Throughout its study the Committee heard how our aging society presents both challenges and opportunities. The Committee gained insight into the current state of income insecurity and social isolation, the measures currently used to address these issues, and recommendations on how all levels of government can do better. A wide range of views were presented during this study, from government officials, community advocates, provincial and municipal leaders, researchers, academics, front-line service providers. Most importantly, the Committee also heard from seniors and older adults themselves.

The following recommendations are not intended to comprise a national seniors strategy. Rather, 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 or pan-Canadian strategy should include.

A. Recommendations regarding income security

The Committee heard repeatedly that providing adequate incomes to vulnerable seniors is a complex challenge; it is a function not only of the dollar amount of any income transfer, but also of the cost of housing in any community and out-of-pocket costs of necessary home care and health services.

1. Income support programs

Witnesses told the Committee that the federal income support system consisting of OAS, GIS and the CPP/QPP is a great public policy success story, but that in the 21^st century the system requires updating. Numerous witnesses underscored the need for income support programs to be well coordinated with application processes that are client centred and rules and procedures that are easy to understand. The Committee heard that our retirement income system needs to be more coherent and transparent; to better target vulnerable populations; and to incentivize labour force participation for those who are able and want to continue working.

In this regard, the Committee welcomes recent announcements that the federal and provincial finance ministers have agreed, in principle, to measures that will protect the value of CPP retirement benefits during periods of low or no earnings (e.g. when caregiving responsibilities or disability impact work), but notes that the details of such measures have yet to be made public and will require further study.[371]

Recognizing the concerns and suggestions made by witnesses to improve the retirement income system, the Committee recommends:

Recommendation 1

That Employment and Social Development Canada work with Finance Canada and the Canada Revenue Agency to review and strengthen existing federal income support programs for vulnerable seniors to ensure they provide adequate income. In strengthening existing programs, the Committee recommends that the government:

• Increase resources to Service Canada and the Canada Revenue Agency, particularly for telephone and in-person services, as well as public education to ensure that all seniors get the benefits to which they are entitled and within reasonable timeframes.
• Implement a public education campaign and train Service Canada personnel to ensure vulnerable seniors understand the rules related to the Guaranteed Income Supplement and Registered Retirement Savings Plan withdrawals.
• Provide information and education to encourage those who are financially secure to delay receiving Old Age Security.
• Review the indexation of the Guaranteed Income Supplement and Old Age Security to achieve the appropriate balance between price and wage indexation.
• Continuously review and update the Guaranteed Income Supplement benefit to ensure that:
  • a)    vulnerable seniors receive adequate income; and
  • b)   the impact that marital status can have on recipients is assessed and understood.
• Increase the Working Income Tax Benefit to help lower earning individuals fund their Canada Pension Plan.

Recommendation 2

That Finance Canada work with Employment and Social Development Canada and the Canada Revenue Agency to completely and comprehensively review the system of tax measures and incentives related to seniors with a view to increasing transparency and assessing the most efficient, effective and fair means and ways to deliver support.

Recommendation 3

That the federal government, and all responsible departments, work to tighten the rules and regulatory environment which has allowed some employers to under-fund the pensions of their employees, and to ignore their pension obligations under current law and practice.

Recommendation 4

That the federal government review the impact of the Canada Pension Plan expansion with respect to seniors eligibility for and level of benefit from the Guaranteed Income Supplement.

Recommendation 5

That the federal government better inform families on their eligibility to claim the Canada Pension Plan Death Benefit.

2. Helping seniors who want to remain active in the workforce

During the course of its study, the Committee heard that paid employment can be an important component of income security for those seniors who wish to work. Moreover, paid employment can also create and nourish social networks and combat isolation. In order to encourage and support those who still wish to work, the Committee recommends:

Recommendation 6

That the Department of Employment and Social Development increase the amount that Guaranteed Income Supplement recipients can earn before the benefit is reduced, include self-employment earnings in this amount, and explore options to have the claw-back phase in more gradually once the earnings threshold is reached.

Recommendation 7

That Employment and Social Development Canada and all relevant departments ensure that the decisions they make for and about seniors, pay special attention to the wishes of seniors – and with particular attention to seniors in the workforce. This includes:

• adopting a seniors lens with respect to growing workplace opportunities for seniors;
• ensuring seniors have accommodating working conditions; and
• ensuring workplaces are compliant with applicable rules.

3. Financial products and services

During the course of its study, the Committee heard that having access to essential and well-regulated financial products and services as well as strong financial literacy skills were pivotal to ensuring the well-being of vulnerable seniors. The Committee notes the concerns and suggestions outlined by witnesses in this regard and recommends:

Recommendation 8

That Employment and Social Development Canada work with Finance Canada, the Canada Mortgage and Housing Corporation and the Canada Revenue Agency to develop specific policies and plans for monitoring and protecting seniors from financial abuse and to measure the effectiveness of such policies and plans.

