Social Assistance Changes in Ontario - April 2019 Forecasting the Impact of the Government of Ontario's Proposed Reforms - Feed Ontario
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Social Assistance Changes in Ontario Forecasting the Impact of the Government of Ontario’s Proposed Reforms April 2019
In This Report About Feed Ontario 03 Executive Summary 04 Social Assistance and Food Banks 05 A Brief History of Social Assistance 06 Social Assistance Today 07 Planned Changes to the System 09 Ontario Works 09 Ontario Disability Support Program 11 Recommendations for Change 14
Feed Ontario (formerly the Ontario Association of Food Banks) is a
network of 130 direct member food banks and over 1,100 affiliate hunger-
relief agencies that are united in their work to address and prevent hunger
and poverty.
FEED ONTARIO Social assistance changes in ontario (April 2019)
Through emergency food support, innovative programming, and a
commitment to investigating long-term solutions to poverty, the provincial
food bank network works tirelessly to improve the health and well-being of
the adults and families it serves.
Feed Ontario works to achieve its mission in three key ways:
FeedON Feed Possibility Feed Change
The provincial food We feed possibility by We feed change
bank network provides providing food banks by researching the
adults, children, and with resources to root-causes of food
seniors with nutritious grow their capacity to insecurity, raising
food throughout the distribute fresh food, awareness of hunger
year, including dairy to collaborate and in our province, and
products, protein, develop best practices advocating on behalf
and produce. With that drive change, and of evidence-based
the support of our to invest in innovative solutions to poverty.
partners, Feed programming for It is only through our
Ontario distributes people facing hunger collective action that
the equivalent of 4.5 in their communities. we will end hunger and
million meals annually. poverty in Ontario.
3Executive Summary
I
n November 2018, the provincial government
announced a number of reforms to Ontario’s social
assistance programs, Ontario Works and the Ontario
Disability Support Program, with the intention of
helping recipients break the cycle of poverty.
FEED ONTARIO Social assistance changes in ontario (April 2019)
As two-thirds of food bank clients at minimum wage, making it
cite social assistance as their more difficult to move ahead
primary source of income, reforms
to these programs can have a • Ontario Disability Support
significant impact on food banks. Program: The proposed
This report discusses the history alignment of the program’s
of social assistance in Ontario and definition of disability with
the impact that previous changes the federal guidelines may
to the system have had on poverty exclude individuals with
and food insecurity in this province, episodic disabilities (such
and analyzes the proposed reforms. as multiple sclerosis or
In summary, this analysis found Parkinson’s disease) from
that while the reforms included a accessing the support they
number of improvements to the need
current set of policy directives,
some of the changes are cause for
To avoid these problems, Feed
concern:
Ontario recommends that the
Government of Ontario maintain the
• Ontario Works: Despite earnings-related clawbacks at 50
the proposed increase percent and retain ODSP’s current
to earnings exemptions definition of disability. In addition, to
from $200 to $300, the ensure that more Ontarians do not
corresponding increase in have to make the difficult choices
clawbacks to subsequent between necessities like food and
earnings from 50 to 75 shelter, Feed Ontario recommends
percent would leave the provincial government invests
recipients with less net into the development of more
income compared to the affordable housing and a portable
current system after working housing benefit.
more than 8 hours per week
4Social Assistance of adults that access Ontario’s food
banks throughout the year. With 30
and Provincial percent of clients being recipients
of the Ontario Disability Support
Food Bank Use Program (ODSP) and 29 percent of
Ontario Works (OW), any changes
made to how these essential
B
programs work will undeniably
etween April 1, 2017, and
have an impact on the people that
March 31, 2018, Ontario’s
food banks serve.
food banks provided
support to over 227,300
households, inclusive of 501,590 The intention of OW is to assist
recipients while they work to recover
FEED ONTARIO Social assistance changes in ontario (April 2019)
adults, children, and seniors. While
the circumstances that resulted from a job loss or rebuild their
in these individuals and families life after an emergency situation.
needing support are diverse, the ODSP is meant to provide support
fundamental reason that people to recipients that are living with a
turn to food banks is because they disability that restricts their ability
do not have sufficient income to to work, and is presently inclusive of
afford all of their basic necessities both continuous disabilities (such
each month. as a developmental disability) and
recurrent/episodic disabilities (such
as cancer or multiple sclerosis).
Reforms to Ontario’s social
assistance programs are a
significant concern in the food bank Both programs were created to
network because it is the primary provide individuals and families
source of income for the majority with support when unexpected
challenges or unavoidable health
issues occur, and give them the best
possible chance for getting back on
their feet and a good quality of life.
