January 25, 1999

To:Budget Committee

From:City Clerk

Subject:Evaluation of the On the Move Pilot Project

Recommendation:

The Municipal Grants Review Committee on January 25, 1999, recommended to the Budget Committee the adoption of the attached report (January 11, 1999) from the Commissioner of Community and Neighbourhood Services respecting the On the Move Pilot Project.

City Clerk

R. Dyers/tl

Item No. 2

c.Ms. Devi Arasanayagam,

Daily Bread FoodBank

(Report dated January 11, 1999, addressed to the

Municipal Grants Review Committee from the

Commissioner of Community and Neighbourhood Services)

Purpose:

To report on the final evaluation of the On the Move Pilot Project, a one year transportation assistance program for homeless and socially isolated persons.

Financial Implications:

There are no financial implications for the City.

Recommendations:

It is recommended that:

(1)current funds for the On the Move Pilot Project of $50,000.00 be incorporated into the Community Services Grants Program for allocation to community-based agencies as a dedicated public transit resource for homeless and socially isolated persons;

(2)the Social Services Division be directed to maximize the use of transportation assistance currently available under the Ontario Works program for all eligible clients;

(3)this report be forwarded to the Toronto Transit Commission with a request to consider a discount on bulk ticket purchases, beyond the one percent currently provided to TTC ticket agents, for community-based agencies providing services for homeless and socially isolated persons; and

(4)the appropriate City officials be authorized to take the necessary action to give effect thereto.

Council Reference/Background/History:

In July 1997, the Advisory Committee on Homeless and Socially Isolated Persons produced the report, On the Move: Transportation Issues for Homeless and Socially Isolated Persons. This report documents the results of a study profiling the transportation issues of 166 homeless persons. The study demonstrates that access to transportation is critical for both the prevention and resolution of homelessness. People who are homeless must be able to travel throughout the City to meet their basic needs of shelter and food. Access is also essential if people are to have the capacity to attend to longer-range goals such as finding a place to live and a job.

Based on the recommendations in this report, the former Metropolitan Council approved funding for a one year, $50,000.00 pilot project to augment the number of TTC tickets distributed by a network of agencies serving homeless and socially isolated persons. The On the Move Pilot Project began in January 1998 with a commitment to evaluate the project at the end of the year. The evaluation was conducted in early December, prior to the project's completion, in order to coincide with the City's budget process.

This report summarizes the results of the evaluation along with recommendations for the future of the pilot project.

Comments and/or Discussion and/or Justification:

Description of the On the Move Pilot Project:

Agencies who work with people who are homeless or at risk of becoming homeless were invited to submit a "letter of intent" indicating their interest in and capacity for participating in the project. A total of seventeen agencies from across Toronto were selected. These included services for youth, adults, singles, families, men, women, aboriginal people, immigrants, refugees and people with mental health issues. Diversity in the type of service provided was also a consideration to ensure funds were targeted at prevention services as well as emergency services (see Appendix A for a list of participating agencies.)

Participation in the pilot project required a commitment to track and record how the TTC tickets were used. Several agencies also participated in a research group set up to work with the Advisory Committee's transportation sub-committee to design and analyze the results of the evaluation.

The Social Development and Administration Division of the Community and Neighbourhood Services Department administered the project. The majority of agencies received allocations of at least $4,000.00, representing an 80 to 100 percent increase in transportation budgets for most. Allocations were provided in the form of TTC tickets and day passes which were ordered on a quarterly basis. This arrangement was the result of an agreement negotiated with the TTC which allowed the City a one-percent discount on the $50,000.00 pilot project fund. The TTC was not willing to offer this discount directly to the agencies involved in the project as they were reluctant to set a precedent of this practice. The TTC identified their role as the provider of public transit and that the Community and Neighbourhood Services act as the interface with the community-based sector.

Evaluation of the Pilot Project:

In June 1998, a small survey of participating agencies was done to determine how the pilot project was going and if there were any administrative details that needed to be addressed. In August 1998, a series of interviews were conducted with agency staff and with people receiving tickets through the On the Move Pilot Project to learn more about the value of TTC tickets for people who are homeless or at risk of becoming homeless.

