June 4, 1999

To:Economic Development and Parks Committee

From:Joe Halstead, Commissioner of Economic Development, Culture and Tourism

Subject:Interim "Welcome Policy" for Users of Recreation Programs - All Wards

Purpose:

To provide information on accessibility to recreation programs in light of Council's decision on harmonization of recreation user fees.

Source of Funds:

Not applicable.

Recommendations:

It is recommended that:

1.this report be received as information.

Background:

The recent decision by City Council on April 26 and 27, 1999, on the harmonization of recreation user fees has presented an opportunity to the Parks and Recreation Division to develop a policy that will ensure accessibility to recreation programs for residents who are unable to afford the cost of these programs.

Council adopted Option "B" with respect to harmonization of recreation programs. This option provided for non-specialized programs (drop-in, subscriber, introductory instructional) to be free for pre-schoolers, children and youth. It also provided free drop-in programs for older adults and for-fee programs for other older adult programs and for all adult programs. The "Welcome" policy, insofar as it deals with reducing financial barriers to participation, would apply to specialized programs for pre-schoolers, children and youth and for all other programs (except for older adult drop-in) for adults and older adults.

There are severe time constraints for developing such a policy as the Fall/Winter Parks and Recreation Guide , "Toronto Fun" goes to print in July, 1999, Accordingly, The Division is advancing an interim policy for welcoming all users. This policy will address the need for accessibility for both individuals and communities. In keeping with Parks and Recreation's practice of encouraging input and advice from community residents, it is the intent of staff to consult with residents and appropriate community agencies to develop a proactive "Welcome Policy" to be in place for the fall of the year 2000.

Guiding principles for the interim accessibility:

The Division is committed to ensuring all City residents year-round accessibility to high quality community recreation and leisure programs regardless of their ability to pay. A "Welcome" or accessibility policy must be:

-accessible and equitable to all

-reduce barriers to access in a seamless fashion

-be handled in confidence with sensitivity to individual

-apply to both individuals and communities

-clearly welcome all to participate in enjoyable, healthful, satisfying

and creative use of leisure time

-proactive in terms of increasing participation in recreational opportunities

Benefits of Recreation for Individuals and High Need Communities:

Recreation contributes significant personal, social, economic and environmental benefits which enhance the well-being of Toronto citizens, their neighbourhoods and the local economy. This is particularly the case for high need individuals and communities as options may be more limited.

Through various studies, recreation has been demonstrated to:

-increase one's self esteem and confidence

-reduce alienation, loneliness and anti-social behaviours

-promote ethnic and cultural harmony

-build strong families, the foundation of a stronger society

-be critical, if integrated and accessible, to the quality of life of people with a disability and disadvantaged individuals

-provide youth employment opportunities

-reduce incidence of teen pregnancy

-increase one's ability to work as part of a team

-increase youth's ability to complete schooling

Individual Accessibility Policy - Interim Approach:

The interim policy is based on previous consultations with staff, residents and community agencies, done in the preparation of information for the User Fee Committee of City Council. It provides an individual a choice of directly approaching a full-time recreation staff at the centre level or, for those who desire greater anonymity, of writing to a staff removed from centre operations.

An individual accessibility policy needs to be non-stigmatizing to the person, efficient and effective to administer and able to be clearly documented and controlled from a financial standpoint. The applicant will have to provide written evidence of financial need in general terms (no figures required). This can be provided by a social service agency or other professions familiar with the family (public health nurse, doctor, lawyer, school principal, etc.). A drug or benefit card, U.I.C. stub or other such documentation is also acceptable. In exceptional circumstances (e.g. homeless), written evidence may not be available. Supervisory staff will have the authority to approve subsidy. The key here is to ensure that site staff get to know their community.

Any number of members of one family are eligible. However, only one program per season per individual will be subsidized or as space may permit. In the case of children and youth, a specialized programme would be subsidized as other programs are offered free of charge. Further, a minimum of 10% of program spaces within for-fee programs will be set aside, on a preliminary basis, for individuals in financial need. At some centres, this may increase to a higher level, and in communities that are among the highest need, even 100% of the spaces may be available for subsidy. The Division acknowledges that 25% of children in the City are considered to be living in a financially challenging situation. Reaching out to these children and their families is a challenge that the Division embraces. The Division will seek more proactive methods as a result of further consultation.

The principle of this strategy (reserving a minimum of spaces for those in financial need) could be extended to other community based groups that use our facilities and outdoor spaces. For instance, each community based sports group utilizing public facilities could be encouraged to have a policy whereby a minimum of 10% of their spaces would be set aside for participants who cannot afford the registration fee. The Division will be reporting in the Fall of this year on permitting policies.

