APPENDIX A
Proposal for a
Reduced Fare Transit Pass
for Persons with
disAbilities
(Accessible
Transit Pass)
Prepared by the Accessible Transit Pass Work Group
of the Persons with disAbilities: A Community Coalition
Work Group Members: Lisa
Jamieson, CMHA Ottawa Branch; Brian Tardif, Citizen Advocacy; Terry Gilhen,
Disabled Persons Community Resources; Linda Osmond, Catholic Family Services;
Dave Tafel, Schizophrenia Society of Ottawa; Joann Michels, Carlington ACTT
program and Carlington Community Health Services; Donald Shultz, Psychiatric
Survivors of Ottawa; Jamie Grimes, Causeway.
Work Group Resource: Kathy Riley, OC Transpo, Accessibility Specialist
Approved
by the Accessibility Advisory Committee of the City of Ottawa
on
November 17, 2004
Background
Public transit is a critical part of our
City’s infrastructure that supports the quality of life for Ottawa residents.
Public transportation enables people to move throughout their day, to do what
needs to be done. The need for accessible public transportation
is well understood by people living with disabilities and the people and
organizations that support them. Accessible public transit provides the
critical link between employment and employment-related activities, education,
health care, recreation, community supports and family and friends. For people
with disabilities, accessible public transit is fundamental for ensuring
inclusion in the community. Public
transportation is the key to countering isolation and enabling independence.
Yet, for the many people with disabilities, public transportation remains
inaccessible.
The importance of transportation for people
with disabilities was the impetus that spurred the creation of the Community
Coalition. During the Para Transpo
strike in 2001, a number of organizations united to respond to the crisis. These groups became the founding members of
the Community Coalition. One of the
first tasks the Coalition undertook was to survey Ottawa residents with
physical and sensory disabilities to gain an overview of their community life
experiences. The resulting report, Maximizing our Assets (2002),
confirmed the importance of accessible public transportation.
Considerable gains have been made in the
accessibility of Ottawa’s transportation in the past few years. Ottawa “offers the highest level of para transit service per capita of any
Canadian city”. A number of accessible taxis
have been put on the road, the O Train and its stations are accessible and 43%
of the OC Transpo bus fleet is accessible, with even more accessible buses
coming on line in 2005. In April 2003,
a pilot project was undertaken by OC Transpo that extended free public transit
access to people using wheelchairs, scooters and walkers.
Our Vision/The City’s Vision
We applaud the City
of Ottawa and OC Transpo for the strides it is making toward accessibility in
the public transit system. We also
acknowledge the efforts of all the groups and individuals involved in helping
to influence these positive changes.
The initiative offering conventional transit free of charge to riders
using wheelchairs, walkers and scooters is the first step towards providing all
Ottawans with disabilities improved access to public transportation. The next step is to expand the eligibility
criteria to be inclusive and equitable for residents with diverse disabilities. Thus we proposed that a new pilot project be
introduced to replace the existing one.
The Persons with
disabilities: A Community Coalition envisions an accessible transit program for
OC Transpo that offers a reduced fare pass to people with disabilities who are
in financial need.
The Official Plan for
the City of Ottawa puts forward a vision for the City “to be recognized as a
municipal model of excellence by assisting Council in preserving and/or
enhancing the quality of life for our citizens through ensuring that programs
are managed for best value and optimal quality” (Ottawa Official Plan). Furthermore, the City of Ottawa’s
Accessibility Plan incorporates “the principles of the Ottawa 20/20 Growth
Management Plan in promoting a caring and inclusive city by helping every
citizen have improved access to basic needs such as housing, transportation,
health services, and enhancing residents’ participation and awareness in
healthy activities and diversity opportunities.”
This proposal, for a
reduced fare “accessible transit pass”, reflects our Coalition’s vision to
provide an equitable and inclusive public transportation program for people
with disabilities. This proposal
provides an opportunity to support the broader goals of the City of Ottawa’s
vision in the Official Plan and make Ottawa a national leader in transportation
accessibility. It provides a more
equitable means of demonstrating concrete support for the City’s Accessibility
Plan and enhancing residents’ participation in healthy and diverse opportunities.