Unfortunately, there have been a
59% number of changes to Ontario’s
social assistance programs since
the early 1990s that have made
it increasingly more difficult for
recipients of the programs to
afford even their most basic needs,
of food bank clients cite such as food and shelter, much less
establish a foundation that would
social assistance allow them to move out of poverty.
as their primary source of income
5A Brief History of 1956 The Unemployment
Assistance Act creates the
first permanent program for
Social Assistance funding social assistance
after pressures from
charities and the provinces,
which can no longer support
the cost of relief after WW2
1874 Provincial governments and a period of increased
begin to support charitable unemployment7
institutions with regular
grants1 1958 Ontario passes the General
Welfare Assistance Act to
1890 Ontario passes the assist during temporary
Houses of Refuge Act, distress8
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which provides county
governments with grants to 1965 The Canada Pension Plan,
construct buildings for the a national compulsory
‘deserving poor’2 contributory pension plan, is
established9
1903 The province passes new
legislation that requires 1966 Ontario passes Family
every county in Ontario to Benefits Assistance Act to
have a house of refuge3 help individuals in need for
long periods of time
1914 Ontario’s Workmen’s
Compensation Act is 1967 The Department of Welfare
Canada’s first compulsory changes its name to the
contributory social insurance Department of Social and
law, and provides support Family Services
to individuals who suffer
workplace injuries or 1971 The federal government
contract occupational substantially expands
diseases4 Unemployment Insurance
and broadens the National
1920 The Ontario Need Mothers’ Housing Act to cover co-
Allowance Act provides operative and non-profit
support to deserted and assistance10
widowed women after WWI
1972 The Department of Social
1930 The federal government and Family Services
provides the provinces with becomes the Ministry of
grants to provide relief Community and Social
during the Great Depression Services
and creates a new
Department of Welfare5 1977 The Family Benefits
Assistance becomes the
1940 Federal Unemployment Ontario Disability Support
Insurance is established Program and General
to provide protection Welfare Assistance becomes
against loss of employment Ontario Works
earnings6
6Social Assistance: choices between expenses, leaving
them with no other choice but to
1990 to Today turn to food banks for support.
I
This is a trend that has continued to
n Ontario, two out of three grow year over year, as illustrated
individuals that access food in Figure 1. Due to the rising cost of
banks are social assistance living and stagnant social assistance
recipients. This statistic has rates, program recipients are falling
remained consistent for as long as into deeper levels of poverty as
food banks have been collecting the “poverty gap” between social
this data. assistance income and the Low
Income Measure (LIM) continues to
FEED ONTARIO Social assistance changes in ontario (April 2019)
One of the primary reasons that grow.
social assistance recipients access
food banks is that Ontario Works In 1990, a single ‘employable
(OW) and the Ontario Disability person’ would have received $623
Support Program (ODSP) do not per month ($1,027 in 2019 dollars),
provide sufficient support for an and a person with a disability would
individual to afford all of their basic have received $876 per month
necessities each month, like rent, ($1,434 in 2019 dollars). The poverty
hydro, transportation, and food. gap for these individuals was 30
Frequently, individuals on these percent and 2 percent respectively.
programs have to make difficult
FIGURE 1: Historical OW and ODSP rates11 compared to the low income
measure*12, adjusted to 2018 dollars
$25,000
$20,000
$15,000
$10,000
$5,000
$-
1990 1995 2000 2005 2010 2012 2014 2016 2018
ODSP OW LIM
*The Low Income Measure (LIM) is the most commonly used definition of poverty and is set at 50%
of median adjusted household income. This chart references the LIM after taxes for a single person
household.
7Today, a single person on OW modest increases have been made
receives $733 per month and to social assistance rates since then,
experiences a poverty gap of they have never recovered from
63 percent, and an individual on the initial cuts in 1995. The chart in
ODSP receives $1,169 per month, Figure 2 illustrates how difficult -
experiencing a poverty gap of 40 or even impossible - it can be for
percent. someone on OW or ODSP to afford
all of their monthly expenses today.
This growing gap can be explained
in part by the austerity measures Alongside inadequate rates,
put in place by the Government of these programs are governed by
Ontario, starting in 1995 with a 21.6 punitive and complicated policy
percent cut in support available directives that make navigating the
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for recipients that were considered system a challenge and building a
‘employable persons’. This was foundation to move out of poverty
followed by all social assistance nearly impossible. Though the
rates being frozen until 2003, purpose of these programs are
causing the income provided by to help recipients regain financial
both programs to lose value each stability, every time they try, they
year due to inflation. Although some get knocked back down.