The Division is reviewing for the future the possibility of implementing a membership card system which would allow different fees to be charged based on family income or financial need. This is in keeping with direction received from City Council. A membership approach to individuals and families facing financial barriers to participation would involve the provision of a credit for a capped supply of recreation programs. For instance, a child may be able to choose from a menu of programs including advanced learn to swim, specialized day camp, etc. up to the maximum credit. The credit would be based on a calculated formula relating to what a family or individual would use on a City-wide average basis.

Welcome Policy for High Need Neighbourhoods:

One of the actions coming out of the user fee harmonization decision was "that high need communities be exempt from paying user fees for specialized programs" and that "an access policy be considered that would ensure low income families and individuals are not penalized" (EDC Meeting No. 3, February 18^th, 1999). Existing programs at centres serving the local needs of these neighbourhoods would be offered free of charge. In keeping with this, staff have identified recreation centres whose local programming primarily serves neighbourhoods of high need. Participants from these neighbourhoods require special consideration in order to maximize their potential for enjoyment of recreation programs and activities. Generally, participants already rely on social services support. Recreation services, with the complementary support of social services, are delivered to attain the full benefit of recreation activity for participants.

Identification of centres serving neighbourhoods of high need is based on certain key demographic indicators in addition to the experience and judgement gained through many years of providing recreation programs and activities to various communities in the former municipalities. The two socio-economic key indicators used are Children 0 to 17 years of age in families on Social Assistance and Lone Parent Families as a Percentage of Total Families. Attached is a map indicating the distribution of recreation centres in census tracts that reflect these key indicators. From the various centres on this map, the Division selected certain centres that should be a priority for free recreation programs given the Division's experience and, in particular, the percentage of young people on Social Assistance in the census tracts served by these centres.

The Division appreciates that selection of the key socio-economic indicators is a simple approach to a complex issue. For instance, the Urban Planning and Development Services is currently undertaking an exhaustive study on certain communities within the City that may require additional and/or continued investment in them by the City and other parties. This "investment" will be essential to ensure a continued and/or improved quality of life for the residents who reside in these neighbourhoods.

Indeed, this report specifies that enhancing the quality of life for residents is a prime objective of the Official Plan. The Official Plan is intended to be a corporate policy tool to provide a " geographic and urban structure for the Social Development Strategy .... for community development and service delivery." The end result of the study by Urban Planning and Development Services will certainly inform Parks and Recreation Services' proposal for the formal "Welcome" policy.

Welcome Policy Financing:

The Welcome policy is formally funded up to $700,000 ($400,000 for high need and $300,000 for increased demand). The strategy to provide for those in financial need, a minimum of 10% of maximum registration in a given program, will help avoid direct additional costs. Increased demand in particular is difficult to forecast. The Division will be reporting back on this matter after our experience with the Fall programme series. The "Welcome" policy may have to be adjusted with respect to particulars or with respect to level of available subsidy.

For the pre-school, children and youth group, subsidy will only be necessary for specialized programs. Currently, the take-up on specialized programs represents 4.8% of the total program offering for these groups. Based on former Scarborough figures, an average participant registers for 2 to 3 programs per year. This is consistent with the interim individual access policy of allowing one program per season per individual to be subsidized. In the future, a new City-wide average participant profile will help inform the Division's recommendations with respect to a membership card system and an appropriate credit cap within budget guidelines.

Information and Consultation Strategy:

The Division intends to take a proactive approach to ensuring that interested residents in financial need are aware of the Welcome policy. The policy will be published in "Toronto Fun". Notices will be placed in all our facilities. Social Service agencies will be advised of the policy and asked to advise their clients and to publicize the "Welcome" policy.

In the longer term, the Division intends to promote formalized neighbourhood linkages with community groups and agencies that will consider the "whole" person and that person's various needs, including recreation services. Further, staff will review recreation service delivery at the local level with recreation advisory councils so as to address the accessibility requirements of individuals in all neighbourhoods.

For the final Welcome policy, the Division will invite interested community groups, social service agencies and stakeholders to review the interim policy and suggest refinements and different approaches to ensuring that all residents feel "welcome" to use recreation services. A report will be forwarded to your Committee in time for implementation of a permanent Welcome policy by September, 2000.

Contact Name:

Mario Zanetti

392-7252

Joe Halstead

Commissioner Economic Development, Culture and Tourism