Recommendation 9

That the federal government direct banks and other financial institutions in Canada to develop a system to recognize and prevent financial abuse of seniors, including increased staff training.

B. Recommendations regarding housing

Aging in place, in communities in which seniors have social connections that mitigate against isolation, requires affordable and accessible housing. Although the National Housing Strategy was announced after the Committee’s hearings had concluded and the deadline for written submissions had passed, witness proposals, particularly with respect to accessibility, went beyond the steps announced in that strategy. In addition, while it is recognized that federal officials before the Committee signalled that forthcoming legislation will address accessibility challenges, witnesses also had specific proposals to expand the supply of affordable, accessible and innovative housing models that could support older Canadians from independent living through to palliative, and end-of-life care. Furthermore, witnesses highlighted the importance of coordinating seniors housing initiatives with ancillary services and supports. The Committee recognizes the critical role affordable and accessible housing plays in income security and further supports the desire of Canadians to age in place and therefore recommends:

Recommendation 10

That the federal government take a leadership role in its interactions with other levels of government and housing enterprises and strongly encourage all non-profit and for-profit builders, provinces, territories, municipalities, and other organizations to set universal accessibility building standards that meet the accessibility needs of Canadians.

Recommendation 11

That the Canada Mortgage and Housing Corporation provide strong incentives for construction and renovation by both for-profit and non-profit owners and organizations that will increase the number of collective dwellings for seniors that are both accessible and adaptable.

Recommendation 12

That the federal government designate a proportion of funding allocated through the National Housing Strategy, the National Sciences and Engineering Research Council and the Canada Mortgage and Housing Corporation Affordable Rental Innovation Fund for research on innovative approaches to seniors housing (e.g. co-housing and shared spaces).

Recommendation 13

That Canada Mortgage and Housing Corporation expand its data and research programs to include rental housing for seniors and innovative models of accessible housing. Moreover, that the Corporation proactively distribute data and research on promising practices to investors and stakeholders who build and manage housing for seniors across the care continuum.

Recommendation 14

That Canada Mortgage and Housing Corporation explore innovative and emerging trends in seniors housing, including co-housing, intergenerational housing, and any other promising models. It should communicate the results of these efforts broadly.

C. Recommendations regarding home care

Witnesses from a wide range of organizations and professions described the vast differences across provinces and territories in the availability, affordability, and level of home- care services. Many also described the savings that could be achieved by supporting seniors in their homes and communities, rather than placing them in long-term care facilities or hospitals. While witnesses welcomed the recent allocation of funds for home care in the bilateral health accords being signed with provincial and territorial governments, it was noted that funding arrangements for health still place a much higher priority on acute and long-term care.

In addition, witnesses spoke of the need to expand the range of services covered by provincial health insurance plans. The Canada Health Act states “the health care insurance plan of a province must insure all insured health services provided by hospitals, medical practitioners or dentists,” it continues “and where the law of the province so permits, similar or additional services rendered by other health care practitioners.” Thus the Act allows health care insurance plans to include other professionals, including occupational therapists, audiology and speech therapy professionals.[372]

Many witnesses were optimistic about the potential for technological innovations to make home care more accessible for seniors in smaller or more remote communities, and for any seniors whose needs confine them primarily to their homes, and called for federal support for the development and dissemination of such technologies. Further, witnesses proposed that multi-disciplinary teams, regular assessments and engagement of the seniors themselves and any family or friends providing support to them in the development of a home care plan would improve the quality of care while also reducing costs. In addition to health and social supports, the Committee heard that assistance with activities of daily living may be required, including meal preparation and snow removal. Finally, witnesses identified the growing demand for home care workers and other professionals who specialize in caring for seniors.

Recognizing the concerns and suggestions made by witnesses in relation to home care the Committee recommends:

Recommendation 15

That the federal government work with federal, provincial, and territorial ministers responsible for health and responsible for social programs to develop pan-Canadian guidelines for home care services to be provided to seniors, regardless of where they reside in Canada.

Recommendation 16

That Employment and Social Development Canada and Veterans Affairs Canada work with other governments to explore expanding the lessons learned, innovative approaches, and new ideas from the Veterans Independence Program such that they inform other seniors assistance programs throughout Canada.

Recommendation 17

That Employment and Social Development Canada convene provincial, territorial and Indigenous government departments with responsibility for labour and training to develop a certification process and comparable standards for working conditions for home care workers, with a view to increasing the quality and supply of home care workers.