The information contained in this report primarily reflects data gathered through the final evaluation surveys. Information collected from the client interviews during the summer is also included.

(1)Purpose of the Evaluation:

A program evaluation was undertaken to determine the success of the pilot project in meeting its goals and to develop recommendations for the future of the project. The primary goal was to increase access to public transit for people who are homeless or at risk of becoming homeless. Secondary goals included expanding our understanding of the role of transportation in resolving and preventing homelessness, as well as to determine the viability of community-based organizations as distribution points for TTC tickets.

(2)Methodology:

Client and agency surveys were used to evaluate the project. The client survey collected general demographic information and descriptions of how TTC tickets received through the On the Move project impacted on their lives. The agency survey focused on administrative aspects of the project but also included requests for client transportation stories.

Each agency was asked to administer 12 surveys to people receiving TTC tickets through their service. In order to ensure a random sample, every third person given a TTC ticket was asked to fill out a questionnaire. A total of 148 surveys were completed, representing a 70 percent response rate. The agency surveys were conducted through telephone interviews with all 17 participating agencies.

Tickets distributed through the pilot project over the course of the year were recorded by each agency using a standardized tracking form. Information was collected on the number of tickets and/or day passes distributed and for what purposes.

(3)Increasing Access to Public Transit:

Eighty-two percent of the participating agencies rated the project successful or very successful in meeting the prime goal of increased transit access. Access was seen to be increased in two ways: more tickets were available and a greater flexibility for agency staff to give out tickets for a wider range of reasons. On average, the On the Move Pilot Project was able to double the daily number of tickets available to each agency. However, even with this increase, most agencies gave out an average of only 20 tickets per day.

Eighteen percent of respondents rated the project as moderately successful, however, this was mainly because the demand for tickets far exceeded the supply. There was a clear consensus among the participating agencies that more tickets were needed. Similarly, the most common suggestion from the client survey on how the agencies TTC ticket program could be improved was for more tickets to be made available (74 percent).

(4)Furthering the Research on Transportation and Homelessness:

The pilot project also sought to expand our understanding of the role of transportation in resolving and preventing homelessness, building on the original On the Move research. Feedback from the agency survey indicated that the project was successful to very successful in meeting this goal (92percent).

(a)Where are people going?

Throughout the year agencies were required to track how the tickets were being used. While some agencies did track the use of tickets prior to the pilot project, others did not. This data provides a sense of how people use the service system, depending upon their particular circumstances. Not surprisingly, ticket use was somewhat determined by the type of agency they received the ticket from. For example, people receiving tickets from a housing help centre or a hostel used them to search for housing.

However, there were common themes across the range of agencies. The most frequent use of tickets was for health appointments and housing search (18 percent each). Travelling back home or to a hostel, and getting to work or searching for employment were the next most common destinations (11 percent each).

These trends also corresponded with the information gathered through the client surveys when respondents were asked why they needed a ticket on the day they were filling out the survey. Twenty four percent needed a ticket for health care appointments. Similarly, housing search (14 percent), shelter (11 percent), employment or job search (10 percent each) were the next most frequent answers. Given that 39 percent of people were in some form of emergency shelter, this indicates that people are motivated to find permanent housing and attend to health issues.

Research continues to show a strong connection between homelessness and poor health with people experiencing high rates of both chronic and acute health problems. Access to public transit not only helps people to reach health care services before problems become more serious but also to attend important follow-up appointments. One agency highlighted the importance of public transit to help people stay connected with their own doctor who is familiar with their medical history.

In the client interviews held during the summer, people related stories about the "empowering" aspect of being able to use the TTC, of having the ability to get around especially in a large city like Toronto. The following account effectively captures the practical yet significant value of TTC tickets to search for housing in Toronto:

"When we were looking for an apartment, we had to visit over 30 apartments all over the City. This would have been impossible for us without the help of this agency. The tickets we were given enabled us to see all of the available apartments we had called. As a result, we now have an apartment that is convenient, we like and are able to afford."

