A.  Introduction

Just as there is no single cause of poverty, there is no single means to address it. Throughout the study, the Committee heard that poverty was not simply a matter of income, although insufficient income was certainly a key issue. The Committee gained insight into the current state of poverty in Canada, measures used to address it, and recommendations on how all levels of government can do better. It heard a wide range of views from government officials, community advocates, provincial and municipal leaders, researchers, academics, front-line service providers, and those with lived experience of poverty.

The Committee found that across all sectors there are a multitude of programs and services assisting those living in poverty. The federal, provincial, and territorial governments already have an established system of measures that encompass income supports, education and training, physical and social infrastructure development, and housing. The Committee finds it frustrating that after so many programs and years of funding by all levels of government, such little progress has been made in reducing child poverty and poverty among persons with disabilities and that the rate of poverty among unattached working age adults is increasing.

The following recommendations are not intended to comprise a national poverty reduction strategy. However, while the federal government prepares its strategy, the Committee makes the following recommendations to strengthen measures that are currently in place and to provide its conclusions on what key elements a national poverty reduction strategy should include.

The Committee is aware of the Budget 2017[476] measures announced shortly after the completion of this study that address some of these issues. The Committee is interested in monitoring those measures and how they align with the following recommendations.

B.  Recommendations Regarding Income Security

1.   Income support programs

The Committee heard that some of the most important risk factors contributing to poverty are inadequate or unstable income. Those with inadequate income are unable to meet their basic needs, such as housing and food security. Witnesses also called for income support programs to be well coordinated and application and reporting processes to be simple and client centred. It was noted that the Guaranteed Income Supplement had significantly reduced the level of poverty among seniors and yet poverty among seniors is still an issue. Witnesses also told the Committee of efforts to develop a price index for seniors that would better reflect the cost of those goods and services that significantly affect the standard of living of this demographic. The Committee also welcomes Budget 2017 announcements related to Employment Insurance. Recognizing the concerns and suggestions made by witnesses the Committee recommends:

RECOMMENDATION 1

That Employment and Social Development Canada work with Finance Canada and the Canadian Revenue Agency to strengthen existing federal income support programs with a view to establishing a system that prevents people from falling into poverty. In strengthening existing programs, the Committee recommends that the federal government make the following changes:

• Review coverage, eligibility and duration of Employment Insurance benefits to address the reality of Canadians who are in precarious, part-time, and temporary work situations. Further, that the federal government allow for greater flexibility for recipients of parental and maternity benefits and for beneficiaries who want to attend education and work program while on claim, so that they remain attached to the workforce.
• Amend the Working Income Tax Benefit to expand eligibility, increase the level of benefits and reduce claw backs so that low-wage, low-income workers are lifted out of poverty.
• Increase the amount of Canada Pension Plan – Disability benefits so that it provides adequate income for those clients with little or no other means of income support.
• Index the Canada Child Benefit to inflation. Further, that the federal government work with the provinces and territories to ensure it is not effectively clawed back by reduced provincial social assistance supports. The relevant departments must also work with Indigenous and Northern Affairs Canada to ensure that the Canada Child Benefit reaches Indigenous families.
• Increase the Guaranteed Income Supplement and ensure that it reaches all low-income seniors. Further, that the federal government implement a seniors’ price index that will inform future increases in the Guaranteed Income Supplement.

RECOMMENDATION 2

That Indigenous and Northern Affairs Canada review social assistance rates for First Nations peoples on reserve in light of higher costs of living and limited employment opportunities so that recipients are ensured an adequate income.

2.   Making life better for the working poor

During the course of the study the Committee heard about the importance of paid employment. It is not only an important source of income, but it is also a means by which Canadians contribute to their communities and derive meaning and dignity in their lives. In order to encourage and support workers the Committee recommends:

RECOMMENDATION 3

That Finance Canada and the Canada Revenue Agency review taxes for low-income workers to ensure that no families are forced into poverty as a result of taxes.