FIGURE 2: SINGLE PERSON HOUSEHOLD EXPENSES versus income
Ontario Disability Full-Time
Ontario Works Minimum Wage
Support Program (Net, 31 Hours14)
Monthly Income $733.00 13
$1,169.00 $1,623.00
Rent16 $959.00 $959.00 $959.00
Bachelor Apartment
Bills/Utilities $179.08 $179.08 $179.08
Basic Expenses15
Electricity, Phone, Internet
Personal Care Items
Clothing, Cleaning Supplies, $191.17 $191.17 $191.17
Toiletries
Health Care
Medication, Health Care $0* $0* $113.58
Supplies and Equipment
Transportation $150.00 $150.00 $150.00
Total $1,479.25 $1,479.25 $1,592.83
Income Left For Food and
($746.25) ($310.25) $30.17
All Other Expenses
*OW and ODSP includes access to some health benefits
8Planned Changes FIGURE 3: proposed Changes to
Earning exemptions, Ontario
works
to the System
Current Proposed
System Changes
F
ood banks have long-
Clawbacks of
advocated for social Supports 50% 75%
assistance reform, including Income Above
Exemptions
increases to social assistance
rates to reflect the cost of living, Earnings
reducing red tape and improving Exemption $200 $300
accessibility to the programs, and Per month
FEED ONTARIO Social assistance changes in ontario (April 2019)
reforming the policy directives that Waiting Period
govern the system. For Earnings 3 months 1 month
Exemptions
In November 2018, the provincial
increased focus on employment
government announced a number
services, improved access to
of changes to Ontario’s social
wrap-around supports, making it
assistance programs17, as well
easier for recipients to pursue self-
as the introduction of the Low-
employment, and a simplified rate
Income Individuals and Family Tax
structure. However, there are a
(LIFT)* credit18, with the intention
number of proposed changes that
of assisting low-income workers.
are cause for concern, such as the
At first glance, many of the reforms
proposed changes to the earnings-
appear to be improvements to
related clawback.
the social assistance programs;
however, a closer look reveals that
some of the proposed changes may Currently, an OW recipient can
actually work against the intended earn up to $200 per month without
outcome. impacting to their benefits. This is
known as an ‘earning exemption’
and is applied after three months
Ontario Works of receiving assistance. Once $200
The provincial government has has been earned, 50 percent of
proposed a re-design of Ontario every dollar earned is clawed back
Works (OW), with a stated goal of from their monthly benefit.
helping recipients find and keep
jobs and achieve better outcomes19. The reforms announced by the
Some of the potentially positive Government of Ontario (outlined
changes announced included an in Figure 3) included increasing
the earnings exemption for OW to
*The LIFT credit refunds the provincial
personal income tax for low-income Ontarians
$300 per month and decreasing
9the waiting period for earning changes mean that their net income
exemptions to apply to one will be lower than at present. After
month.20 While these are moves in 23 hours of work, recipients will stop
the right direction, the changes also receiving OW benefits altogether,
included increasing the earnings versus the current cut-off point of
clawback to 75 percent. 33 hours.
Though the intention of these Moreover, OW comes with access
changes is to assist recipients to health benefits21, such as the
in transitioning back into the Ontario Drug Benefit and assistance
workforce, it is arguable that the with the cost of medical supplies.
increase to clawbacks, despite the As extended health care benefits
increase to earning exemptions, will are often not offered to low-income
FEED ONTARIO Social assistance changes in ontario (April 2019)
create further barriers to moving workers, particularly those working
out of poverty. part-time, lowering the point where
individuals become ineligible for
To illustrate, the graph in Figure 4 financial assistance on OW means
shows that the proposed changes, recipients lose access to these
inclusive of the LIFT credit, give a important benefits earlier and
slight advantage to OW recipients when they are in a more precarious
working between 4 to 8 hours per financial state.
week on average versus the current
system without the LIFT credit. Yet When considering the impact of
if the recipient works more than both the clawbacks and the loss
8 hours per week, the proposed of extended benefits, like medicine
FIGURE 4: MONTHLY net income (Earnings and Ontario work support,
after taxes) by hours worked (Minimum wage)22,23,24,25,26
$2,000
$1,800 Low Income
Measure
$1,600
$1,400
$1,200
$1,000
$800 Average Rent,
Bachelor Apt
$600
0 4 8 12 16 20 24 28 32
Current System Proposed Changes
10FIGURE 5: Sample net monthly encourage employment by allowing
income of Ontario Works for greater income flexibility and
Recipient
fluctuation throughout the year.27
Current Proposed
System System However, much like the changes
to OW, some of the proposed
Hours
23 23 changes to ODSP are cause for
Worked
significant concern, particularly the
After Tax $1,218 $1,242
(without LIFT (with LIFT intention to align the program’s
Income credit) credit) definition of what consitutes an
Max OW eligible disability with federal
$733 $733
Support guidelines. While there is no single
federal definition of disability,
FEED ONTARIO Social assistance changes in ontario (April 2019)
Clawbacks -$509 -$707
the most common definitions are
Remaining significantly narrower and more
OW $224 $26 restrictive than what is currently
Support being used by ODSP, and may
Net Income $1,442 $1,269
exclude many individuals with a
disability who need it.
