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The Response of the Muncipal Public Service Sector to the Challenge of Immigrant Settlement

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The Response of the Muncipal Public Service Sector to the Challenge of Immigrant Settlement THE RESPONSE OF THE MUNCIPAL PUBLIC SERVICE SECTOR TO THE CHALLENGE OF IMMIGRANT SETTLEMENT By Frances Frisken, Professor Emerita of Urban Studies, Graduate Program in Political Science, York University and Marcia Wallace, Assistant Professor of Urban Studies, York University October, 2000 Revised May 2002 Funded by Citizenship and Immigration Canada, Ontario Region, OASIS The opinions and views expressed in this study are those of the authors and do not necessarily reflect the opinions and views of the funder. TABLE OF CONTENTS List of Figures…………………………………………………………………………..vii List of Tables……………………………………………………………………………vii Acknowledgements…………………………………………………………………….viii Executive Summary…………………………………………………………………….ix CHAPTER 1: INTRODUCTION 1.0 INTRODUCTION ....................................................................................................... 1 2.0 THE STUDY AREA.................................................................................................... 5 3.0 THE INSTITUTIONAL FRAMEWORK: MUNICIPAL GOVERNMENTS WITHIN THE CANADIAN FEDERAL SYSTEM.................................................. 14 3.1 Ontario Government responses......................................................................... 15 3.2 The Federal Government .................................................................................. 18 3.3 Local Government in the Toronto Area............................................................ 22 4.0 HOW MUNICIPAL AND REGIONAL COUNCILS HAD RESPONDED TO IMMIGRANTS ......................................................................................................... 23 5.0 THE CONDUCT OF THE STUDY AND THE STRUCTURE OF THIS REPORT29 References......................................................................................................... 31 CHAPTER 2: SOCIAL SERVICES 1.0 INTRODUCTION ..................................................................................................... 33 2.0 KEY ISSUES............................................................................................................. 34 2.1 Barriers to Service Delivery for Immigrants .................................................... 35 3.0 HISTORICAL AND INSTITUTIONAL CONTEXT............................................... 36 3.1 ........ The Delivery of Social Services in Metropolitan Toronto and the Regional Municipalities .................................................................................................... 38 3.1.1 Influence of the federal-provincial relationship....................................... 39 3.2 The Evolution of Social Services in Metropolitan Toronto.............................. 41 3.2.1 Responding to Immigrant Communities.................................................. 43 3.3 Social services in the regional municipalities................................................... 46 3.4 The impact of provincial spending constraints on immigrant services............. 48 3.4.1 Restructuring social services ................................................................... 49 4.0 FINDINGS................................................................................................................. 50 4.1 Administrative Structures for Service Delivery................................................ 51 4.2 Are Immigrants a Burden?................................................................................ 52 4.2.1 Overcoming the language barrier............................................................. 54 4.3 The Role of Community-based Organizations ................................................. 55 4.4 The Issue of Coordination across Regional Boundaries.................................. 57 4.5 The Role of Citizenship and Immigration Canada ........................................... 57 4.6 Funding for Social Services.............................................................................. 58 5.0 CONCLUSIONS........................................................................................................ 59 References......................................................................................................... 61 i CHAPTER 3: HOUSING 1.0 INTRODUCTION ..................................................................................................... 65 2.0 KEY ISSUES............................................................................................................. 65 2.1 Characteristics Influencing the Housing Search............................................... 65 2.2 Barriers to a Successful Housing Search .......................................................... 66 2.2.1 Problems of affordability......................................................................... 67 2.2.2 Difficulty in getting information.............................................................. 68 2.2.3 Language barriers .................................................................................... 69 2.2.4 Discrimination ......................................................................................... 70 2.3 Overview........................................................................................................... 71 3.0 HISTORICAL AND INSTITUTIONAL CONTEXT............................................... 71 3.1 Primary Role of the Private Sector .................................................................. 71 3.2 Alternative forms of government housing support ........................................... 73 3.3 The Role of the Federal Government................................................................ 73 3.4 The Role of the Ontario Government ............................................................... 75 3.5 Putting social housing in perspective............................................................... 76 3.6 Changes since 1995.......................................................................................... 76 3.7 The Growing Importance of Municipal Governments...................................... 78 3.8 Consequences for Rental Housing Supply........................................................ 80 3.9 Recent Trends in Rental Housing Supply......................................................... 82 3.10 Overview....................................................................................................... 83 4.0 FINDINGS................................................................................................................. 84 4.1 Demand for Low Rental Housing in the Greater Toronto Area ....................... 84 4.2 The Provision of Housing-Related Information and Other Types of Assistance ............................................................................................................................ 86 4.3 Strategies to Deal with Homelessness .............................................................. 87 4.4 Strategies to Increase the Supply of Affordable Rental Housing ..................... 89 4.5 Barriers to municipal action............................................................................ 90 4.6 Promoting New Roles for the Federal and Provincial Governments.............. 92 5.0 CONCLUSIONS........................................................................................................ 93 References......................................................................................................... 94 CHAPTER 4: PUBLIC TRANSIT 1.0 INTRODUCTION ..................................................................................................... 98 2.0 KEY ISSUES............................................................................................................. 98 2.1 Public Transit in Difficulty ............................................................................... 99 2.1.1 Political/professional indifference to the importance of transit as a means of transportation................................................................................................. 99 2.1.2 Severe financial constraints ..................................................................... 99 2.1.3 Urban development patterns are not supportive of transit..................... 100 2.1.4 A failure to account for the full costs of not providing public transit ... 101 2.2 Immigrants and Transit................................................................................... 104 2.2.1 Hiring and training of personnel............................................................ 105 2.2.2 The need for information ....................................................................... 105 3.0 HISTORICAL AND INSTITUTIONAL CONTEXT............................................. 107 ii 3.1 Transit in Toronto ........................................................................................... 107 3.2 Transit in the Greater Toronto Area................................................................ 108 3.3 A Persistently Fragmented Transit System..................................................... 109 3.4 Addressing the Land Use Issue....................................................................... 110 3.5 Changes in Provincial Policy.......................................................................... 111 4.0 FINDINGS............................................................................................................... 112 4.1 Personnel Policy.............................................................................................. 112 4.1.1 Toronto Transit Commission................................................................
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