RECOMMENDATION 4

That Employment and Social Development Canada, Finance Canada and the Canada Revenue Agency work with provinces and territories to strengthen and coordinate income support program policies so that participants do not face marginal effective tax rates that discourage labour force participation.

3.   High cost of basic necessities

The cost of many basic necessities is a critical issue facing many Canadians with low-incomes. The Committee learned that food insecurity is especially acute in the North due to the high cost of nutritious foods. The high cost of prescription medications was also brought to the Committee’s attention, costs that prevent many Canadians with lower incomes from getting the medications they need. The Committee acknowledges Budget 2017 announcements related to improving access to prescription medications, lowering drug prices and appropriate prescribing. As well, the Committee acknowledges Budget 2017 announcements related to funding for the Non-insured Health Benefits Program for First Nations and Inuit. To address the high cost of basic necessities, the Committee recommends:

RECOMMENDATION 5

That Indigenous and Northern Affairs Canada, in collaboration with Indigenous and northern communities, develop and implement a system of food security programs to complement or enhance Nutrition North. These programs must address, comprehensively, the extremely high cost of nutritious foods in remote, northern and Indigenous communities. They must also recognize the importance of traditional ‘’country foods’’ and encourage community initiatives that support local harvesting and production.

C.  Recommendations Regarding Education, Skills Training and Employment

1.   Early learning and childhood development

The Committee heard that building the skill set required for success must start early in life, and is key to breaking the cycle of multigenerational poverty. These skills include literacy and numeracy, critical thinking, problem solving, goal-setting, and skills in the STEM fields. However, the Committee also learned that children and youth who live in poverty face unique challenges on a daily basis that prevent them from improving educational attainment, that schools alone cannot supply what every child needs, and that greater resources are needed in this regard.

The Committee is aware of investments announced in Budget 2017 with regards to early learning and child care, which would support and create more high-quality, affordable child care spaces across the country. It is also aware of the federal government’s commitment to develop a national framework on early learning and child care, which would include a separate Indigenous component. The Committee believes that children and youth are the cornerstone of Canadian society and therefore recommends:

RECOMMENDATION 6

That Employment and Social Development Canada, in collaboration with other federal departments as well as provincial and territorial stakeholders, ensure that the national framework on early learning and child care provide short- and long-term solutions to improving the well-being of children in Canada by, for example, increasing the quality and accessibility of early learning and child care spaces, as well as promoting research into continued improvements in early learning and child care.

RECOMMENDATION 7

That Employment and Social Development Canada, Health Canada, and the Public Health Agency of Canada explore avenues to provide greater supports towards early learning and child care in Indigenous communities, either within the context of the federal Aboriginal Head Start programs or the Indigenous framework on early learning and care.

RECOMMENDATION 8

That Employment and Social Development Canada, in collaboration with the provinces and territories, invest in and promote programs that support children and youth along their pathway towards higher levels of educational attainment, such as after-school programs in impoverished communities, being mindful that children and youth who live in poverty face unique challenges and require additional resources in order to succeed in the educational system.

RECOMMENDATION 9

That, in implementing measures announced in Budget 2017, Employment and Social Development Canada explore ways to develop not only skills of the future, but also instill a strong sense of inquisitiveness and a life-long approach to learning. In addition to promoting the importance of reaching higher levels of proficiency in basic skills, such as literacy and numeracy skills, the Committee recommends promoting the development and adoption of coding and other digital skills that will support the application of knowledge and ideas and foster problem-solving techniques.

2.   Savings programsand the cost of post-secondary and postgraduate education

The Committee heard about the importance of education and skills training for reducing poverty, especially given the links between higher levels of education, lower unemployment rates, and greater earning potential. In testimony to the Committee, however, witnesses outlined multiple challenges along the pathway to improving educational attainment, including the rising cost of post-secondary and postgraduate education, inadequate funding in relation to the Post-Secondary Student Support Program, lack of awareness or understanding of financial tools like RESPs, as well as lack of sufficient resources to invest into RESPs.