and medical supplies, the proposed One of the most significant
changes to OW leave recipients differences between the commonly
who are working to move out of used federal definitions of disability
poverty with less net income than and ODSP’s definition is in how each
under the present system. This consider the length and frequency
makes it even more difficult for of impairment. Currently, one is
individuals to establish sufficient eligible for ODSP if their disability is
income to move towards financial either “continuous or recurrent”28,
independence. whereas the two most common
federal guidelines require the
Ontario Disability Support impairment to “regularly stop you
Program from doing any type of substantially
gainful work”29 (Canada Pension
Alongside changes to Ontario Plan-Disability) or that it must be
Works (OW), the provincial “present all, or substantially all the
government announced a number time”30 (Disability Tax Credit).
of positive changes to the Ontario
Disability Support Program (ODSP),
These federal guidelines exclude
including switching the financial
individuals with episodic disabilities,
review from a monthly to an annual
which are chronic conditions
basis and increasing the earnings
marked by periods of health that
exemption from $200 per month
are interrupted by episodes of
to $6,000 per year, helping to
11disability. Examples of episodic As outlined in Figure 7, while
disabilities include conditions such there are many disability support
as cancer, multiple sclerosis, HIV/ programs available to Ontarians,
AIDS, and Parkinson’s disease (see there are many challenges when
Figure 6 for more examples). it comes to accessing them. Most
disability support programs and
It is estimated that 33 percent benefits available to Ontarians
of Ontarians with a disability are tied to current employment or
experience it episodically.32 As are based on a certain amount of
these periods of illness are often payroll contributions, and therefore
unpredictable in both length require steady employment
and frequency, it is therefore histories. Some programs exclude
unsurprising that part-time work people with episodic disabilities, or
FEED ONTARIO Social assistance changes in ontario (April 2019)
is more common amongst people require the disability to arise from a
with episodic disabilities. Further, workplace incident.
these individuals also experience
higher rates of poverty: compared Thus, for many people, ODSP ends
to people without disabilities, and up being a program of last resort,
are 45 percent more likely to have especially as one is only eligible
a household income that falls into for the program if they do not
the lowest quintile. have enough income and assets
to support themselves. Redefining
disability to exclude those with
FIGURE 6: conditions that can episodic illnesses means that
result in an episodic disability31
these individuals, who already face
barriers to obtaining employment,
• Anxiety • Depression
• Arthritis • Diabetes will have no choice but to seek
• Asthma • Epilepsy support through OW — a program
• Bi-polar • Hepatitis C that was not designed to support
disorder • HIV/AIDS
• Cancer • Lupus people with disabilities.
• Chronic • Meniere’s
Obstructive Disease
Pulmonary • Multiple While the benefit rates for ODSP
Disease Sclerosis are not adequate, they are still
• Chronic Pain • Migraines much higher than what is available
• Chronic • Parkinson’s
Inflammatory disease through OW. Applicants who would
Demyelinating • Post-traumatic have formerly qualified for ODSP
Polyneuropathy stress disorder would receive 37 percent less
• Crohn’s disease • Substance
& Ulcerative abuse disorder under OW, which is a devastating
Colitis setback to someone already living
in poverty. ODSP also has more
Episodic disabilities can result in intermittent comprehensive health benefits
work capacity (expressed as instability in an and permits higher savings limits34,
employee’s attendance and productivity)
12FIGURE 7: Disability support programs available to ontarians
Requires
Requires
Predictability of Employment or
Duration of Funding Beneficiary
Disability Means to Save
Contributions
Money
Long Short
Perm. Regular Episodic Yes No Yes No
Term Term
CPP-D X X X X X
EI-
X X X X* X X
Sickness
WSIB X X X X X** X X
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Veterans X X X X X** X X
Private X X X X X* X X
DTC X X X X X
RDSP X X X X X
ODSP X X X X X X
Acronyms used: CPP-D: Canada Pension Plan - Disability; EI-Sickness: Employment Insurance-
Sickness; WSIB: Workers Safety Insurance Board; Veterans: Veterans Affairs Canada Disability
Benefits; Private: Private Insurance; DTC: Disability Tax Credit; RDSP: Registered Disability Savings
Plan; ODSP: Ontario Disability Support Program
*often excludes people with episodic disabilities, as many are precariously employed and do not
qualify, as they require either attachment to employment or payroll contributions
**only if the disability arises from a work-related injury; WSIB has cut the amount of compensation
it provides to claimants by half since 2010.33
allowing recipients to better who are able to work, as the
weather temporary setbacks like higher, annualized income limit
an unexpected expense. Recipients makes it safer to go in and out of
of OW are required to take the workforce when one’s health
part in “employment assistance permits without fear of losing the
activities” to find a job in order benefits and wrap-around services
to continue receiving benefits, as available to recipients of ODSP. If
the expectation is that they are the provincial government decides
physically able to work. to retain ODSP’s current, inclusive
definition of disability, it is possible
The proposed changes to earnings that the new model of ODSP
exemptions for ODSP actually could help many more individuals
makes the program better suited living with a disability transition
to those with episodic disabilities successfully out of poverty and into
financial stability.