The data gathered on how people use the TTC corresponds with the original On the Move research. When people had a TTC ticket they tended to use it for health care appointments and to search for housing. Transit tickets are considered to be a valuable resource and as such people seem to prioritize their use. (See Appendix B for additional travel accounts of people participating in the pilot project.)

(b)Where are people getting TTC tickets from?

The client survey for the evaluation found that during the previous month 51 percent of people had received tickets from the agency where they were completing the survey, receiving an average of 13 tickets. A further 38 percent had purchased tickets themselves, at an average of 19 tickets. Only one percent, or two people, had received tickets from social services during the previous month.

Clearly, people are making use of the TTC tickets available through community. The fact that many people also buy tickets indicates the value placed on public transit as most are existing on limited incomes. Social assistance was the source of income for 48 percent of the survey respondents. Twenty-four percent reported having no income at all.

On the broader question of how to provide for the transportation needs of people with limited incomes, lowering TTC fares was the most common suggestion based on the client surveys. Metro passes were also recommended. Providing tickets or passes through social assistance benefits and supplying more tickets through the On the Move Pilot Project were also recommended. Not unexpectedly, this suggests that people prefer to have the financial resources or support to buy tickets themselves rather than to ask for tickets from community agencies. However, until such time as transportation needs are more directly provided through adequate income support programs, distributing tickets through the community agencies they turn to for support remains the most feasible and accountable system.

(c)Consequences of not having access to public transit:

Understanding the consequences of not being able to use the TTC was another important aspect of the pilot project research. According to the client survey, most people said they would walk if they could not get a ticket. While walking is considered to be a good form of exercise for most, it does not always hold true for homeless people. A person who is ill, injured, hungry, cold or who does not have adequate clothing or shoes, risks further injury from prolonged walking. Another 29 percent said they would simply not go. The consequences of missed appointments or opportunities, including housing and employment were identified in the original On the Move study as significant barriers for people trying to overcome their homelessness.

(d)Unmet transportation needs:

The ability to travel outside of the City was raised as an issue by the participating agencies both in the evaluation surveys and the interviews held during the summer. Agencies report growing numbers of requests for transit assistance, primarily to search for work in the GTA. This corresponds to labour market trends which indicate that job growth is higher in the GTA than in Toronto, except for highly skilled employment.

(e)Limitations of the research:

It should be noted that as a research tool, the pilot project had limitations. While agencies were encouraged to give out tickets based on need, many prioritize distribution primarily because of a limited supply of tickets. As a result, the data may not provide a complete picture of why and how people use public transportation. Targeted, more comprehensive research, such as the original On the Move study, is more appropriate for this task. However, the main purpose of the pilot project was to evaluate the impact of channelling a much needed resource to the most vulnerable people in our communities and in this respect it has proven successful.

(5)Community agencies as ticket distribution points:

Integral to the design of the On the Move Pilot Project was to use community agencies as the distribution point for transit tickets. This was to ensure a measure of accountability but also in recognition of the established relationships community agencies have with the people who need the tickets. While it is true that not everyone in need uses community services, the pilot project was designed to include a wide range of service providers - from hostels to information centres - in an attempt to meet a broad spectrum of needs. The Anishnawbe Health Street Patrol, for example, connects with people on the street many of whom do not use mainstream services. Sojourn House, the only hostel in Toronto specifically for immigrants and refugees, supports newcomers who are unfamiliar with local services.

Agencies reported that as people found out TTC tickets were available the demand for tickets naturally increased. While this does place an additional administration burden on front line staff, it was also seen as useful tool for engaging clients on broader needs and issues. The additional tickets allowed agencies to give out tickets for a wider variety of reasons thereby helping people to establish the wider support network necessary for getting back on their feet. Overall, transit resources were viewed as a positive and practical contribution to an agency's ability to provide a comprehensive service.

(6)Future of the Pilot Project:

There was consensus from both client and agency surveys that regardless of its structure the On the Move Pilot Project should continue preferably with an expansion of funds.

