not diluted or destroyed;
(4)that the Minister of Community and Social Services, in regards to the Provincial review of
the Ontario Works Program including child care, currently underway, be requested to ensure
that the Ontario Works child care service strategy not adversely impact service access to the
regular core subsidy program by families eligible for child care outside of the Ontario Works
Program (i.e., families who are working, studying or who have special needs); and
(5)that the Provincial Government be requested to reinstate capital funding for child care
centres so that the appropriate accommodations for all children (not just Ontario Works
clients) who need child care full or part-time can be delivered in facilities designed for
children.
Background:
The Children and Youth Action Committee gave consideration to a verbal report by the
General Manager, Children's Services, on child care and issues related to Capital Reserve and
Ontario Works.
For the information of the Community and Neighbourhood Services Committee, the Children
and Youth Action Committee also advises that it has requested the Toronto Library Board and
the Parks and Recreation Division of Economic Development, Culture and Tourism to report
to the October26, 1998, meeting of the Children and Youth Action Committee on the
feasibility of serving an extra 2,000 children each and the operating and capital funding
required to do so.
The Community and Neighbourhood Services Committee submits the following report
(September 29, 1998) from the Commissioner of Community and Neighbourhood
Services:
Purpose:
This report briefly discusses the review of the Ontario Works and Child Care programs in the
City of Toronto that is being launched by the Ministry of Community and Social Services.
Financial Implications:
There will be no direct financial implications. However, there will be indirect costs to the City
in terms of the significant staff time which will be required.
Recommendation:
It is recommended that this report be received for information.
Background:
The Community and Neighbourhood Services Department has advised the former
Metropolitan Council, and the new Toronto City Council, about the implementation of the
Province's Ontario Works (O.W.) program in Toronto through a series of reports. Over the
past two years, these reports have discussed important issues from the perspectives of both the
Social Services and Children's Services Divisions. The Department has identified a number of
key concerns related to the Provincial guidelines and legislation which govern the design and
funding of the program, and noted their implications for the implementation of the O.W.
program in Toronto. Many similar issues and concerns have been raised by other
municipalities across the Province as they have proceeded to implement the program in their
jurisdictions.
Representatives of the Department have been meeting with Provincial officials to mutually
resolve issues affecting the City's implementation of O.W., and to ensure that implementation
proceeds effectively and efficiently. To that end, the Commissioner, in July 1998, contracted
experienced consultants (the Executive Resource Group) to assess the Social Services
Division's implementation of Ontario Works and recommend any changes required to
successfully manage implementation and ongoing program delivery. Provincial officials were
informed that this review would proceed expeditiously, and be completed by early fall.
Subsequently, in a letter dated September 18, 1998, addressed to the Mayor of Toronto, the
Minister of Community and Social Services indicated that the Ministry would undertake a
review of the Ontario Works and Child Care programs in the City of Toronto, the review to be
performed by an independent consultant (see Appendix 1). This report briefly discusses the
shape and content of this review, based on the information currently available.
Discussion:
According to finalized terms of reference for the review: "The aim of the review is twofold.
First, the review will identify and resolve issues that are preventing the orderly
implementation of Ontario Works. Secondly, the review will analyze the City of Toronto's
current use of Child Care subsidies and make recommendations on how to maximize their
use."
The initial terms of reference for the review were forwarded to senior Departmental staff on
September 21, 1998. Staff from the Department and from the Ministry of Community and
Social Services (M.C.S.S.) have subsequently reviewed and revised the draft terms. Appendix
2 contains the finalized terms of reference for the review which is formally referred to as "the
Ministry of Community and Social Services Operational Review of the City of Toronto's
Implementation of Ontario Works and Child Care Fee Subsidy Programs."
As indicated in the terms of reference, the scope of the review is very broad encompassing all
aspects of the City's implementation of O.W., both income support and employment
assistance. With regard to child care, although the focus of the review is on O.W.
implementation, the scope of the review has been broadened to include the overall fee subsidy
system as well. Thus, both the regular and O.W. streams will be subject to review.