An
Accessible Transit Pass
A number of smaller Ontario municipalities
have special passes and/or reduced fares on conventional transit for people
with disabilities. We reviewed the programs of Kingston, North Bay, Thunder
Bay, Sudbury and Guelph. As well, the
City of Edmonton has recently initiated a pilot project to provide subsidized
transportation to individuals receiving Alberta disability pensions. A review of these programs has helped us to
develop a proposal for the City of Ottawa. (See Appendix 1).
Proposed
Eligibility
The proposed eligibility criterion for an
accessible transit pass is for an adult with a recognized disability who has an
income under the poverty line (low income cut off). Individuals who can
demonstrate receipt of disability benefits from the Ontario Disability Support
Program would automatically qualify, as this program verifies both disability
and income. People receiving CPP Disability may have to demonstrate income
eligibility, as it is possible that their CPP Disability income could be
supplemented with private insurance or other assets. The reduced fare pass would be only for the individual with the
disability and not the whole benefit unit (household).
As well, people with disabilities who are
working poor or who have a private disability pension which is under the low
income cut off would also be eligible.
These individuals would need to provide proof of disability (e.g.
doctor’s letter) as well as proof of income (e.g. income tax forms) in order to
qualify. For an individual to be
eligible, his/her income would be less than $18,371 (2000 Stats Canada
data).
Individuals with permanent disabilities
should not be required to re-confirm medical eligibility. However, financial eligibility would still
need to be re-confirmed.
Definition
of Disability
We propose to the use the definition of
disability as provided by Bill 118 Accessibility for Ontarians with
Disabilities Act (same definition that is currently in the ODA). Since municipalities and public transit are
required to comply with this legislation, it seems the most appropriate
definition to use. A disability is
defined as:
(a)
any degree of physical disability,
infirmity, malformation or disfigurement that is caused by bodily injury, birth
defect or illness and, without limiting the generality of the foregoing,
includes diabetes mellitus, epilepsy, a brain injury, any degree of paralysis,
amputation, lack of physical co-ordination, blindness or visual impediment,
deafness or hearing impediment, muteness or speech impediment, or physical
reliance on a guide dog or other animal or on a wheelchair or other remedial
appliance or device,
(b) a
condition of mental impairment or a developmental disability,
(c)
a learning disability, or a dysfunction
in one or more of the processes involved in understanding or using symbols or
spoken language,
(d) a
mental disorder, or
(e)
an injury or disability for which
benefits were claimed or received under the insurance plan established under
the Workplace Safety and Insurance Act, 1997; ("handicap")
Proposed
Rate
The monthly transit pass rate for an
accessibility pass should be equivalent to the seniors’ rate of $25.75. This pass should permit access during peak
hours, as a number of people with disabilities are attending employment related
activities, sheltered employment or part time work and need to travel during
business hours.
Administration
The verification of eligibility could be done
by OC Transpo staff at the 4 Sales and Information Centres (Place D’Orléans,
St. Laurent, Rideau Centre and Lincoln Fields).
Currently OC Transpo uses a cost recovery
administration system for its other passes, by charging a fee for the photo
card. Although the administration costs
for an accessibility pass would be greater than for existing passes, it would
be contrary to the intent of this proposal if the photo card fee was any higher
than it is for current passes.
The pass could consist of a photo
identification card with an accessible transit pass designation on it, similar
to the seniors pass. One way to
administer the pass would be to have a photo card that would be punched each
month that a pass was purchased. This
would ensure that customers could only buy one pass per month, thereby reducing
potential misuse of the pass. Once the
person has obtained this accessible transit photo card they would purchase a
reduced fare pass at the locations where bus passes are sold. The photo identification card would have to
be renewed (every 2 years) to confirm continuing eligibility.
A policy for replacement of loss cards would
have to instituted that was responsive to users’ circumstances while
maintaining the integrity of the program.
Evaluation
In order to determine the full impact of this
pilot project, a formal evaluation component should be planned and implemented,
from the outset. The evaluation method
should be sufficiently broad to examine the health and social benefits of a
reduced-fare accessible transit pass.
We are pursuing other funding sources to fund the development of an
appropriate evaluation framework and the implementation of the evaluation.
Rationalizing an
Accessible Transit Pass
The Work Group began with the assumption that
extending a reduced fare pass to people with disabilities did not necessarily
mean that there would be losses in fare revenue for OC Transpo. We know, anecdotally, that many people with
disabilities do not purchase a bus pass because they cannot afford one. Theoretically, if sufficient numbers of
people with disabilities who currently do not purchase a transit pass did buy
an affordable pass, then the accessibility program would have no impact on fare
revenue.