Recommendation 18

That the federal government, through Indigenous Services Canada, the Correctional Service of Canada and Veterans Affairs Canada and any other appropriate federal agencies, model the interdisciplinary approach to providing long-term care, and share promising practices with all stakeholders involved in providing long-term care.

Recommendation 19

That the federal government, recognizing the importance of seniors living on their own, significantly fund research, development and scaling of technology that provides social and health supports to seniors in their homes through the National Sciences and Engineering Research Council, the Strategic Innovation Fund and other research organizations.

D. Recommendations regarding informal caregivers

Witnesses described the enormous contribution informal caregivers – family members, friends and/or volunteers – provide to seniors needing support in their homes or care facilities. They emphasized the burden on these caregivers who often are trying to balance paid employment with their support for the senior needing care. In order to better recognize and support the valuable contributions of informal caregivers the Committee recommends:

Recommendation 20

That the federal government, in its role as an employer, implement model job security protections for employees whose family commitments include long-term caregiving for a family member.

Recommendation 21

That Finance Canada and the Canada Revenue Agency improve awareness of the Canada Caregiver credit and make it refundable.

E. Recommendations regarding age-friendly communities

While testimony focussed largely on the needs of individual seniors in their homes and other residential facilities, several witnesses flagged the importance of the broader context – the communities in which these homes and facilities are located. To overcome the negative effects of social isolation, witnesses told the Committee that there need to be social and other services that can be accessed by walking and/or by public transit. These and other aspects of an age-friendly city mean that people with mobility and other impairments can be active in meeting their own social and practical needs.

Witnesses identified public transit routes and the accessibility of transit vehicles and stops and stations as especially important when seniors are unable to drive themselves. The Committee also heard testimony related to the importance of relevant services – including grocery stores and others, community centres and health facilities being available and accessible in the community.

The Age-Friendly Communities Initiative promoted by the Public Health Agency of Canada and Employment and Social Development’s New Horizons for Seniors Program were cited by several witnesses as important contributors to initiatives that develop and support age‑friendly communities. Moreover, witnesses called for the continuation of both initiatives and expansion of the mandate and available funding under the New Horizons for Seniors Program. In order to further support communities to advance inclusion and well-being the Committee recommends:

Recommendation 22

That the federal government in collaboration with other governments support the co-location of housing with seniors health services and other seniors services, particularly in its work on infrastructure and community projects.

Recommendation 23

That Canada Mortgage and Housing Corporation study age-friendly communities and zoning practices in conjunction with the provinces/territories and municipalities with an objective of understanding how these policies shape the landscape for age-friendly practices and programs, their impact on seniors, and their long-term effects on land use, co-location of other seniors services, and quality of life.

Recommendation 24

That the federal government continue to support and enhance the New Horizons for Seniors Program, with additional priorities that include: seniors at risk of social isolation, volunteer recognition in Indigenous communities, sustaining existing successful programs and fostering innovation.

F.   Recommendations regarding a national strategy

The Committee heard time and again that there is a need for the federal government to work with other levels of government and stakeholders towards a comprehensive and integrated strategy to advance inclusion and well-being of seniors. Moreover, witnesses underscored the important contribution the federal government could make in the development of a pan-Canadian strategy by exercising leadership in various roles, most notably: as convenor, coordinator, legislator and policy maker. Accordingly, the Committee recommends:

Recommendation 25

That the federal government devote resources to Employment and Social Development Canada and the National Seniors Council to develop a pan-Canadian Seniors’ Strategy that includes:

• A vision for aging with dignity;
• Monitoring and disseminating information on promising practices in Canadian and international contexts;
• Promoting partnerships between governments and stakeholders, in areas that include, for example: transportation, access to services and initiatives that address social isolation.

Recommendation 26

That the federal government help address social isolation among seniors through a national volunteer program.

Recommendation 27

That Service Canada review and, where necessary, improve their services to seniors living in rural communities, including education, communications and delivery of benefits.

Recommendation 28

That the federal government review all seniors programs in an effort to reduce duplication of service provision across the federal government, reduce competing programs with provincial/territorial and municipal governments, and look for ways to eliminate duplicative efforts in services.

Recommendation 29

That the federal government direct, and specifically resource, Statistics Canada to develop an agenda to collect data and conduct research on the most pressing seniors data which the federal government does not currently possess, notably data on the most vulnerable seniors, including but not limited to First Nations, Inuit, and Métis; racialized minorities; immigrants; linguistic minorities; and members of the LGBTQ2 community, and consider investing in advanced data models, e.g., LifePaths.