The Committee is aware of investments announced in Budget 2017 towards improving access to the Canada Learning Bond as well as in relation to the Canada Student Loans and the Canada Student Grants programs. The Committee also acknowledges increased funding announced in Budget 2017 towards the Post-Secondary Student Support Program. In order to further aid Canadians along the pathways to improving educational attainment, the Committee recommends:

RECOMMENDATION 10

That Employment and Social Development Canada, in collaboration with stakeholders, review the policy and funding mechanisms associated with the Registered Education Savings Plan and savings incentives such as the Canada Learning Bond, to ensure increased accessibility to these programs by low-income families. Further, that the Department explore avenues to better promote the Registered Education Savings Plan and savings incentives linked to it, especially to vulnerable groups.

RECOMMENDATION 11

That Indigenous and Northern Affairs Canada explore options to increase access to the Post-Secondary Student Support Program and other federal initiatives aimed at fostering the education of First Nations and Inuit students.

3.   Financial literacy and vulnerable groups

During the course of the study, the Committee heard that financial literacy is also pivotal to ensuring the well-being of vulnerable Canadians and to reducing poverty rates, especially given the existence of payday loans that charge exorbitant interest rates and financial planners that are not properly regulated. Particular challenges also exist with regards to financial literacy programming as it impacts Indigenous peoples. The Committee acknowledges the important role played by organizations that offer financial empowerment programs, and recognizes efforts by the federal government to improve the financial literacy of Canadians, such as “Count me in, Canada.” The Committee notes the concerns and suggestions outlined by witnesses in this regard and recommends:

RECOMMENDATION 12

That the Financial Consumer Agency of Canada, in collaboration with other federal and provincial stakeholders, explore the option of providing funding towards strengthening the financial literacy and well-being of Canadians who are most in need.

4.   Recognition of foreign credentials

The Committee was also told that skilled immigrants to Canada face specific challenges related to education, including inequitable licensing processes as well as lack of access to financial resources for training and certification. Combined, witnesses noted, these factors are contributing to high poverty rates among recent immigrants. The Committee acknowledges Budget 2017 announcements regarding a targeted employment strategy for newcomers, which would offset the cost of the credential recognition process as well as allow for this process to start prior to a person’s arrival in Canada. The Committee also recognizes the many valuable contributions made by immigrants to Canada, and therefore recommends:

RECOMMENDATION 13

That Immigration, Refugees and Citizenship Canada and Employment and Social Development Canada work with regulatory agencies and other provincial and territorial stakeholders to establish a harmonized system for the assessment and recognition of international qualifications.

RECOMMENDATION 14

That Employment and Social Development Canada explore ways to enable skilled immigrants to continue to access income support programs at the same time as grants and lending programs for training to acquire Canadian credentials.

5.   The gap between education and employment and the rise of precarious employment

In their appearance before the Committee, witnesses spoke about gaps in the transition from school to employment. These include inadequate career services, the growing trend towards requiring job experience as a prerequisite for employment, as well as low training rates among employers. Some witnesses also spoke about the rise of precarious forms of employment, which, the Committee learned, has greater impacts on individuals from vulnerable groups. Witnesses also identified challenges faced by small businesses when hiring new untrained employees, including the costs of training as well as federal programs that do not always match the skills training employers need.

The Committee acknowledges investments announced in Budget 2017 with regards to the Labour Market Development Agreements. The Committee also acknowledges the proposal to make the transfers to the provinces and territories “simpler and more flexible” through the new Workforce Development Agreements, which would consolidate the existing Canada Job Fund Agreements with other federal initiatives for individuals facing barriers to skills training and employment. In order to further aid Canadians in their transition from school to work and ultimately to job security, the Committee recommends:

RECOMMENDATION 15

That Employment and Social Development Canada, in collaboration with the provinces and territories, develop a “national school-to-work transition strategy,” modeled after successful initiatives in place in Canada as well as the European Youth Guarantee program, with the objective of ensuring youth have access to continuing education, apprenticeships and/or employment after leaving formal education, thereby bridging their transition into the workforce.

RECOMMENDATION 16

That Employment and Social Development Canada explore ways to create work experience opportunities for students and recent graduates in in-demand sectors of the economy.

