Chapter 1 2 Compendium of Recommendations This chapter lists all the recommendations of the Commission of Inquiry and summarizes the basis on which each has been made . The recommendations are designed to restore Unemploymen t Insurance to its original concept and to place it in the context of a strategic plan for comprehensive human resource development . Unemployment Insurance has the pivotal role in the income security system of this country . Consequently, reform of the current program must be accompanied by changes in other programs concerned with human resource development and income security . Chapter 1 : What We Hear d Chapter 1 presents a resume of what participants said during the public hearings about the problems of unemployment and the Unemployment Insurance program . There was strong consensus that Unemployment Insurance is and will continue to be needed . At the same time we were assailed with complaints and grievances about the program . There was virtually universal condemnation of the complexity of the Act and regulations, and strong and opposing positions on the nature and purpose of the program itself. Some saw the program as attempting to meet too many social objectives, and called for a return to the basic principles of insurance . Others wanted these social aspects of the program expanded . The consultation process focussed the field of debate on several issues, including the program's objectives, inequities, incentives, the imbalance between the government's role and that of the premium payers, and inadequacies in the program's delivery . Chapter 2 : Employment and Unemployment Chapter 2 presents an overview of unemployment, its nature an d scope, and the interplay between rising expectations for jobs and the growth in the number of jobs available . The chapter shows that unemployment is a significant problem - a problem which annually affects one in four Canadians who want to work . The risk of unemployment is greater for those with lower levels of education, particularly youth, older workers, and workers in industries, occupations or regions facing structural transformations . Examination of the operation of the Unemployment Insurance program itself shows three patterns of usage that suggest problems within the design of the program . These patterns are specific to short-term workers, those on industrial layoffs with recall, and full-year workers who exhaust their benefits . What are the needs of the unemployed? Quite simply, they need jobs, money, skills and increased options in the labour market . Meeting all the needs of the unemployed is a task well beyond the scope of an Unemployment Insurance program . Unless reform of the current program is undertaken as part of a broad, integrated human resource development 304 PART N : CHAPTER 12 strategy, it can be no more than a token effort, almost certain to fall short of its objective . Part II of the report focusses on the need for a comprehensive human resource development strategy . Chapter 3 : Job s This chapter looks at full employment, at employment development strategies and, in particular, at job creation . It is pointed out that the demand for jobs can be met only if there is economic growth and if that growth keeps pace with growth in the labour force . Economic growth, in turn, requires a high and sustained level of investment . In recent years, investment in Canada has not been sufficient to achieve both increased productivity and expanded employment opportunities to match the growth in the labour force . Unemployment can be truly resolved only in an environment characterized by economic growth . All industrialized countries are finding it difficult to eliminate unemployment . As a result, there is a gro ing lack of confidence in traditional fiscal and moneta ry policies . (The task of stabilizing the economy at a low level of unemployment is difficult but essentialnd in attempting to achieve this objective, new solutions to old problem s appear necessary . One possible alternative which has been persuasively argued involves revenue sharing . This entails workers agreeing to accept part of their remuneration as a share of the firm's profits rather than a s ,, wages . This approach increases the stability of employment and has bee n successfully adopted in Japan and Korea and is gaining in popularity in the United States . Recommendations 1 2 3 Economic policies should give high priority to raising the rate of growth of the economy, in recognition of the role of economic growth in creating employment opportunities . Particular attention should be paid to policies that would ensure : • a high and sustained volume of investment ; an d • sufficient improvement in productivity to maintain or improve Canada's competitive position in the world . Full employment should continue to be a primary objective of fiscal and monetary policies . Profit or revenue sharing as a component of total earnings of labour should be encouraged and the treatment of income from these schemes by Unemployment Insurance and Revenue Canada should encourage their introduction . The problem of regional unemployment is currently approached in two ways . The first is through regional economic development initiatives that attempt to increase the productive capacity of regions by subsidizing industry to locate or expand there . The second is through job creation programs, which are a more temporary response to regional unemployment, involving short-term projects that provide jobs . Regional economic development policy has concentrated on grafting large firms onto depressed regions . In many of these cases subsidies are required on a continuing basis to offset the inherent competitive disadvantages of these regions . Current programs do not COMPENDIUM OF RECOMMENDATIONS 30 5 seem to provide much support to the growing service and small business sectors . An attractive alternative would be to invest in increased productive capacity and a higher level of employment by supporting community economic development initiatives such as Community Economic Councils and Community Development Corporations . These community-inspired initiatives have the advantage of building on local strengths, and the employment that they create becomes part of the fabric of the local community . There is evidence from both British and French experience that the unemployed can be successful in creating their own jobs by starting their own businesses . In cases where the unemployed have a sound business plan, Unemployment Insurance rules and regulations should encourage their initiative . Recommendation An industrial and regional development strategy should be designed with the following 4 characteristics : • A substantial proportion of regional and industrial assistance should be directed to new and to small businesses, including those in the non-manufacturing sector . • Community economic development initiatives should be funded, at least in part, from funds released by phasing out regionally extended benefits . They should be undertaken in a manner that ensures local control and should be widely available to communities in Canada . • Initiatives that assist the unemployed to start their own business enterprises should be encouraged . Job creation programs have come in all shapes and sizes and have been designed with the best of intentions to meet a large number of specific problems . They have always been considered a "temporary" response to an unemployment crisis . The projects undertaken, however, have failed either to counterbalance the economic depression of the various regions or to improve the employability of participants . In addition, these initiatives have been plagued by changing federal priorities, lack of coordination among the various levels of government, and political pressures for constituency funding . What is needed is more long-term planning and the creation of jobs of long-term value to the community . All projects should be evaluated and the results made public . Recommendation 5 Short-term job creation programs should be eliminated and the funds redirected to longer-ter m employment programs . These programs should : • focus on jobs with a long-term value to the participant and community, rather than on shortterm make-work jobs ; • eliminate the constituency basis of funding ; an d • set aside a portion of program budgets for analysis by independent researchers to determine whether their objectives have been met . The results of these evaluations should be available to the public . 