13Recommendations for
Change
O
ver half a million people in Ontario access
food banks, with the majority being social
assistance recipients. Feed Ontario calls
on the provincial government to enact
FEED ONTARIO Social assistance changes in ontario (April 2019)
bold policy changes to reduce this number.
The provincial food bank network The concern with this potential
has long advocated for social change is that the common federal
assistance reform to improve the definitions of disability are meant
programs that so many of our for support services with a different
province’s most vulnerable citizens purpose than the Ontario Disability
rely on. Support Program.
As the provincial government By changing the definition of
continues to investigate and roll disability to exclude episodic illness,
out its social assistance reform the Government of Ontario may
plan, Feed Ontario would like be putting a number of vulnerable
to put forward the following individuals at risk of becoming
recommendations as the first steps ineligible for this essential program.
towards moving the needle on Ontarians living with a disability
poverty and a future where no one should be assured that they can
goes hungry: meet their basic needs, including
through ODSP when necessary.
1. Retain the current
Feed Ontario strongly encourages
definition of ‘disability’ in the provincial government to retain
Ontario its current definition of disability,
ensuring that Ontarians, when
The Government of Ontario faced with debilitating illness, are
announced it was considering able to access the support they
aligning the provincial definition of need.
disability with a federal definition.
142. Reduce the clawback 3. Invest in affordable
on earned income under housing via construction,
Ontario Works and ODSP repairs, and a portable
from 75% to 50% housing benefit
In their 2019 budget, the The Government of Canada unveiled
Government of Ontario announced its first National Housing Strategy
planned changes to the rules for in 2017. The Government of Ontario
earned income for people receiving re-affirmed its commitment to
Ontario Works or ODSP. For cost-match the federal investments
Ontario Works, the $200 cap would in its 2019 budget. This agreement
be increased to $300 per month, will provide $4.2 billion in new
FEED ONTARIO Social assistance changes in ontario (April 2019)
and for ODSP the cap would be federal and provincial funding to
increased to $6,000 per year. the Ontario housing sector over
Both of these announcements the next nine years, including
were steps in the right direction. funding for the repair, renewal, and
However, alongside these increases, expansion of social housing and
the provincial government also a new Canada-Ontario Housing
announced an increase to the Benefit.
clawbacks on earned income,
moving it from 50 percent to 75 While this continued commitment
percent of every dollar earned. to the National Housing Strategy
This, combined with many other is promising, details about its
challenges, will likely make it implementation and the design of
more difficult for social assistance the portable housing benefit have
recipients to achieve income yet to be released. With 90 percent
security through employment. of food bank clients being rental or
social housing tenants, who spend
Feed Ontario strongly encourages more than 70 percent of their
the Government of Ontario to retain income on housing, the proper
the current clawback rate of 50 investment of this funding will be
percent, to further support social essential to moving the needle on
assistance recipients as they work poverty. In particular, Feed Ontario
to establish sufficient resources and will be paying close attention to
a strong foundation that will enable the design of the portable housing
them to move out of poverty. benefit to ensure it is accessible and
benefits those who need it most.
To learn more about food banking and poverty in Ontario,
visit www.feedontario.ca
15Works Cited 10. ibid
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27. Ibid
17Authors
Amanda King
Ashley Quan
Design
Ashley Quan
Feed Ontario
99 Yorkville Avenue
Suite 200
Toronto, Ontario, M5R 1C1
www.feedontario.ca | 416-656-4100You can also read