RECOMMENDATION 17

That Employment and Social Development Canada work with the provinces and territories to review the policies regarding the Canada Job Fund Agreements and the Canada Job Grant such that resources are specifically allocated towards the training of individuals facing multiple challenges to skills training and employment as well as towards the upskilling of those who are already employed.

RECOMMENDATION 18

That Employment and Social Development Canada develop greater financial incentives for employers, with the objective of creating more employment opportunities for youth.

RECOMMENDATION 19

That Employment and Social Development Canada review the changing nature of work, including the “gig economy,” precarious employment, and new forms of working conditions brought on by technology, and take action to ensure employment standards, and in particular employment insurance and related benefits, are modernized.

6.   The impact of child care on the employment of women

The Committee also learned that, in addition to having an impact on early learning and childhood development, lack of affordable and accessible child care can have significant repercussions for the employment of women and can affect women’s financial stability throughout their lives. The Committee agrees that further measures need to be taken in this regard in order to safeguard the well-being of Canadian families, and therefore reinforces the importance of recommendations 6 and 7.

7.   The employment of people with disabilities

Witnesses also told the Committee about employment-related challenges faced by people with disabilities, owed to a complex array of misconceptions on the part of employers and society as a whole, as well as to ineffective programs meant to assist them. In this regard, the Committee heard from entrepreneurs who shared their success stories as inclusive employers. The Committee acknowledges measures announced in Budget 2017 to support Canadians with disabilities, such as those relating to the Labour Market Agreements for Persons with Disabilities and the new planned federal accessibility legislation. In order to further aid people with disabilities to overcome barriers to employment, the Committee recommends:

RECOMMENDATION 20

That Employment and Social Development Canada review and revise the policy associated with the Opportunities Fund for Persons with Disabilities in order to explore the feasibility of allocating funds towards employer awareness programs without decreasing the funding available to Canadians with disabilities.

RECOMMENDATION 21

That Employment and Social Development Canada, with a whole-of-government approach and in collaboration with provinces and territories, review and revise income support programs for Canadians with disabilities, with the objective of harmonizing programs and eliminating claw backs and other financial barriers that prevent this talent pool from fully participating in the workforce, while ensuring that programs are meeting their intended objectives.

8.   Innovative approaches linked to education, skills training and employment

During the course of the study, witnesses shared various innovative ideas and projects touching upon the issues of education, skills training, and employment with the Committee. These ideas and projects were often portrayed as innovative models that could be implemented at a larger scale to alleviate poverty rates. The Committee greatly appreciates and acknowledges the talent and motivation of the people and organizations behind these approaches, as well as the focus of Budget 2017 on the topic of innovation, and therefore recommends:

RECOMMENDATION 22

That Employment and Social Development Canada work with Public Services and Procurement Canada, as well as with other federal departments, to require that “community benefit/social benefit clauses” be included within federal public tender agreements, where possible, with the objective of encouraging the engagement of social enterprises, thereby increasing the training and employment opportunities of individuals from vulnerable groups.

RECOMMENDATION 23

That Employment and Social Development Canada work with the provinces and territories to ensure that, in reviewing and revising the policy with regards to the Canada Job Fund Agreements and the Canada Job Grant, greater resources be allocated towards social enterprise initiatives.

RECOMMENDATION 24

That Employment and Social Development Canada explore avenues to establish a “social innovation fund” to encourage innovative approaches emerging in the social enterprise realm, while supporting locally based implementation.

D.  Recommendations Regarding Mental Health

Canadians with mental illness are more likely to live in poverty. The Committee heard that, like other Canadians with disabilities, most people with mental illness can and want to work. People with mental illness who work are healthier and less likely to use high cost health and social services. However, those with mental disorders face challenges finding and keeping employment, due to stigma and discrimination, lack of supportive work environments, and inflexible income security policies. The Committee also learned of the mental disorders caused or exacerbated by being poor and heard of the cost burden that mental illness places on individuals, families, employers and society.