306 PART IV : CHAPTER 12 Under Section 38 of the Unemployment Insurance Act, benefits may be provided to participants in approved job creation projects for up to six weeks after the project ends . Although there are many problems with Section 38, the basic one is that it is not an appropriate feature in an Unemployment Insurance program . Job creation should be supported directly from general revenue and should be open to a wider group than just those receiving benefits . Individuals who have already exhausted their benefits, for example, may be in even greater need of assistance than those still receiving Unemployment Insurance . Recommendatio n G Section 38 (Job Creation) of the Unemployment Insurance Act should be rescinded . Chapter 4 : Money - The Need for Income Security This chapter outlines Canada's income security system and the role of Unemployment Insurance within that system . Income security programs in Canada can be divided into three distinct categories or tiers . Tier 1 consists of income support programs (such as social assistance and the Guaranteed Income Supplement) . Tier 2 includes income supplementation programs (such as Old Age Security, Family Allowances, the Child Tax Credit, and programs operated by certain provincial governments) . Tier 3 consists of social insurance programs (such as Unemployment Insurance, the Canada and Quebec Pension Plans, and Workers' Compensation) . Ale ~A Income support provides financial assistance to individuals and families who have little or no other income . Income supplementation provides income assistance to low-income earners to minimize the effect of an inadequate income . Social insurance programs provide some measure of income replacement in the event of various contingencies such as unemployment, sickness or injury . Unemployment Insurance is the cornerstone of income security i n Canada . It was originally designed, in 1940, as a program of temporary assistance to workers who are between jobs . With the haphazard addition ~of functions over the years, to cover new situations and serve new needs , the program has expanded far beyond this . As a consequence in some parts of the count ry it is now part of a regular pattern of income from seasonal or short-term employment, unemployment benefits and, for some, social assistance . In some cases, benefits actually exceed the earnings that they are intended to replace, due to the provision of regionally extended benefits . Thus, Unemployment Insurance has become a major element of income or earnings supplementation . Unemployment Insurance is poorly designed to undertake the function of supplementing income because benefits are not income tested, Unemployment Insurance is directed to the individual rather than the family, and benefits are based on previous earnings rather than need, with higher benefits going to higher earners rather than to the needier . Only 11 percent of Unemployment Insurance benefits go to families with incomes of less than $ 10,000, and almost 20 percent go to families wit h COMPENDIUM OF RECOMMENDATIONS 30 7 incomes greater than $40,000 . It is simply not a good instrument for income redistribution . Regionally extended benefits, funded by general revenues rather than premiums, were introduced to provide supplementa ry assistance in specific regions with particularly high unemployment . Over time, ~ however, unemployment has risen throughout Canada so that regionally extended benefits have been paid in eve ry region since 1981 . Consequently, these benefits are no longer part of an economic adjustment plan directed toward areas with unusually severe problems ; they have become a kind of temporary social assistance/income maintenance plan for those who can find at least 10 weeks of work per year . Regionally extended benefits are considered by many to be an essential element in regional economies . These benefits, however, attack the symptoms rather than the underlying causes of unemployment . Eliminating regionally extended benefits would free up some $2 .8 billion which could be directed to correcting the causes of unemployment and providing earnings supplementation to those who need it . It would be irresponsible to give serious consideration to removing regionall y extended benefits without providing an income supplement to workers faced with economic hardship and without providing development funds to regions and communities suffering from the impact of economic forces well beyond their control . A federal Earnings Supplementation Program cannot exist in isolation, distinct from developments in other social security benefits, the tax system or provincial initiatives . Four provinces have income supplementation programs and all provinces are vitally interested in helping low-income families . What may be needed is a group or series of supplementation plans, reached through federal-provincial agreements, to reflect the differing provincial concerns . An Earnings Supplementation Program which helps those who have some income differs fundamentally from a guaranteed annual income which helps those who have no other sources of support . An Earnings Supplementation Program should be designed to increase a person's benefits when earnings increase and the program should have a low and consistent tax-back rate on income earned while receiving the supplement . A well-designed program would compensate for the effects of phasing out regionally extended benefits . It would be a major reform of one tier in the income security system, and would allow Unemployment Insurance to return to its appropriate role . Unemployment Insurance plays essentially a transitional role, that of partial income replacement for a specific period during an interruption of earnings . It should serve as a lifeline rather than a safety net - to help people return to stable employment rather than holding them in a pattern of dependence . The many additions to its functions over the years have subverted its essential nature and created unacceptable inequities . This has occurred largely because of the lack of other, more appropriate programs or agencies . Unemployment Insurance should return to its original purpose and other initiatives should now be adopted to assume the functions of income supplementation for lowincome families . 308 PART IV : CHAPTER 1 2 Recommendations 7 Regionally extended benefits within the Unemployment Insurance program should b e progressively abolished and replaced over a period of four to five years with a range of human resource development programs better tailored to meet the needs of individuals and regions . The range of programs and policies should include : • an Earnings Supplementation Program ; • economic and community development initiatives ; • education, literacy and basic training programs ; and • policies and programs to facilitate greater flexibility in the labour market . 8 The Canadian government should work closely with the provinces to develop earnings supplementation plans that complement the proposed changes in the Unemployment insurance program . These plans should ensure that those who participate in the labour force but have inadequate incomes would be eligible to receive a supplement on the basis of total household income rather than individual income . The tax-back rate, when combined with the income tax system, should be less than 50 percent . 