The review is to begin immediately, with the collection of information and data in the field
commencing in late September. Findings from the review and an action plan are to be
presented to the City in early November in a preliminary report. The City will have the
opportunity to prepare a written response to this draft report by mid-November. A final report
will be submitted to the Ministry on December 1, 1998.
As part of the terms of reference, a number of committees and working groups have been
established to both oversee, and undertake, the review. The Department will be represented by
appropriate senior staff on the Senior Advisory Committee which will oversee the project. A
Steering Committee will be set up to monitor the review's progress, and tackle operational
issues related to conducting the review. This group will also review preliminary findings and
conclusions. Again, the Department will be represented by senior staff. Overall project
management will be the responsibility of a consultant who will serve as Project Director.
Fieldwork for the review will be conducted by K.P.M.G. consultants, supported by City of
Toronto and MCSS staff.
Although City staff are participating in a variety of ways, the review is a Ministry review -
commissioned, paid for and accountable to the Ministry. City staff are committed to working
co-operatively with the consultant and Ministry officials to ensure the review is completed in
a timely way, and in a way that does not disrupt service to clients.
Conclusion:
In a recent communication to the Mayor of Toronto, the Minister of Community and Social
Services indicated that an operational review of the Ontario Works and Child Care programs
in the City of Toronto would be undertaken this fall. Final terms of reference have been
established. Throughout the course of the review, the Department will work collaboratively
with the Province to identify issues that must be resolved to ensure that the implementation of
Ontario Works in Toronto is successful. Over the next several months, the Department will
provide regular reports to Council on the progress of the review.
Contact Name:
Shirley Hoy,
Commissioner
Tel: 392-8302
The Community and Neighbourhood Services Committee submits the following report
(August27, 1998) from the Commissioner of Community and Neighbourhood Services:
Purpose:
The purpose of this report is to update the Community and Neighbourhood Services
Committee on: the transfer of responsibility for managing single parent and temporary care
(foster children) cases currently managed by the Province to Toronto's Ontario Works (O.W.)
program; and the transfer of new responsibilities within the child care delivery system to the
Children's Services Division. This report will discuss potential impacts for the respective
Divisions, and identify issues related to the transfer process.
Funding Sources:
Financial implications have been addressed through the 1998 budget process for both the
Social Services and Children's Services Divisions.
Recommendation:
It is recommended that this report be received for information.
Background:
As a result of substantial changes initiated by the Province over the past year, significant new
responsibilities will be assumed by municipalities in the areas of social assistance and child
care. This report provides a progress report on:
(1)the transfer of responsibility for managing single parent and temporary care cases
currently managed by the Province to Toronto's Ontario Works program; and
(2)the transfer of system management responsibility for the wage subsidy program, special
needs resourcing, approved corporations serving special needs children, and family resource
centres from the Province to the Children's Services Division.
Transfer of Provincial Social Assistance Cases:
Prior to the passage of the Social Assistance Reform Act (S.A.R.A.) in November of 1997 and
its enactment in May of 1998, there were two programs for people in need of assistance: the
Provincial Family Benefits (F.B.A.) program and the Municipal General Welfare Assistance
(G.W.A.) program. The City (and the former Metropolitan Toronto) administered the latter
program.
The Family Benefits program was intended to be a longer term program for those considered
at least temporarily unemployable. Disabled individuals, single parents and temporary care
cases received benefits under this program.
The G.W.A. program was intended to be a short-term program where people classified as
"employable" (singles, couples, families) were provided with assistance while pursuing
self-sufficiency. Over the last four years, the City's G.W.A. caseload has steadily declined,
and in the past year (July 1997 to July 1998) it has dropped from 93,000 to 81,000 cases.
Since the G.W.A. program was historically the "point of entry" into the social assistance
system, the City's caseload included single parents awaiting transfer to the F.B.A. program.
The Social Assistance Reform Act replaced the Provincial F.B.A. program and the Municipal
G.W.A. program with two new programs: the Ontario Disability Support Program Act
(O.D.S.P.A.) and the Ontario Works Act (O.W.A.). The legislation now clearly distinguishes
between disabled individuals and others receiving social assistance.