Of particular concern is the strong link between mental disorders in children and youth and mental illness among adults, as most adults with mental disorders began their mental illness symptoms in childhood. The Committee also heard about the mental health needs among Indigenous populations, particularly among Indigenous youth, and of the tragedy of suicides among youth in Indigenous communities across the country. While the Committee heard that immigrants generally have lower rates of mental illness than people born in Canada, recent immigrants, refugees in particular, are at higher risk of experiencing poverty, homelessness and mental health problems. Moreover, much of mental illness is directly correlated with substance abuse, and harm reduction sites are not widely available. Accordingly, the Committee recommends:

RECOMMENDATION 25

That the Government of Canada show leadership to other employers by supporting initiatives to assist people with mental illness to find and keep employment in federal workplaces and encourage other employers to increase workplace accommodations for those with mental illness.

RECOMMENDATION 26

That Health Canada and the Public Health Agency of Canada, with Employment and Social Development Canada, fund research and pilot projects to understand best practices regarding mental illness in the workplace and what workplaces should be doing to better accommodate those with mental illness.

E.  Recommendations Regarding Housing

1.   Social and affordable housing

The Committee heard considerable testimony in support of the federal government’s plans to develop a national housing strategy. The absence of the federal government from the social and affordable housing sector for the past 25 years has had significant consequences. The stock of social and affordable housing has shrunk steadily as long-term operating agreements expire, enabling affordable housing to become regular rental stock or converted into condominiums. Escalating housing prices in recent years have pushed even middle-income individuals and families in Toronto and Vancouver into financial stress. What social housing remains is aging and in serious need of maintenance and repair. Moreover, the repair and construction of housing stock must accommodate the particular needs of seniors, as well as marginalized populations who face barriers, including discrimination. The Committee heard a number of suggestions about the level of funding required to rebuild the stock of social and affordable housing and repair existing stock to meet current and future demand. Also, witnesses suggested that the infusion of funding into the housing sector provides opportunities to multiply the benefits for low-income Canadians by providing opportunities for training and employment. The Committee also acknowledges Budget 2017 announcements to increase investments in social and affordable housing. In order to reflect the concerns expressed to it, the Committee makes the following recommendations:

RECOMMENDATION 27

That the federal government commit to a long-term (10-year) housing construction and repair program, with a focus on social housing.

RECOMMENDATION 28

That Canada Mortgage and Housing Corporation ensure that planning of social and affordable housing construction and repairs include those living in poverty in order to best address the needs of the residents and that Canada Mortgage and Housing Corporation, when making decisions related to affordable housing investments, consider housing solutions for: seniors; Lesbian, Gay, Bisexual, Trans and Queer individuals; veterans; previously incarcerated individuals; and individuals with developmental disabilities.

RECOMMENDATION 29

That the federal government consult with provinces and territories to ensure that social enterprises be permitted to stack monies received from the federal government with allowances provided through provincial or territorial government programs.

2.   Funding mechanisms

The Committee heard several options regarding how the federal government could regenerate the social and affordable housing stock in Canada. Some proposed direct funding by the federal government, while other witnesses recommended new funding mechanisms or other supports that the federal government could develop. Several witnesses proposed that the revenues flowing to CMHC should be used to fund social housing stock. While these are interesting ideas, the Committee felt that there was no single option that provided a comprehensive solution for addressing both the need to increase the supply of social and affordable housing and the shorter-term needs of those currently living in poverty on waiting lists for social housing. For this reason, the Committee recommends that the national housing strategy include the following funding options:

RECOMMENDATION 30

That the Canada Mortgage and Housing Corporation explore additional funding mechanisms to partner with communities and the private sector to invest in development of affordable housing.

RECOMMENDATION 31

That the Canada Mortgage and Housing Corporation create a separate long-term housing financing authority that is scalable so that smaller providers are eligible for funding, with loans guaranteed by the federal government.

RECOMMENDATION 32

That Employment and Social Development Canada and the Canada Mortgage and Housing Corporation create a portable housing benefit, in consultation and collaboration with provinces and territories to ensure there are no overlaps or duplications with provincial or territorial portable housing benefits or other rent supplement benefits.