9 Unemployment Insurance should provide temporary replacement of earnings in the case of job loss or interruption of employment earnings . Unemployment results from either job loss or a temporary interruption of earnings . It is as reasonable to cover temporary sickness, maternity or parental benefits as it is to cover temporary layoffs with recall notices . In the absence of another, more inclusive system to protect those whose earnings are interrupted because of maternity, parental or sick leave, it is appropriate for Unemployment Insurance to continue to provide this coverage . The issue of the "medical yardstick" for sickness benefits caused many complaints at the public hearings . While the use of the medical yardstick as a guide is not disputed, the secrecy that surrounds it is insupportable . Another issue concerns the waiving of the normal twoweek waiting period in certain cases of illness . This practice is contrary to the principle of co-insurance whereby the insured and the insurer share the cost of any contingency covered by the insurance . Maternity benefits have changed over time to provide benefits not only for the mother, but also for parental care . Although in 1984 benefits were extended to adoptive parents, the role of the natural father has not been equally recognized . The provision for a 2-week waiting period and for a total benefit period of 15 weeks should be maintained . A two-tier system would allow parents to decide how long the mother would receive benefits and which parent would assume the initial parenting role . The current restriction limiting the duration of the receipt of special benefits such as maternity and sickness in any combination to a maximum of 15 weeks is unduly harsh . COMPENDIUM OF RECOMMENDATIONS 30 9 Recommendations 10 . 1 10 .2 11 . 1 11 .2 The Unemployment Insurance program should continue to provide sickness benefits . It should retain the provision for premium reduction equivalent to the saving to the Unemployment Insurance Account from private disability insurance, but the method of calculating the premium reduction should be reviewed . The medical yardstick for determining sickness benefits should be readily available for client reference . The two-week waiting period for sickness benefits should continue and this requirement should be enforced . A two-tier system of maternity and parental benefits should be implemented, comprised of : • maternity benefits available during the period surrounding childbirth ; an d • parental benefits available during the period following maternity leave or placement of an adopted child ; • parental benefits should be available to either or both parents (but not concurrently) such that the total amount of benefits does not exceed the maximum available to one parent ; this should be made available only to those who are active labour force participants . Section 22(3) of the Act should be amended to remove the present 15-week aggregate benefit limit, so that the availability of sickness benefits is separate and distinct from any maternity or parental benefits to which a person is entitled . Maternity, parental and sickness benefits should be available during any phase of the claimant's unemployment spell . Seasonal factors, layoffs and other industrial practices contribute heavily to interindustry variations in the relationship between contribution and benefits . The result is that industries with stable employment patterns are seen as subsidizing those with less stable patterns . Experience rating has been suggested as a means of reducing, if not eliminating, these cross-subsidies . Evidence shows, however, that on balance its effect would be negligible in affecting the behaviour of firms . Recommendation 12 Unemployment Insurance premiums should not be based on experience rating . 31 0 PART IV: CHAPTER 12 Chapter 5 : Skills - A Choice of Futures This chapter identifies runaamentai inaaequacies in ine cuucational and skill level of the work force and examines the role of Unemployment Insurance in that context . An educated work force is better able to adapt to changing labour market demands and will therefore have a better choice of futures . There are fundamental inadequacies in the educational and training system, however, and this has resulted in inadequate skills among many workers . Evidence shows that those who have not completed high school are much more likely to be unemployed . For this reason, a strategy to help achieve at least high school equivalency is essential . Rather than emphasizing specialized skills training, the focus should be on ensuring attainment of the basic educational level which is necessary for future training and retraining . To overcome the current inadequacies in the educational system, there is an urgent need for leadership on the part of educators and public policy makers to put aside jurisdictional considerations and deal with the real needs of high school dropouts . It is recognized that high school education is largely within provincial jurisdiction, but the education required for a more flexible and better trained labour force knows no provincial boundaries . Many adult Canadians are functionally illiterate and lack numeracy skills . The resulting inability of almost a third of the adult population to deal at the necessary level with language, numbers and concepts has considerable human and economic costs . Functional illiteracy is being recognized increasingly by Canadian industry as a major concern . If Canada continues to ignore the illiteracy crisis and fails to mount a cooperative and sustained effort to eliminate it, a large proportion of workers will be limited in their ability to participate effectively in the work force . Recommendation s 13 14 The federal government should invite provincial governments to undertake measures at the high school level to ensure that a high minimum level of education is achieved by all Canadians and that these measures emphasize : • flexibility in program requirements ; • the acquisition of general basic skills to grade 12 or an equivalent level ; • cooperative programs that combine work and study ; and • the inclusion of technological content in all programs . The federal government should invite provincial governments to cooperate in mounting a sustained effort to eradicate functional illiteracy and innumeracy among the adult population . Basic knowledge and skills are fundamental preconditions of a skilled and flexible work force . Changing requirements, and the consequent necessity for the labour force to adapt, demand a greater emphasis on employment training and retraining . Employers repeatedly complained at the public hearings that they could not find workers able to solve problems, and that what they needed were workers with general COMPENDIUM OF RECOMMENDATIONS 31 1 skills, who are able to adapt and to learn new technical skills as job requirements change . Funding arrangements have also been criticized on the grounds that they limit the selection of the most appropriate courses . Recommendatio n 15 Training programs and funding arrangements under the National Training Act should be odified to : assign high priority within the Institutional Trai~ g~'og~ m, or its replacement, to providing urses in functional literacy, basic training for skill development, and educational upgrading ; re recognize programs that enable functionally illiterate workers to gain basic literacy skills as a legitimate component of on-the-job training ; an d • replace the current funding arrangement with one that will increase the relevance and responsiveness of training institutions to the labour market . Section 39 of the Unemployment Insurance Act provides benefits, in some cases for an extended period, from general revenues to recipients who undertake training in approved courses . There are several concerns about this arrangement . All unemployed individuals should be given the opportunity to upgrade their skills and improve their employability . The current practice in approving courses is not to place emphasis on basic skills but to favour those who already have substantial skill levels and, in the case of apprenticeship training, to favour those who are already employed . The operation of the apprenticeship program should be removed from the Unemployment Insurance program and reviewed by the appropriate federal and provincial authorities . The provision of extended benefits to a person while on training is inequitable and a violation of the insurance principle . Trainees should receive benefits only for the period of their regular entitlement, and the role of Unemployment Insurance should be limited to waiving the search requirements for those undertaking approved training . Recommendatio n 16 Section 39 of the Unemployment Insurance Act should be rescinded and provision should be made to : • waive job search requirements for approved beneficiaries undertaking approved training programs (including literacy, educational and skills upgrading) ; • establish a review process to monitor these approvals ; • exclude allowances for expenses from computation of earnings on claim ; an d • initiate a review of the operation of the apprenticeship program by the appropriate federal and provincial authorities . 