The O.D.S.P.A. program, administered by the Province, will provide assistance to people with
long-term disabilities as well as those over the age of 65. All other people in need, including
single parents, elderly people aged 60-64, those with temporary illnesses or disabilities, and
temporary care cases, will receive assistance under the Ontario Works program.
The Ontario Works program, administered by municipalities, is an employment focused
program, with the goal of moving people into jobs as rapidly as possible. This is achieved
through three formal program components - Community Participation (C.P.), Employment
Supports (E.S.), or Employment Placement (E.P.).
In accordance with the new legislation, the Province reiterated in early 1998 that
responsibility for managing single parent and temporary care cases would be transferred to
municipalities, and that a carefully planned process would be established to expedite the
transfer of these cases to the new municipally delivered O.W. program.
An estimated 17,000 cases served by the Provincial F.B.A. program, the vast majority of
which are single parents with a small number of temporary care cases, will be transferred to
the municipality. Given that single parents have historically entered the system through
G.W.A., Toronto Social Services, under O.W., already serves the majority of single parent
cases receiving social assistance in Toronto, with a current caseload of approximately 25,000
cases. The Division also currently serves 233 temporary care cases. As a result, the Division
has considerable experience serving these groups. For this reason, the transfer of
responsibility to the municipality for serving single parent and temporary care cases
represents a logical step.
Transfer of New Responsibilities to Children's Services:
As part of the Provincial "Who does What" announcements in January 1998, the Province
indicated that system management responsibility for the following child care services would
be transferred to the Children's Services Division:
-family resource centres;
-special needs resourcing;
-approved corporations serving children with special needs; and
-the wage subsidy program.
Effective January 1, 1998, all child care services, including the current fee subsidy system,
became cost-shared on an 80:20 basis with the City assuming responsibility for 20 percent of
the approved costs.
The transfer of these services to the City will ultimately improve the overall child care service
delivery system through improved planning and co-ordination of service options for children
and families. Issues related to the transfer of these new responsibilities to the Children's
Services Division are highlighted in Section II of this report and discussed in further detail in
a report, entitled "Transfer Plan for Child Care Services and Adjustments to Child Care
Support for Ontario Works," also on this Committee's agenda.
Development of a Joint Implementation Plan for the Transfer of Responsibilities:
In February 1998, a Joint Provincial-Municipal Planning Implementation Team, comprised of
senior staff from both the Provincial Ministry of Community and Social Services (M.C.S.S.)
Toronto Area Office and the City of Toronto, was struck to develop a detailed plan for the
transfer of Provincial single parent and temporary care cases and funded child care services.
The remainder of this report discusses the planning process to date.
Comments:
Section I: Transfer of Single Parent and Temporary Care Cases:
(A)Transfer Planning Process:
As indicated in its previous reports to Council, the Social Services Division has known since
mid-1997 that the transfer of Provincial single parent cases would occur. Based on previous
Provincial announcements, the Division factored the new caseloads into key decisions
involving the 1998 budget, O.W. targets, and estimates of the need for child care spaces and
other supports.
The Ministry has set out a transfer planning process that every municipality must follow. In
January 1998, as a part of this process, the Province released its Provincial Municipal Case
Integration Implementation Tool Kit. The Tool Kit's purpose is to ensure that there is a
consistent framework across the Province to manage, and plan for, the transfer of single parent
and temporary care cases. It contains the Joint Local Implementation Planning Guidelines,
including requirements for the development of protocols governing human resources.
The Joint Provincial-Municipal Planning Implementation Team has been working steadily
over the past several months to develop an implementation plan based on the Tool Kit and
Planning Guidelines. The plan describes the proposed approach developed jointly by the City
of Toronto and the Toronto Area Office of M.C.S.S. to:
(1)integrate single parent and temporary care cases into the municipally managed Ontario
Works program;
(2)develop effective means of meeting Toronto's Ontario Works program objectives; and
(3)minimize the financial risks to the City of Toronto government associated with thecase
transfer.