RECOMMENDATION 33

That the Canada Mortgage and Housing Corporation, as part of its investments in affordable housing, renew existing operating agreements and invest in new co-op housing agreements and programs, particularly in areas with extreme affordability crises.

3.   Role of Canada Mortgage and Housing Corporation

Several witnesses spoke of the unique role of CMHC and how its expertise could be of benefit to Indigenous and rural communities, which often lack sufficient skilled workers to build and maintain housing. Having CMHC play a more direct role would also ensure the quality of construction and provide skills training and upgrading for other workers, thereby supporting employment opportunities for vulnerable populations.

RECOMMENDATION 34

That the Canada Mortgage and Housing Corporation take a more active role by providing expertise in building housing, including helping community-based organizations in rural areas.

4.   Homelessness and Housing First

The Committee heard consistent testimony that while the Housing First model is an effective program to address homelessness in many communities, greater flexibility in the program or parallel programs would help communities to address other needs as well, including those of homeless youth, women, seniors and the lack of funding for shelters. Witnesses told the Committee that because of the unique needs of homeless youth, the necessary supports and services would be provided more effectively through a parallel homelessness strategy for this population. The Committee also learned of the general enthusiasm for the Housing First model, which has been largely embraced by most communities, but heard of its inflexibility for community-based organizations which are unable to roll over unused funds from one year to another or use such funds for other supports needed by their clients. The inflexibility of the Housing First model also negatively affects those who continue to be served by shelters on a long-term basis because they do not meet the criteria for transitional housing or because such housing is not available in their community. Based on these findings, the Committee recommends:

RECOMMENDATION 35

That Employment and Social Development Canada, within the Homelessness Partnering Strategy, redefine the definition of “shelter” to allow funding for shelters that serve as longer-term residences for those who cannot successfully move into transitional housing or where transitional housing is not available in the community.

RECOMMENDATION 36

That Employment and Social Development Canada make Housing First more flexible in order to address gaps in the areas of youth homelessness, and the needs of seniors and women, and the inability to roll over unused funding from year to year.

RECOMMENDATION 37

That Employment and Social Development Canada and the Canada Mortgage and Housing Corporation work with provincial and territorial strategies to address youth homelessness and cooperatively fund long-term youth shelters and housing for youth.

RECOMMENDATION 38

That Employment and Social Development Canada amend the policy and/or increase funding for the Homelessness Partnering Strategy to allow funding for shelters, with support systems, targeted to youth, women and seniors.

RECOMMENDATION 39

That Employment and Social Development Canada make the Homelessness Partnering Strategy a regular, on-going program.

5.   Other federal government actions to support affordable housing

The Committee understands that the costs of land transfer taxes, permit costs and other fees inhibit the construction of affordable housing and increase rental and purchasing costs. While many of these fees are levied by municipal governments, witnesses suggested that the federal government has the authority to implement several measures to alleviate the costs related to housing. The Committee heard that land costs are a significant contributor to the high cost of housing construction and that some municipal governments had encouraged the construction of affordable housing in their communities by contributing municipal land. The Committee was reminded that the federal government’s Surplus Federal Real Property for Homelessness Initiative provides an existing vehicle for providing surplus federal real property to communities. Throughout its study, the Committee also heard of the lack of governmental data and research gaps related to housing, which limits the ability of governments, communities, and stakeholders to create a detailed comprehensive picture of housing and homelessness across Canada. The Committee thereby recommends:

RECOMMENDATION 40

That Employment and Social Development Canada expand the Surplus Federal Real Property for Homelessness Initiative.

RECOMMENDATION 41

That the federal government make federal lands available where suitable for community land trusts to develop new housing.

RECOMMENDATION 42

That the Canada Mortgage and Housing Corporation create a national housing research hub to develop indicators, conduct research, define gaps, and innovate and report on housing and homelessness indicators on a national level in collaboration with Statistics Canada.