31 2 PART IV : CHAPTER 12 1~ 4 Those in the 15-to-24 age group need special attention . The baby boom generation has already flooded the labour market and produced high unemployment among youth and young adults . Many are poorly equipped for participation in the labour forceCand have difficulty adjusting to the demands of adulthood~ 7 lor Recommendation 17 The Minister of State for Youth should consider implementation of a comprehensive Youth Opportunities Program . The program would combine basic education, counselling, life skills and work experience for young people aged 15 to 24 years who do not have a high school diploma or are otherwise disadvantaged and are having difficulty entering the labour force . Chapter 6 : Options - Employment Flexibilit y This chapter addresses the need for greater flexibility in the labour market and evaluates such programs as mobility assistance, retirement policies and alternative work arrangements . These initiatives provide individuals with greater choice and allow the labour market to adapt more readily to change . Labour displacement in declining industries and depressed regions often involves many people . In these circumstances, it is sometimes in everyone's interest that relocation take place . Currently, several programs provide mobility assistance to facilitate the movement of individuals who are unemployed, underemployed or about to become unemployed . What is required is a consolidation of mobility assistance into a single program, to avoid overlap and duplication . Mobility, however, is not a panacea for solving labour market problems . A key policy element should be the degree of flexibility in labour adjustment . A consolidated mobility program should be based as much on the needs of the individual as on the needs of industry . It should have few criteria that limit eligibility, and should provide assistance to those who relocate to undergo training . Recommendation s 18 .1 18.2 All federal labour market programs that provide mobility assistance should be consolidated . In the new consolidated mobility assistance program : • the industry and community basis for determining eligibility should be eliminated ; an d • in addition to those currently eligible, assistance should be provided to workers who relocate for training purposes . COMPENDIUM OF RECOMMENDATIONS 31 3 Changing economic and social demands will require greater flexibility in the way that work is organized and also in the rules and regulations of Unemployment Insurance . There are many alternative work arrangements, but the variety and the benefits of these alternatives are not sufficiently understood . Some alternatives, such as job sharing and working part time, have direct implications for employment income and consequently for the Unemployment Insurance system . Job sharing involves restructuring a single full-time job into two or more part-time jobs . Interest in job sharing has increased in response to the needs and preference of working parents and partially retired persons . Part-time employment has increased rapidly over the last decade . The Unemployment Insurance program excludes many part-time workers, since in order to be eligible a person must work at least 15 hours per week for the same employer . This restriction imposes hardship on many families, is unfair, and is out of step with changing work patterns . The Wallace Commission of Inquiry on part-time work and the Boyer Committee on equality rights both concluded that the current minimum of 15 hours per week should be reduced to 8 hours . The principle that all hours of work should be covered is accepted, but it is recognized that in practice extending coverage to every hour and to every worker may create administration problems and may result in additional costs, particularly for small businesses . The feasibility of such an extension should be examined by the Canada Employment and Immigration Commission . Recommendation Unemployment Insurance coverage, in principle, should be extended to all part-time workers , 19 but first of all to those who work a minimum of eight hours per week . Workers should be allowed to accumulate hours of work in order to become eligible for coverage . The administrative feasibility of covering all hours of work, including work for different employers, should be examined by the Canada Employment and Immigration Commission . Compensated work sharing is a temporary arrangement intended to preserve employment through the avoidance of layoffs, at least in the short term . A prorated share of the regular weekly Unemployment Insurance benefit is paid to those workers whose normal hours are reduced by a formal agreement . There is widespread support for these arrangements . Recommendatio n 20 The current work-sharing provision in Unemployment Insurance should be retained, and an internal review should be undertaken in order to streamline procedures and reduce administrative and compliance costs . 314 PART IV : CHAPTER 12 Since the end of World War It, the proportion of a worker's life spent in the labour force has declined substantially, largely because of a preference for increased leisure as real wages and real incomes rose . This preference is reflected most notably in the choice of a shorter work year through increased holiday periods . In contrast, the average work week has remained remarkably constant . Because of the projected aging of the population, the wisdom of attempting to reduce work time or ban overtime work by legislation is questionable . Recommendation 21 Flexibility in work time should be encouraged but shorter work days, weeks or years should b e negotiated by individual firms and industries rather than being established by legislation . The requirement of mandatory retirement at age 65 is under attack because of the equality provisions in the Canadian Charter of Rights and Freedoms . The federal government has expressed a commitment to facilitate flexible retirement, and changes to increase the flexibility of public and private pension plans either have been made or are contemplated . Available empirical evidence from the United States and from Quebec indicates that these measures may have little effect on postponing retirement . They will, however, expand the range of genuine personal choice . These changes have major implications for the Unemployment Insurance program . They change the context of the three-week "retirement benefit" at age 65 and the treatment of pension income in determining Unemployment Insurance benefits for persons under age 65 who take on another job while receiving a pension . Since Unemployment Insurance and Old Age Security are elements of the social security system, changes in their age limits should be coordinated . Recommendation 22 The age limit of 65 years should be removed as a barrier to Unemployment Insurance eligibility , concurrently with changes in the age limit established in the Old Age Security program . At that time, the provisions in the Unemployment Insurance Act for payment of a three-week "retirement benefit" should be rescinded . COMPENDIUM OF RECOMMENDATIONS 31 5 Chapter 7 : A Plan for Refor m This chapter sets forth the proposed fundamental reform of the core program of Unemployment Insurance, the objectives, and the reasons for the new program design . The current program is perceived by many to be unfair, illogical, at variance with the principles of social insurance, and overly complex . Different criteria are applied and different benefits provided to individuals who are in similar circumstances . More generous treatment is given to short-term than to long-term workers, and more is given to those in some regions than in others . The entrance requirements are complicated and there are different benefit phases . Not all hours of work are treated equally in determining eligibility for