Survey to Determine Potential
Users of a Reduced Fare Accessible Transit Pass
The Coalition’s Work Group conducted a survey
of services in the mental health and developmental disability sectors to
develop an estimate of potential users of a reduced fare pass. (To date only
the mental health data has been fully submitted and compiled.) Fifteen different mental health services,
representing more than 2,998 separate clients, responded. From this survey, it is estimated that 36%
of mental health service clients are currently buying a bus pass. Service
providers estimated that an additional 42% of clients (1,249 people) would buy
a pass if it were more affordable. The
majority of respondents indicated that an “affordable” pass should cost the
same as the seniors pass: $25.75.
The survey respondents indicated that their
clients use, and would use, public transit for medical appointments, support
groups, work, pre-employment activities, schooling, volunteering, recreation
and the other activities of daily living such as groceries (or food banks),
laundry, banking and visiting friends and family.
The survey results, from just one service
sector, revealed that a considerable number of people with disabilities are
likely to become regular transit riders if they could purchase a reduced fare
pass. The estimated numbers from this
simple survey suggest that, while our initial hypothesis of no impact on fare
revenues may not be valid, that the anticipated reduction in fare revenues for
OC Transpo may not be as great as some assume, particularly when the additional
potential revenues are considered.
A preview of the initial data from the
developmental disability sector paints a different transit usage pattern. Data from 2 supportive housing programs and
1 work program suggest that more than half of the clients (26 out of 50)
already buy a pass and that only 3 out of 50 would buy a pass if it were more
affordable. Anecdotal evidence supports
the view that many adults with developmental disabilities are already buying a
bus pass.
Potential
Fare Revenue Losses and Gains
This proposal seeks to replace the existing pilot
project that offers free public transit for people using wheelchairs, scooters
and walkers. An expanded, more
inclusive accessible transit program with reduced fares means that
approximately 200 people utilizing the existing program will be required to pay
a reduced monthly transit fee. The
potential revenue from this change would be approximately $61,800
annually.
Additional revenue will be realized by the
reduction in the 20% transfer payments that the City currently makes to the
province to cover the medical transportation allowance under ODSP. Just 11%, or 1,744 of the 15,216 ODSP
recipients in Ottawa receive an allowance for travel to medical appointments
(data provided by ODSP Statistical Analysis Unit). The City would realize a savings of approximately $7.60 in
transfer payments to province for each ODSP recipient who currently receives a
medical transportation allowance for the current bus pass amount. (estimated 350 people, based on ODSP data
which indicates 400 recipients have med tran allowances of $63 or more). The City would also save transfer payments
for those on ODSP who are currently receiving medical transportation allowances
between $26 and $63, as these individuals
would be able to purchase a reduced fare pass. (estimated another 1,000 people
at a savings of $3.80 each) .
Thus, based on the survey estimates and the
potential savings and revenue, this proposal may have minimal direct costs
associated with it while offering incredible opportunities to people with
disabilities. Obviously, it is very
challenging to predict the potential uptake of a reduced fare transit pass and
so the full impact to OC Tranpso fare revenues is, at present, unclear. By
offering the reduced fare passes as part of a pilot project, it will enable the
community, OC Transpo and City Council sufficient time to study the impact and
to determine the actual costs of the program.
Accessibility
includes Affordability
We know that many individuals and families on
Ottawa are struggling with low incomes.
Adults with disabilities are even more likely to be living in
poverty. For these individuals, their
disability and the accompanying low income make access to public transit
particularly difficult. Using 2001
Statistics Canada data, we know that nearly 17,000 adults with activity
limitations in Ottawa have incomes under the poverty line. Using this data, we can see that adults
with disabilities are almost twice as likely to be living in poverty
than the general population.
But the Stats Canada data does not reveal the full picture of
disabilities and poverty in Ottawa.
The Activity Limitation statistics fails to include people living in
institutions, including “facilities for persons with a disability, shelters for
persons lacking a fixed address, and lodging and rooming with assistance
services." So for instance, none
of the 1,200 people living in the City’s domiciliary hostels would be captured
the data presented below. Thus, the
poverty rate of people with disabilities would actually be greater than 24%.