A draft Case Integration Business Plan has been developed based on the best information
available, in compliance with the Planning Guidelines and Directives established by the
Province. The Plan is also in accordance with several key guiding principles, agreed to by the
Planning Implementation Team, which are listed in Appendix 1.
Overall, the Plan describes the integration of single parent and temporary care cases within the
Department's overall approach to delivery of the Ontario Works program. It includes detailed
plans for transferring files; a service delivery model; a comprehensive communication
strategy; a facilities plan assessing infrastructure requirements to accommodate new cases; a
description of the technical/information systems and processes required to support the
integration plans; human resource plan agreements to support the transfer cases; an
implementation timetable; and estimated budgetary requirements. At the time of this report,
all of the above areas had been agreed upon by the Province and the Municipality except for
the human resource plan and some outstanding budget/program delivery issues. These two
areas are discussed in further detail below.
The draft Case Integration Business Plan provides comprehensive information about each of
the above areas, and is available from the Clerk's Department for review.
(B)Implementation:
This section updates Committee on the current areas still under negotiation. The finalization
of a case transfer implementation plan, and its approval by the Province, hinges on reaching
mutually acceptable decisions in each of these areas.
(1)Human Resource Plan:
Additional staff resources required to manage the new single parent cases have been factored
into the Division's 1998 budget. Although ongoing caseload reduction means fewer new staff
will be required than forecast, there will still be a need for additional staff.
Based on discussions with the Province, a plan is being developed to satisfy both Municipal
and Provincial labour relations requirements. Given that Provincial staff will be displaced,
efforts will be made, where possible, to provide qualified Provincial staff with positions once
the City's obligations are fulfilled.
Resolution of these issues is critical to making decisions related to the staffing necessary to
manage additional cases transferred from the Province. The budget anticipates a phasing-in of
the staff positions as the transfer of the caseload occurs.
(2)Budget/Program Delivery Model Issues:
The Division has incorporated resources needed to accomplish the transfer into the 1998
budget request, as previously noted. The Division necessarily made assumptions during the
budget process, due to an absence of necessary data and information from the Province.
Therefore, certain budget and program decisions are being updated as more accurate data is
received. Ultimately, the budget will also be affected by the approval of the O.W. Business
Plan, which is discussed below. All changes are reported to Council through the regular
corporate budget variance reports.
The transfer of F.B.A. cases to the City's Ontario Works program will also significantly affect
overall program delivery under O.W. Single parents will now comprise over 40 per cent of the
cases, significantly altering the nature of the caseload. New service delivery issues and
priorities will arise because of the characteristics and support needs of this population. For
example, the average length of stay on social assistance is longer for single parents, compared
to other recipients, as is their time out of the labour force. This time away from the labour
force can lead to erosion of job skills and inhibit the acquisition of new skills. As a result,
single parents often face barriers to employment. Extensive service supports and interventions
may therefore be required to assist these clients return to the labour force. In addition, the
provision of supports such as child care are essential for single parents who are seeking
employment, or who will be participating in the Community Participation or Employment
Placement components of O.W.
Toronto Social Services Division has recently completed a survey of sole support parents
receiving social assistance in Toronto (winter 1997-1998). A report discussing the key
findings will be forwarded to Committee in October, 1998.
(3)Provincial Approval Process:
The draft plan must now go through the Ministry and Corporate Provincial approval process.
Only when all remaining issues are satisfactorily resolved, and Provincial approval is granted,
will the actual transfer of cases begin.
(4)O.W. Business Plan:
Ultimately, overall staffing levels, program targets, and funding are dependent on Provincial
approval of the O.W. 1998 Business Plan, which in turn impacts upon the Division's ability to
manage the additional cases to be transferred from the Province. At this time, Provincial
approval of the Department's 1998 Business Plan is still pending. Realistically, the transfer
process cannot proceed until Provincial approval for the O.W. Business Plan is obtained.