From an administrative perspective, ordering and distributing tickets to community agencies is a cumbersome process for the City of Toronto. It is therefore recommended that funds from the On the Move Pilot Project be incorporated into the general Community Service Grants Program for allocation to community-based agencies as a dedicated public transit resource. Given the City's current financial constraints expanding this fund is not feasible at this time despite the demonstrated need. However, maximizing the use of transportation assistance available through the Ontario Works program for all eligible clients should increase the access of many low-income people to public transit.

Funding for the pilot project was originally obtained through net departmental underexpenditures in 1997. This $50,000.00 budget item was carried forward in the 1998 budget. The disposition of these funds was held until the evaluation was completed. An amount of $50,000.00 has been included in the existing consolidated grants budget for 1999.

(7)Other funding options:

Prior to the implementation of the pilot project, a number of strategies for increasing access of people with limited incomes to public transportation were explored.

(a)Discount TTC fares:

The option of a discount fare through the TTC has been discussed by the Commissioner of Community and Neighbourhood Services and the General Manager of the TTC. This revealed concerns on the part of the TTC that providing discount fares for groups such as homeless people would constitute a social service thereby confusing its public transit mandate. The issue of subsidies is further challenged by ongoing pressures on the TTC budget potentially threatening their existing student and senior discount rates.

(b)Discounts on bulk ticket purchases:

As mentioned, the TTC provided a one percent discount to the City, not to individual agencies, for On the Move Pilot Project fund only (the same discount provided to all TTC ticket agents.) Hostels, drop-ins, housing help centres, food banks, outreach programs and other community services spend considerable dollars every year for TTC tickets, an often difficult budget decision given funding cuts at a time of increased service demand. A small study of 46 agencies in 1996 by the Advisory Committee on Homeless and Socially Isolated Persons found they spent almost $340,000.00 on TTC tickets in that budget year. The Daily Bread Food Bank alone spends upwards of $48,000.00 a year on TTC tokens for low income volunteers and food bank users.

Providing a bulk purchase ticket discount for community services would significantly increase the number of tickets for distribution through this sector thereby maximizing the transit resources available and ultimately enabling more people to use the TTC. It is therefore recommended that this report be forwarded to the Toronto Transit Commission with a request to consider a discount, beyond the one percent currently provided to TTC ticket agents, for bulk ticket purchases by community-based agencies who provide services for homeless and socially isolated persons.

(c)Social Assistance:

Under Ontario Works, participants who are involved in various parts of the Community Participation and Employment Support component are eligible for transportation assistance and other benefits associated with their participation in the program. Currently, transportation expenses are available to clients in self-directed job searches only on a case by case basis to allow clients to attend documented job interviews. Costs for this assistance are shared 80:20 between the Province and the City of Toronto.

The Social Services Division has raised concerns in previous reports that current allowances are inadequate in allowing people to meet their full range of basic needs, including transportation. Unfortunately, implementing transit subsidies for the entire caseload is not feasible. Social assistance is an 80:20 cost-shared responsibility between the Province and the Municipality, with the Province determining benefit levels and entitlements. As a result, subsidising transportation expenses would require a significant financial commitment from both the Municipality and the Province. Increased expenditures beyond those currently budgeted would also require provincial approval, which is unlikely.

However, feedback from the On the Move Pilot Project evaluation indicates that the transportation assistance available under the Ontario Works program may be underutilized. It is therefore recommended that the Social Services Division be directed to maximize the use of this transportation resource for all eligible clients.

(d)Private sector donations:

In addition to the pilot project, a donor campaign called "Ticket to Ride" has been organized in partnership with the Ontario Association of Hostels - Toronto Chapter. Several fundraising events have taken place, the largest involving high school students from the Metropolitan Separate School Board canvassing for donations at selected TTC stations. This program has run for two years and to date approximately $10,000.00 has been raised and distributed to drop-in centres, hostels and Out of the Cold programs. The enthusiastic support of this School Board has resulted in the design of a study unit on homelessness with participation in the Ticket to Ride campaign as part of the social justice component of their senior grade religious studies program.