Number of Adults with
Activity Limitation in Ottawa Number of Adults with Disabilities & Incomes below
LICO LICO rate for Adults with an Activity Limitation in
Ottawa (vs. general
population) 69,835 16,760 24% vs 13% Data source: Statistics
Canada, 2001, via Social Planning Council
(ages 15-64)
Recent data from the Ontario Disability
Support Program indicates that there are 15,216 core beneficiaries in the
Ottawa area. We know that all of these
individuals/benefit households would have incomes under the Low Income Cut Off.
People receiving ODSP benefits who live in
group homes and domiciliary hostels receive only $112 per month for a personal
needs allowance (room and board is paid directly to the home). Anecdotal evidence suggests that many adults
with developmental disabilities are purchasing express passes at $78 /month, so they can attend work and day
programs. This leaves just $34 dollars for the rest of the month for all
other necessities (toiletries, recreation, clothing). Other anecdotal information suggests that some families of adults
with developmental disabilities are helping with transportation costs because
otherwise it would be impossible to afford.
Other people with disabilities have similar unfathomable financial strain. For most receiving ODSP benefits, rents will be considerably higher than the $414 per month housing allowance. Depending on housing costs, there is very, very little left over for food and other bills. Those who do purchase bus passes at full fare will often do so by taking money from their food budget. Thus, they must rely on food banks to get them through the month.
Health and Social Benefits
The above
situation provides just one example of the potential health and social benefits
of a reduced fare bus pass for people with disabilities. More money for food will result in reduced
food bank visits and/or potential health gains from a better diet. Less strain on already meager incomes will
reduce financial pressures and result in less financial crises such as rent and
utility arrears. Access to
transportation will mean that people can follow through with medical advice to
attend medical appointments, drop-ins and support groups, recreation programs
or meet with friends and families. Being able to have access to public transit
will reduce isolation. This can achieve
direct health care savings, as isolation leads to a decline in health.
Accessible transit will enable people with disabilities to participate in the
community in a number of ways.
Volunteering, going back to complete school and pre- employment
activities all may be the gains that could not be attained without a reduced
fare transit pass. Ultimately, reduced
fare accessible public transit will bring the City much closer to its vision of
becoming an inclusive and accessible community.
Possible
Funding Partners
It is requested that OC Transpo, and thus the
City of Ottawa, initially cover the administration costs associated with this
pilot program. We suggest that some of
the Gas Tax Revenue be earmarked for this pilot project.
We will approach funders to request funds for
the development of an evaluation plan and then the implementation of an
evaluation of the pilot program. The evaluation would study the health and
social benefits associated with a reduced fare program for people with
disabilities. We are planning to
approach the United Way, Trillium and
the Community Accessibility Program of the Ministry of Citizenship.
With an evaluated pilot project that
demonstrates concrete gains, we believe that we would then be in a strong
position to approach the Federal and Provincial government for a funding
partnership to support the program on an on-going basis.
Conclusion
This proposal for a reduced fare transit pass
for people with disabilities is based on the Coalition’s vision of an
accessible transit plan that is inclusive and equitable. It is in keeping with the City of Ottawa’s
20/20 Vision Statement and with the City’s Accessibility Plan. We believe that it is a plan that can be
accomplished, and must be accomplished, if Ottawa residents with disabilities
are truly able to participate fully in our community.