benefits, and workers in the same occupation with the same employment possibilities are treated differently . The practice of basing eligibility on the local unemployment rate is unfair, since that rate is a poor indicator of job opportunities . The proposed new approach must be viewed within the broad context of the human resource development proposals included in preceding recommendations, and within the framework of the income security system . The reform embodies the view that Canada must invest more in human resources and make funds available to support programs for that purpose . Within the context of a comprehensive human resource development strategy, the role of Unemployment Insurance would become one of strict income replacement . Income supplementation and other aspects of the current program would be transferred to programs specially designed for these purposes . To respond to deficiencies in the current program, the proposed reforms involve moving to "Annualization" in the calculation of benefits - that is, basing the level of benefits on insurable earnings over the previous 52 weeks and paying benefits for up to 50 weeks . In addition, an annual maximum limit on insurable earnings is set . This annual limit would remove inequities and encourage increased flexibility in the workplace . A further change involves a revised approach to credit banking, ensuring that all hours worked and all earnings are included in the calculation of benefits, which will provide greater incentives for the unemployed to accept full-time work . Finally, shifting to an entrance requirement based on hours rather than weeks would allow workers to accumulate all hours of work . It was decided that simple modification of the existing program would not meet the demands of the changing economic environment or provide the best possible foundation for the future . The weaknesses and inequities in the current system were carefully reviewed and the advantages and disadvantages of various options were studied and debated . The decision was reached that, on balance, Annualization was the best approach, because it combines low entrance requirements with long maximum duration of benefits, without the inequities, disincentives and administrative complexity of the current approach . 316 PART IV: CHAPTER 1 2 Recommendations 23 24 A new Unemployment Insurance program should be developed and implemented . Features of the program should include : • a standard cumulative entrance requirement of 350 hours ; • benefits based on average weekly insurable earnings in the 52 weeks prior to unemployment ; • benefits paid in 50 weekly instalments after a two-week waiting period ; • benefits to equal 66 3'3 percent of insurable earnings ; • an annual maximum insurable earnings limit applied according to the employer's pay periods ; an d • a system of credit banking . The reformed program should be introduced in four phases . • Phase 1 : benefits would be based on the average weekly earnings over 13 weeks, paid in 50 weekly instalments, and would be 60 percent of insurable earnings . • Phase 2 : benefits would be based on the average weekly earnings over 26 weeks, paid in 50 instalments, and would be 60 percent of insurable earnings . • Phase 3 : benefits would be based on the average weekly earnings over 39 weeks, paid in 50 instalments, and would be 66 3'3 percent of insurable earnings . • Phase 4 : benefits would be based on the average weekly earnings over 52 weeks, paid in 50 instalments, and would be 66 2/3 percent of insurable earnings . Particular concern was expressed at the public hearings about the situation of unemployed older workers who are too young to draw a pension but may be considered too old to be readily employable . For them, one year of benefits may be insufficient for the sort of adjustment that all workers may find increasingly necessary . Under Annualization, workers who suffer a number of layoffs in quick succession after many years of steady employment with the same company may need a means to top up their benefits to some percentage of their average weekly earnings . They may also need assistance to top up or extend their benefits so that they can undertake approved training and move for relocation purposes . Recommendation 5 c A Cumulative Employment Account should be developed, having the following features : 2 • Credits would accrue at the rate of two weeks for every year worked, to a maximum of 25 years of credit . • Benefits could be drawn only after a 30-year threshold . • Benefits could be used to (a) top up Unemployment Insurance benefits to 66 413 percent of average insurable earnings over the previous five years ; and (b) top up or extend benefits for those undertaking approved training, retraining or mobility . Benefits could be extended to a maximum of 52 additional weeks . COMPENDIUM OF RECOMMENDATIONS Chapter 8 : Immediate Steps - Other Program Reforms Fundamental restructuring of the Unemployment Insurance program involves sweeping changes that must be carefully considered and gradually introduced . This chapter deals with a number of less fundamental changes that could be implemented more rapidly, either within the current program or as part of a reformed program . The treatment of pensions was the subject of a special reference to the Commission of Inquiry . In considering this issue, it must be recognized that the entire question of retirement and retirement policy is changing rapidly. Under the Canadian Charter of Rights and Freedoms, age 65 may no longer be a basis for mandatory retirement . Actuarial adjustments for those wishing to retire at other than the "normal" retirement age are already taking place or being contemplated in both the public and private sectors . As a consequence, it will become less and less true that receipt of a pension and retirement are synonymous . Thus, the question of the treatment of pension income by Unemployment Insurance has become part of a more general problem facing policy makers - the increasing importance placed on flexibility in retirement and pension arrangements, and the resulting need for better coordination of all related social policies, particularly Old Age Security . Since those who have retired are no longer in the labour force, they should no longer be covered by a program such as Unemployment Insurance, which is designed to assist members of the labour force . Receipt of a pension, however, does not necessarily mean that a person has left the labour force and should not lead to disqualification from Unemployment Insurance benefits . Denying coverage to everyone with pension income would mean denying coverage to the many individuals who enter another job after leaving a career with a pension . By contrast, the approach that became effective January 5, 1986 compels those with a pension from previous employment to pay for coverage on subsequent employment but treats pension income as earned income, so that when these workers become unemployed their benefits may be negligible or non-existent . Another possible approach would be to ignore pension income entirely . This would mean ignoring deferred income from another job, since that is how pension income is generally considered . If the mandatory retirement age were removed and pension income were ignored completely, then Unemployment Insurance could be used to finance the first year of retirement and the cost could become prohibitive . It was recognized that those in receipt of pension income should not be discouraged from pursuing a second career . It was therefore decided to recommend treatment of pensions in two ways : the first if the pensioner is unemployed when the pension is received initially and the second if the pensioner becomes unemployed from a subsequent job . Because building up a pension is a lifetime process, any changes that might reduce pension income should be introduced only after notice of three years to those likely to be affected . 