Overall, the F.B.A. caseload transfer is taking place in the context of wholesale changes to all
facets of the social services delivery system. This includes the implementation of the new
O.W.A. and O.D.S.P.A. legislation, regulations and directives, the introduction of the
National Child Benefit Supplement, and the ongoing implementation of the Ontario Works
program, all of which have been discussed in recent reports to Council. Over the next several
months, the Division will also be required to make substantial changes to the basic technology
systems used to manage the caseload. This includes not only upgrades to the Caseworker
Technology (C.W.T.) and Ontario Works Technology (O.W.T.) systems but also migration
from the MAIN mainframe system to the CIMS mainframe system in order to be year 2000
compliant. Taken together, there will be significant workload implications, affecting a host of
administrative and service delivery functions.
Section II: Transfer of Responsibility for Managing Child Care Delivery:
The joint planning process for the transfer of system management responsibility for the
additional child care programs was carried out in accordance with the Ministry's "Child Care
Implementation Planning Directive." The content of the jointly negotiated transfer plan for
child care is described in a report, entitled "Transfer Plan for Child Care Services and
Adjustments to Child Care Support for Ontario Works," also on this Committee's agenda. In
preparation for the imminent transfer of the additional child care programs, the Children's
Services Division has been meeting with current service providers from the family resource
centres and the special needs service sector to assure a seamless transfer for both clients and
operators. In accordance with Provincial requirements, funding and service levels for these
programs will be maintained during 1999. They will also be integrated into the City's Child
Care Service Planning process.
The Children's Services Division has already received Provincial assurance of one time
transitional funding support in the amount of $338,000.00 for technological activities
identified in the child care transfer plan. Ongoing administrative support for the programs
being transferred is still under discussion with the Province.
Conclusion:
The Joint Implementation Plan developed by the Community and Neighbourhood Services
Department of the City and the Provincial Ministry of Community and Social Services
Toronto Area Office reflects co-operative work and planning which will ensure a smooth
transfer of the new program responsibilities from the Province to the City. The actual timing
of the F.B.A. caseload transfer will depend on the successful negotiation of outstanding
human resource and budget/program delivery issues. The Department will update Council as
required.
Contact Name:
Heather MacVicar
General Manager, Social Services Division
Tel: 392-8952
Marna Ramsden
General Manager, Children's Services Division
Tel: 392-8128
--------
Appendix 1
Draft Case Integration Plan
Guiding Principles
(a)The development of a transition process which minimizes potential service disruption to
clients, and ensures that the needs of people who rely on these services are met in a timely
manner.
( b)Provincial and Municipal staff will be treated in a dignified and respectful manner.
(c)Program integrity will be safeguarded and maintained throughout the transfer process.
(d)Comprehensive communication strategies for key stakeholders will be timely, informative,
and ongoing throughout the process.
(e)Costs related to the transfer process will be managed in a cost-effective and efficient
manner.
(f)Opportunities to enhance service delivery and maximize cost-effectiveness will be
explored and maximized throughout the planning process.
--------
The Community and Neighbourhood Services Committee reports, for the information of
Council, also having had before it a communication (October 7, 1998) from Ms. Anne Dubas,
President, Canadian Union of Public Employees, Local 79, outlining the Union's concerns
with respect to the Operational Review; and attaching a copy of their letter to the Minister of
Community and Social Services outlining their objections to the review's Terms of Reference.
The following persons appeared before the Community and Neighbourhood Services
Committee in connection with the foregoing matter:
-Ms. Heather MacVicar, General Manager, Social Services Division, Community and
Neighbourhood Services Department; and provided an overhead presentation on the
Provincial-Municipal Caseload Transfer;
-Ms. Marna Ramsden, General Manager, Children's Services Division, Community and
Neighbourhood Services Department; and provided an overhead presentation on the Child
Care Transfer Plan/Ontario Works Child Care; and
-Councillor Pam McConnell, Don River.
(A copy of each of the Appendices 1 and 2, referred to in the foregoing report dated
September29,1998, from the Commissioner of Community and Neighbourhood Services, was
forwarded to all Members of Council with the agenda of the Community and Neighbourhood
Services Committee for its meeting on October 8, 1998, and a copy thereof is on file in the
office of the City Clerk.)