Appendix 1 Disabled Bus Passes in Other Communities
Information Gathered August 2004
|
City |
Disabled Pass Fees |
% of Regular fee |
Qualifications |
Administration/Comments |
|
Guelph Pop. 110,000 Contact: Disability Resource Coordinator – Betty Richard 519 822-1260 ext. 2488 also see – Director of Transportation (program started in 2000 as a 1 year pilot and has been going ever since) |
Disabled pass $30/ month no discount for tickets |
54%of the regular month pass of $55 |
To qualify: 18-64 have a disability, as defined by Stats Canada have a professional reference letter confirming disability provide proof of income - for singles, $12,000 |
Subsidies for the difference between the regular fares and the disabled fares are provided by the City and by the United Way. They are serving approximately 244 people a month, with approx. 2,900 discounted passes being purchased each year. Applications administered through Disability Resource Coordinator – considerable work, particularly with updates, reapplications as people are moving all the time. There is a committee that reviews applications (including ODSP & Family Support Services) Approved applications are sent a letter, and they are put on a list – people can get their pass at 2 locations –one is ARC industries For people applying for ODSP, they can be granted a 3 mth temporary pass If person doesn’t purchase a pass for 3 months they are taken off list and someone from the waiting list can get a pass Only available on regular transit service and does not apply to Guelph Mobility Services as this is already being subsidized at approx. $13 per ride |
|
Kingston |
Disability pass $44/ monthly pass (same as seniors rate) also can be used to purchase discounted tickets |
67% of regular monthly fare of $65 |
ODSP recipients CPP Disability |
Administered by March of Dimes, with no funding – this form of administration not sustainable and so it is being transferred to City |
|
City |
Disabled Pass Fees |
% of Regular fee |
Qualifications |
Administration/Comments |
|
Thunder Bay Population 100,000 Contact: TB Transit Louise Nastor (807) 684-2188 |
$55 monthly fee, for disabilities (same fee for students and seniors – called “discount” category ) |
84% of regular fee of $65 per month |
Disabled persons with a valid Disabled Person Transit ID card – cost $5 – one time, doesn’t have to be renewed. Person has to show ODSP or CPP-D stub, (they keep a copy on file) handicapped parking permits not acceptable. Card has photo on it, have to show it to purchase discount pass and show it on the bus along with the discounted pass Starting a program where attendants can ride free if to help with getting on and off bus – requires doctor’s letter |
This discounted fare has been around for 15 years or so, and originally was started as a disabled pass (back then seniors rode for free). Then to simplify, all seniors, students and disabled all put together. Some disabled people receive their passes through the Public Guardian or a Lutheran Agency which handle money for their clients. The agencies send a list of people for whom they are purchasing the pass, and then the transit company bills those agencies. Overtime, they have raised the “discounted” price, but holding the line on the regular fare. There used to be a greater discount for the discount pass. There are concerns about the administration requirements.
Estimated about 310 disabled people use the pass, but uncertain – they sell about 600 discounted passes per month, about half they estimate to be for disabled. Annually, they sell more passes in the discounted category (6,856) than they do in the regular adult category (5,000) |
|
Sudbury |
Seniors and Disabled $40/month or a $20 annual pass can be bought (like an ID) that allows the disabled to pay a reduced fee for cash and ticket fares |
61% of regular fee of $65 for monthly pass |
|
City |
|
City |
Disabled Pass Fees |
% of Regular fee |
Qualifications |
Administration/Comments |
|
North Bay |
“Reduced” $50/month |
66% of regular $75 monthly pass |
This category includes seniors and “approved disabled” applicants who have completed a form and been approved by City Administrator – City ID card is used to purchase monthly pass –no cost of ID card? |
City of North Bay |
|
Edmonton 12 month Pilot project July 04- June 05 |
$29 per month – AISH recipients have to authorize the ministry to deduct $29 per month from their bank account |
49% or the regular pass of $59 /mth |
Severely Handicapped Recipients – AISH – provincial income support |
$400,000 approved to cover the anticipated fare box revenue loss Joint project of the City of Edmonton/ETS and the Alberta Human Resources and Employment |
Appendix 2 : More Ottawa data
City of Ottawa population: 774,072
% of people with disabilities (based on Canadian data, Stats Canada 2001) – age 15 to 64 – 10%
(overall disability rate in Ontario – Stats Canada, 2001 – 13.5% of
total population)
Ottawa population, ages 15-64 with activity limitations: 13%
% of all people, ages 15-64 who
live under the LICO in Ottawa: 13%
% of people with disabilities who live under LICO: 24%
ODSP Caseload in Ottawa – in 2004 - 15,216 core beneficiaries
CPP-Disability caseload in Ottawa area: 7,300 adults. We do not currently have figures on how many CPP Disability recipients are also receiving ODSP (duplicate counting). Also, a number of people of CPP-Disability would have incomes over the Low Income Cut Off, as they may have other sources of income.
% of Ontario-wide ODSP Caseload that has a “mental disability” 54% (18%
of this are people with developmental disabilities)
Family Size/Low
Income Cut Off
1 - $18,371
2 - $22,964
3 - $28,560
4 - $34,572
5 - $38,646
6 - $42,719
7 - $46,793
Mental
Health Sector
Estimated Transit Pass Revenue
|
Annual revenue from current pass purchasers ($63) |
Potential annual revenue from an Accessible Pass ($25.75) |
|
$820,260 |
$721,200 |
|
Annual Difference |
-$99,060 |