Conclusions:

Based on the results of the original On the Move study and consistent feedback of participants in the pilot project, it is clear that public transit is essential for people who are homeless or otherwise living in poverty. TTC tickets help people meet both short term survival needs as well as longer term needs for housing and employment. While the pilot program was considered to be successful in meeting its goal to increase access to the TTC, the demand for tickets continues to far exceed the available supply. Until such time as broad transit subsidies are financially viable through income support programs, distributing tickets through the community agencies remains the most feasible and accountable system.

It is therefore recommended that funds from the On the Move Pilot Project be incorporated into the general Community Service Grants Program for allocation to community-based agencies as a dedicated public transit resource; and that the Social Services Division be directed to maximize the use of transportation assistance currently available under the Ontario Works program for all eligible clients.

It is further recommended that this report be forwarded to the Toronto Transit Commission with a request to consider a discount, beyond the one percent currently provided to TTC ticket agents, for bulk ticket purchases by community-based agencies who provide services for homeless and socially isolated, thereby maximizing the public transit resources available through this sector.

Contact:

Susan Shepherd

Tel: 392-5398/Fax: 392-8492

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Appendix A

Participants of the On the Move Pilot Project

Agincourt Community Services Association, 4139 Sheppard Avenue East, Scarborough

Anishnawbe Health Toronto, 225 Queen Street East, Toronto

Eva's Place Youth Shelter, 360 Lesmill Road, North York

Good Shepherd Centre, 412 Queen Street East, Toronto

Homes First Society, 411 Richmond Street East, Toronto

Neighbourhood Information Post, 269 Gerrard Street East, Toronto

Parkdale Activity and Recreation Centre, 1497-99 Queen Street West, Toronto

Salvation Army - Maxwell Meighen Centre, 135 Sherbourne Street, Toronto

Scarborough Housing Help Centre, 780 Birchmount Road, Scarborough

Second Base Youth Shelter, 702 Kennedy Road, Scarborough

Sojourn House, 51 Bond Street, Toronto

St. Stephen's Community House,The Corner Drop-In, 370 College Street, Toronto

Street Health, 315 Dundas Street East, Toronto

West Hill Community Service, 156A Galloway Road, Scarborough

Parkdale Community Health Centre, 1257 Queen Street West, Toronto

Parkdale Community Information Centre, 1303 Queen Street West, Toronto

St. Francis Table, 1322 Queen Street West, Toronto

Appendix B

Selection of Transportation Accounts

"One of our clients has to see four different specialists because of an ongoing serious medical condition. He has to see them all once a month and he has been able to co-ordinate his appointments so that they all fall on the same day. On the day that has been arranged, he is given a day pass. He has also been able to include some other necessary appointments on the designated day such as a look at an apartment or a job interview. The end of his day of errands and appointments sometimes finishes with a social event or meeting of friends and he returns late to the centre with his day pass completely full of punch-holes. If not for the On The Move program, he would be in a much more difficult position in spite of his own responsible efforts."

"A woman came in for assistance in looking for housing and food. The On the Move tickets provided her with the ability to get to apartment appointments she had made and also helped her to get to a food bank so she could pick up some groceries. The flexibility of the On the Move criteria made this possible."

"The On the Move tickets facilitate housing searches and thus helps to free hostel beds for clients who are unable to maintain their own housing."

"One woman, who was enrolled in a retraining program through Manpower that did not include transportation support, lost her Metro Pass and did not have the extra money to cover her transportation costs. On the Move was able to give her two weeks of tickets to carry her through until she was able to afford a new Metro Pass. This enabled her to continue with the retraining program."

"The On the Move tickets have helped several of our clients through the first couple of weeks after the get a job when they may not have the money to pay for transportation. After a couple of weeks, when they receive their first pay cheque, they are then able to pay for the tickets themselves."

"A youth who moved to independent living on student welfare was working part-time and going to school. As per welfare policy, her part-time earnings were deducted from her GWA cheque for the first three months. While clients wait out the first three months of not being able to keep money from part-time earnings, it is quite impossible to live on $195.00 and buy TTC tickets as well. This particular client was supported with On the Move tickets to get to and from school. After three months, she was able to buy her own."

"One of our clients, who was on probation, was able to consistently make her appointments with her parole officer because of the On the Move tickets she received. This helped her to stabilize her life while she was adjusting to her release from prison."