31 7 318 PART IV : CHAPTER 1 2 Recommendatio n 26 The current treatment of pension income should be rescinded with an effective date of January 5, 1986 . The new policy should be announced and an implementation date of January 1, 1989 set . The new policy should be : • that pension income received during a period of unemployment immediately following retirement from a first career would be treated as earnings when calculating Unemployment Insurance benefits for that period ; • that during future employment periods, Unemployment Insurance would provide coverage only on the difference between pension income and the lesser of the new earnings or maximum insurable earnings ; • that premiums would be calculated on the basis of insurable earnings minus pensions in pay ; and • that administratively, weekly premiums would be calculated as now, with any excess rebated via annual income tax returns . Currently, lump-sum payments, including severance pay, vacation pay, bonuses and payments from an employee profit-sharing plan, are translated into weekly earnings and treated like earnings on claim, which are subtracted from eligible benefits . It is considered inequitable that in these cases the maximum benefit period and the amount of benefits are reduced . The major exception to this treatment of lump-sum payments is the treatment of vacation pay trust funds, which exist predominantly in the construction industry in Ontario and Quebec . In these funds, vacation entitlement is accrued and benefits are usually paid twice a year and vacation must be taken in a set time period . Individuals should not be considered as unemployed and available for work during these vacation periods . Recommendations 27 . 1 27 .2 Severance pay, vacation pay and lump-sum payments should be allocated to weeks, using the same formula as at present . These monies should delay but not reduce benefit entitlement . In addition, they should be considered as insurable earnings . Recipients of benefits from vacation pay trust funds should be disentitled for the period for which vacation pay is received . This would delay but not reduce benefit entitlement . Under the present system, if a person in receipt of benefits earns more than 25 percent of his or her benefits, then benefits are reduced by one dollar for every dollar earned above that limit . Thus, there is no financial incentive to work beyond the exemption level . Maximum work incentives should be .provided to the extent that benefits and earnings together do not exceed the previous insured earnings of the individual worker . COMPENDIUM OF RECOMMENDATIONS 31 9 Recommendation . 1 Earnings while on claim should reduce benefits at a rate equal to the replacement ratio . That is, i f 28 the replacement ratio is 66 ~/3 percent, then the reduction rate should also be 66 2/3percent . At present, coverage under Unemployment Insurance is limited to jobs that involve at least 15 hours of work a week or pay at least $99 a week . Part-time workers with more than one job are considered unemployed and eligible to receive benefits if they lose one job, provided it is insurable . Earnings from the job that continues are treated as earnings while on claim, however, and as a consequence, they are treated more harshly than a full-time worker with the same total insurable earnings . Recommendation 2 Benefits for multiple job-holders should be calculated on the basis of total insurable earning s 2 8. from all jobs . Any earnings during the benefit period should be treated as earnings on claim . A particularly contentious issue is the provision in the current Act that makes those whose earnings are interrupted because of a labour dispute ineligible for benefits . That provision is based on the fact that the strike is voluntary and that payment of benefits to strikers would breach the principle of neutrality by making Unemployment Insurance into a form of strike fund . The present rule considers an industrial dispute to be in progress until 85 percent of the work force is recalled, even if an agreement has been ratified . Once the agreement has been ratified, these workers are no longer on strike . Recommendation . 1 A dispute should be considered over on the date that the collective agreement is signed, excep t 29 in cases where a date for return to work is identified in a subsidiary agreement or protocol . Employees are also considered to be ineligible for benefits in the event of a lockout by their employer, although the employees who are locked out are not voluntarily unemployed . Recommendation 29 .2 In the case of a lockout, workers should be eligible for Unemployment Insurance benefits while a collective agreement is in force . At present, some workers who are indirectly involved in a strike are disqualified . This policy violates the principles of voluntary action and of neutrality. The present rule is that contributing to a common strike fund 32 0 PART IV : CHAPTER 12 may lead to disqualification . Therefore, members of a local that is part of the same union are disqualified even if they did not participate in the decision to go on strike . Workers in the same plant but in a bargaining unit that is not a local of the striking union are not disqualified . This distinction maybe both inequitable and illogical . It is important to acknowledge that there may be instances where those indirectly involved in a labour dispute may receive substantial and early benefits from it . Where this is established, disqualification should follow. In such cases, there should be a right of appeal with the onus on the Commission to justify the decision . Recommendation Those indirectly involved in a dispute, including those who belong to the same union but are in a 29.3J different local, should not be disentitled . Where there are direct, substantial and early advantages to those who are indirectly involved, they should be disentitled but that decision should be subject to appeal . At present, workers involved in a labour dispute who take a second job are not eligible for benefits if they are laid off from that job . This practice ignores the fact that the layoff is entirely separate from the original labour dispute . This practice is not justified unless the Commission can show that the layoff was contrived in order to collect benefits . Recommendation 2n . In a situation where a worker is disentitled because of a labour dispute, then takes another jo b 7 and .`t / is laid off, that worker should be eligible for Unemployment Insurance on the basis of the second job . In cases where claimants have earnings on claim and lose those earnings because of an industrial dispute, this should not disentitle the worker from the original claim . Claims for sickness, maternity and adoption benefits are denied at all times during a labour dispute . These events are not related to the dispute and would have occurred whether or not the labour dispute had taken place . The provision of sickness benefits, however, must be very limited to avoid possible abuse . Recommendation .C Maternity, adoption and sickness benefits should be paid during an industrial dispute . In th e 29 J case of sickness, however, benefits should be awarded only if the claimant is confined to hospital . On strict insurance principles, voluntary quitters should not be eligible for benefits . To apply these principles would require the employer to identify those who voluntarily quit their jobs . There is, however, no extra cost to the employer in identifying the situation as a layoff, and therefore no incentive to police the system . Indeed, the COMPENDIUM OF RECOMMENDATIONS 32 1 employer may collude to call it a layoff rather than a resignation . Increasing the penalty might simply increase the pressure for collusion . There is need, however, to clarify and publicize the conditions under which a person may leave a job without penalty . "Just cause" is poorly understood among claimants . There is also need to revise the rules to cover cases of "inverse seniority" in collective layoffs, when older workers by agreement may choose to be laid off. In these cases no penalty should be imposed . Recommendation 30 The current penalty of loss of benefits for up to six weeks for voluntarily leaving a job should b e retained . "Just cause" for leaving a job voluntarily should be clarified and publicized, and "inverse seniority" in a collective layoff should be included as just cause . The requirements that recipients be engaged in job search and available for work are critical in that they determine whether a claimant is considered to be unemployed or to have left the labour force . Enforcement of the requirements should be conducted in a humane, reasonable and intelligent manner, and those attempting to start a business should not be disentitled on the grounds that they are not available for paid employment . Recommendation 31 Job search and availability for work should continue to be essential elements in the Unemployment Insurance program . • Criteria regarding what constitutes suitable employment should be made explicit to clients . • The kinds of jobs claimants are required to search for should be continuously adjusted in light of the local availability of "suitable" jobs . • Job search and availability requirements should be waived in instances of sickness and maternity, temporary layoff with assured recall, jury duty, approved training programs, and approved plans to start a small business . 