6.   Housing needs of Indigenous communities

The Committee heard about the poor housing conditions experienced by many Indigenous people as well as recommendations on how to address these housing needs. The substandard housing conditions of many Indigenous communities, both for First Nations on reserve and in northern and remote Inuit communities, is not a new crisis. The Committee heard of the inadequate size and cultural suitability for Indigenous families, as well as the health consequences of the inadequate housing suffered by many Indigenous peoples. Because of the unique needs faced by Indigenous and northern communities, the Committee heard that a distinct housing strategy should be developed, which would include funding mechanisms to address the circumstances of First Nations, Inuit and northern communities. To address these issues, the Committee recommends:

RECOMMENDATION 43

That Indigenous and Northern Affairs Canada and the Canada Mortgage and Housing Corporation fund significant investments in on-reserve housing in partnership with First Nations, and engage in consultations with Indigenous peoples as they plan housing infrastructure to ensure the cultural and lifestyle needs of community members are addressed.

F.   Recommendations Regarding Communities

1.   Physical and social infrastructure needs of communities

The Committee heard about the need to involve communities in planning and implementing poverty reduction measures. There was a common theme in much of the testimony that services and supports, such as transit, primary health care, mental health services, youth wellness centres, child care, schools, employment and training supports, and community centres were not physically or systemically coordinated. As well, the Committee heard that many low-income groups had challenges navigating service and support systems, because of physical, language, educational or other barriers.

In addition to physical infrastructure, the social infrastructure needs of communities are equally important. Service gaps or poorly laid out networks of support force low-income individuals and families to travel from one place to another, increasing the risk that some may be unable to access needed services. Lack of coordination and integration is a fundamental barrier for those with physical or mental disabilities, low literacy or language skills, seniors, and those with family care responsibilities. Many communities have recognized the need for integrating and developing hubs located within low-income neighbourhoods, including the creation of system navigators to provide one-on-one guidance to vulnerable populations on how to access services and supports. However, communities are often constrained by lack of physical infrastructure as well as inadequate and inflexible funding mechanisms that impose significant and inefficient paper burdens on community-based organizations.

The Committee heard many voices calling for direct community access to stable long-term funding and for flexibility and autonomy for communities to address their unique poverty-related needs. There were many insights as to how such funding could be delivered most effectively. Some witnesses proposed that funds could be channeled through the CST, with federal monitoring and control to ensure that such funds would not be absorbed into other provincial and territorial funding priorities. Others advocated for more direct channels and the Committee heard of examples of community-based organizations that oversee and distribute funds to other organizations with the capacity, skills, and expertise to deliver measurable results, a system that provides accountability to funders while ensuring that multiple organizations do not duplicate services. The Committee heard that a local innovation fund could be created, allowing for the pooled resources of all levels of government, the private sector and communities to be used for flexible innovative and experimental initiatives that would not be bound by jurisdictional constraints or bureaucratic silos. Accordingly, the Committee recommends:

RECOMMENDATION 44

That Employment and Social Development Canada consider implementing portions of the community-led model of the Homelessness Partnering Strategy when supporting communities with funding, working to reduce the paper reporting burden and provide for additional local autonomy around local decisions.

2.   Indigenous communities

The Committee heard that community-based services were also needed by Indigenous populations, both within their own communities and in urban centres. Many First Nations people leave reserves, often to escape the lack of adequate housing and employment opportunities, and arrive in urban centres without a social support network or experience in accessing the services they need to become established. Some transition back to their home communities and fail to find a pathway out of poverty in either location. Witnesses describing the concept of community hubs with navigators to help individuals and families, suggested that navigator services tailored to the linguistic and cultural needs of Indigenous peoples would be particularly helpful.

Beyond the profound need for housing, the Committee heard that infrastructure for Indigenous communities and northern regions, supported by flexible programs tailored to meet the cultural and social fabrics of communities, is also urgently required. The lack of adequate health care facilities, educational facilities, and community centres inhibits Indigenous communities from enjoying health and safety conditions, educational opportunities and social connections that are fundamental to their well-being. The Committee heard that an Arctic infrastructure strategy would serve to allow for a more cohesive approach to strengthening the social infrastructure of Indigenous and northern communities, as opposed to the more ad hoc piecemeal approach that has characterized many previous infrastructure projects. To address the infrastructure needs of Indigenous communities, the Committee recommends:

RECOMMENDATION 45

That Employment and Social Development Canada work in collaboration with Indigenous and Northern Affairs Canada to provide support to community-based services that can support Indigenous peoples who transition between reserves and rural communities and urban centres but lack the resources and skills to navigate access to housing, training and income supports.