322 PART IV : CHAPTER 12 Chapter 9 : The Self-Employe d This chapter addresses the issue of self employment and deals in some detail with the issue of fishing benefits . There would be almost insurmountable obstacles to providing protection to all categories of the self-employed . In cases where the individual can create the conditions which permit the collection of benefits, as the self-employed can, the degree of moral hazard presented is incompatible with Unemployment Insurance . A spouse who works on salary for a self-employed person, however, should not be excluded from coverage, except in jurisdictions where the spouse is treated as a partner under family property law . Recommendatio n 32 Unemployment Insurance coverage should be extended to persons married to and working for the self-employed, in jurisdictions where under family property law spouses of business owners are not treated as partners in the business and where they are paid a salary subject to income tax . Self-employed fishermen were included under the umbrella of Unemployment Insurance by a special amendment of the Act in 1956 . The purpose was to provide income support to self-employed fishermen, particularly on the Atlantic, and to the many coastal communities that depend upon the fishery for their survival . But the fishing benefits program has problems stemming from the nature of the program, its inherent administrative difficulties, its inadequacies in meeting the needs of the fishermen whom it was intended to serve, and the obstacles that it presents to processors who need a greater supply of fish during the latter part of the season . Unemployment Insurance is neither appropriate nor adequate to meet the needs of fishermen who, through the vagaries of nature or government policy, are most in need of income supplementation . Recommendation 33 "Part V Fishermen's Regulations" should be amended to establish a five-year maximum deadlin e for phasing out the eligibility of self-employed fishermen for Unemployment Insurance . • During this five-year period, eligibility for special fishing benefits should not be extended to any new fishermen . Current Unemployment Insurance beneficiaries should be permitted to elect to receive a weekly payment during their off-season, calculated on the basis of their average entitlement over the preceding five years rather than on the current schedule of benefits . • During this five-year period, the federal and the provincial governments involved in the fishing industry should develop and implement an income supplementation plan for all workers in relation to their need, with resources at least equivalent to those currently available for Unemployment Insurance benefits to self-employed fishermen . COMPENDIUM OF RECOMMENDATIONS 32 3 Chapter 10 : The Reform of Program Delivery This chapter provides a range of proposals for improving the administration of Unemployment Insurance . They include fundamental changes in the structure of the organization and other changes that could be adopted even without the proposed reorganization . Although nominally independent, the Canada Employment and Immigration Commission is a federal body subject to the guidelines of the Treasury Board and to the personnel policies of the Public Service Commission . The two Commissioners who represent employers and employees exert minimal influence . Those who pay most of the costs through premiums have an insignificant role in the management of the program . The delivery of service appears to be directed more to serving the needs of the system rather than to responding to the needs of the clients . In short, the Commission lacks autonomy, power and authority . Recommendatio n A new autonomous organization, the Unemployment Insurance Commission, should be established to be the mechanism for delivering Unemployment Insurance and employment services, and it should operate at arm's length from the government . 34 Throughout the report, the need has been stressed for the federal government to assume leadership in the development of a comprehensive human resource development strategy . A revitalized Department of Employment and Immigration should have a broad mandate for that strategy . Whether or not all of the existing programs and functions related to human resource development are allocated to this department, coordination of these initiatives is essential . Recommendation 35 The remaining Department of Employment and Immigration should be revitalized, with a broad mandate for human resource development . The new Commission should function at arm's length from government, while operating subject to a revised Unemployment Insurance Act that would limit its discretion with respect to the basic features of the program and the appeal process . It would not need parliamentary appropriations, since it is proposed that it be financed entirely from premiums . Recommendatio n 36 The new Unemployment Insurance Commission should be established as a parent Crown corporation under Schedule C, Part II, of the Financial Administration Act . In order to provide an administration that will operate at arm's length from government, a board of directors with wider representation of employers and employees than at present should be appointed . This 324 PART IV : CHAPTER 12 board would balance the interests of the employers and employees who jointly fund the program . Recommendatio n 37 • The board of directors of the new Unemployment Insurance Commission should consist of between 13 and 21 members, and a majority of members should be selected equally from labour and from employers . • These appointments should be made by Order in Council upon consultation with interested groups and for a fixed term of three years, with one-third of the board eligible for replacement and reappointment every year . • The board of directors should be responsible for selection of the chairman of the board and of the chief executive officer . It is essential that the administration of the program be more responsive to the needs and concerns of employers and employees, and that the current imbalance between a massive impersonal bureaucracy and the individual claimant be redressed . Recommendation 38 The legislation enacting the Unemployment Insurance Commission should grant it full authority over the implementation of the program and responsibility for the delivery of services . It is difficult to avoid the conclusion that public access to the Unemployment Insurance program has low priority, since there is widespread criticism of the lack of information provided to employers and employees on all aspects of the program . There is considerable public frustration over the difficulties of obtaining answers to questions and even of contacting the staff, whether in person or by telephone . Recommendatio n 39 The Unemployment Insurance Commission should do more to inform the public, employers and employees about the program in general ; about the requirements of the law, regulations and appeal process ; and about the rights and responsibilities of claimants and appellants . Rules of implementation used to deliver the program are sometimes found in the Act or the regulations, and sometimes in administrative policies or the decisions of umpires . It is the intent of the proposed changes to give the new Commission responsibility for the rules that are to be adopted in order