RECOMMENDATION 46

That Indigenous and Northern Affairs Canada and Health Canada, in collaboration with First Nations communities, ensure that the physical and social infrastructure deficit on reserves is addressed by funding housing, schools, health care facilities and community centres.

G.  Recommendations Regarding a National Poverty Reduction Strategy

1.   Objective and focus of a national poverty reduction strategy

Several witnesses observed that, despite some success, little progress had been achieved in addressing poverty among certain vulnerable groups and recommended that a national poverty reduction strategy be focused on key sub-populations. Other witnesses recommended a national poverty reduction strategy be implemented broadly for all low-income populations. In order to address the needs of the various vulnerable groups living in poverty, the Committee recommends:

RECOMMENDATION 47

That Employment and Social Development Canada develop and implement a national poverty reduction strategy with a focus on alleviating suffering and ensuring that funding is directed towards the programs that have the greatest benefit for the greatest number of people, examining all vulnerable populations over-represented among those living in poverty, without a specific focus on only one single group, and that the strategy establish poverty reduction targets and measure progress based on a national definition of poverty and metrics.

2.   Definition and measurement of poverty

The Committee heard that the absence of a common definition of poverty and the lack of agreement with respect to how poverty is measured hinders the development of poverty reduction targets. Further, the Committee heard that rigorous measurement and assessment of programs was critical to reduce poverty in Canada. The Committee acknowledges the importance of clear measurable goals as well as rigorous assessment of government programs and therefore recommends:

RECOMMENDATION 48

That Statistics Canada, in consultation with provinces and territories, develop an official measure of poverty that includes elements of the low income cut-off, the low income measure, and the market basket measure, as well as indicators of the homeless population in Canada, and that Employment and Social Development Canada develop a national definition of poverty based on the official measure.

3.   Federal leadership and communications

The Committee also heard from witnesses that the federal government should assume a leadership role in reducing poverty, building upon the momentum created by provincial, territorial and municipal poverty reduction strategies and using its ability to launch broad national communication initiatives. To help guide the communications that the federal government will undertake in relation to a national poverty reduction strategy, the Committee recommends:

RECOMMENDATION 49

That Employment and Social Development Canada develop a business case that can be used to mobilize stakeholders, including provinces and territories, communities, the private sector, research organizations, non-government organizations and citizens that shows the cost of poverty to Canadian governments and businesses, and explains the need for further research, the need to renew efforts to address poverty, and the need to explore new innovative ways to achieve better results.

RECOMMENDATION 50

That Employment and Social Development Canada, in collaboration with employers with proactive hiring policies for persons with disabilities, initiate a communications strategy for employers to encourage the employment of persons with disabilities, including those with mental illness.

4.   Research and experimentation

The federal government has significant resources directed to research, but several witnesses noted gaps in research and information related to poverty and the dynamics within certain vulnerable populations. Moreover, there is no centralized information source to share new research, best practices or new innovative approaches to poverty reduction. The Committee therefore makes the following recommendations:

RECOMMENDATION 51

That Statistics Canada, following consultations with stakeholders, develop more studies on poverty-related issues including homelessness and provide information related to poverty and homelessness with greater frequency and deeper analysis.

RECOMMENDATION 52

That Employment and Social Development Canada create a learning hub, which will collect data and gather pertinent information from the provinces and territories, as well as internationally. The learning hub should identify what is working, support rigorous evaluation and research, and create a connected community of Canadians committed to poverty reduction.

RECOMMENDATION 53

That Employment and Social Development Canada explore the possibility of developing a federal innovation fund to support poverty reduction projects that develop new approaches, test new concepts and face a higher risk of failure.