to deliver the program . Existing rules need careful examination and evaluation . Deadlines for filing claims, for example, have important implications in terms of lost benefits . It is not clear what circumstances constitute "just cause for delay" and would allow a claim to be antedated . The onus of proof of qualification for benefits is placed on the claimant rather than this onus being on the Commission . The current rules and procedures governing appeals require the claimant to COMPENDIUM OF RECOMMENDATIONS 32 5 provide evidence, but give no clear guidance regarding the nature of the evidence required or what constitutes "just cause . " Claimants should be expected only to show that they have met the basic requirements for eligibility . If their request for benefits is denied, the onus should then be on the Commission to show justification for that decision . Furthermore, the Commission should provide reasonable assistance to the claimant in preparing the argument to support his or her claim . Recommendation 40 All rules used to deliver the Unemployment Insurance program, particularly those related t o filing deadlines, onus of proof and the standard of evidence, should be evaluated . Claimants should be provided with reasonable assistance in marshalling the facts necessary to support their case . The legislation establishing a reformed Unemployment Insurance program and an autonomous Commission should reflect the simplicity and clarity requested by clients, and should permit the flexibility required to respond to the changing needs of the unemployed and to economic changes . It should identify the purpose of the program and the mandate of the Commission without attempting to foresee every possible eventuality . The role and nature of the Unemployment Insurance program and the major features of the benefit structure should be specified, but detailed rules of implementation should be left to the discretion of the Commission . Recommendatio n 41 The new Unemployment Insurance Act should clearly identify the objectives of the Unemployment insurance program, its nature and scope . Specific references should be made in the Act to : • the principles that constitute the basis for setting premium rates and benefit levels ; • the principles that determine what is unemployment under the Act (including the interruption of earnings) ; • the concept of voluntary and involuntary unemployment (including availability for work) ; • the principles that determine what earnings are insurable ; and • the rights and obligations of claimants, including the right to appeal . 326 PART IV : CHAPTER 12 The Unemployment Insurance Act is complex and difficult even for jurists to understand, let alone clients and employers . The regulatory process is itself a complicated maze because of countless piecemeal changes in regulations . It is reasonable to require due notice of changes in regulations and policy that affect clients significantly. Recommendation 42 The new Act, in delegating to the Unemployment Insurance Commission the power to issue regulations, should prescribe a manner and schedule for making these changes, so as to limit their frequency. Notice of proposed changes to regulations should be published in the media well in advance of their proposed date of implementation . Canadian law has traditionally had an appeal system that reviews the substance and facts of the case at the first level and reviews the legal procedures and interpretation at the second level . The Unemployment Insurance appeal system is more complex . It involves an internal review plus several levels of review of the procedures . Other problems include the fact that boards of referees are not regarded by claimants as "bona fide" appeal boards, since they are not seen to function at arm's length from the Commission, do not apply standard rules of evidence, and are chaired by persons who lack the legal training or the necessary depth of understanding of the program . Furthermore, the internal review procedure is perceived as inadequate in that the staff person involved is not separate from the normal line of authority . Recommendations 43 . 1 43 .2 The current appeal system of a board of referees and umpire should be replaced by an Unemployment Insurance ombudsman/adjudicator's review and a board of appeal . • The responsibilities, independence and powers of the Unemployment Insurance ombudsman/adjudicator should be specified in the Act and should include the obligation to report annually on problems in implementing the Act and interpreting statutory and regulatory provisions, and to provide pursuant recommendations . • The board of appeal should be established to hear all first-level appeals and be empowered to review the substance of all cases . It should consist of an experienced lawyer deemed qualified for appointment to the judiciary, as presiding officer, and two assessors representing the interests of employers and employees . The board should function judicially, making full use of the adversary process and abiding by the rules of evidence . • The function of adjudication review should be clearly separate from claims processing and benefit control . Funding should be provided to approved groups, such as unemployment action centres, to assist both employers and employees in the appeal process . These groups and claimants should have ready access to the decisions of umpires, in order to prepare for the appeal process . COMPENDIUM OFRECOMMENDATIONs 32 7 The present Act conters wide powers upon the Commission . The Commission has, for example, the power not only to impose administrative penalties but also to lay charges against the same individual or company for criminal prosecution . It has powers of search and seizure and is not obligated by law to give clients sufficient notice to allow them time to examine the documentary evidence assembled by the prosecution . Recommendation .1 The Act should narrowly define the powers of enforcement of the Commission consistent wit h 44 the guarantees prescribed in the Canadian Charter of Rights and Freedoms and ensure that they are necessary to the essential purposes of the program . Because Unemployment Insurance is a compulso ry program financed by a payroll tax, the public interest requires that the autonomous Commission be financially accountable and that certain rules to that end be specifically laid down in the Act . Recommendation 44 .2 The Act should ensure normal standards of accountability to Parliament for the new Unemployment Insurance Commission . Specific references should be made in the Act to : • the permissible scope of its activities ; • the exercise of its power to borrow to finance a deficit in its fund ; • the investment of surplus funds in goverment securities ; • the accumulated rights and benefits of present employees ; an d • the manner in which its power to set premium rates and vary designated features of the benefit structure should be exercised . Unemployment Insurance, as a social insurance program, is essentially a pooling of the risk of the financial loss arising from unemployment, and is appropriately financed from contributions made by those sharing in this risk . As an insurance against the loss of wage income, it provides benefits as a right only to those who are insured . It therefore follows that the cost of benefits to individuals and the related administration costs should not be borne by the public purse, but entirely by those who are eligible to receive benefits . Recommendatio n 45 The reformed Unemployment insurance program should be financed entirely by premiums . Human resource development programs, earnings supplementation and other labour market programs should be delivered separately from the Unemployment Insurance program and should be financed from general government revenue . 328 PART IV : CHAPTER 12 The mode of allocating premiums between employers and employees reminds both parties that the system of insurance, though essential, has a cost and that each party has a share in it . An equal allocation would underline the equal importance of employers and employees in determining administrative policies . Recommendation Unemployment Insurance should gradually move toward allocating premiums to employers and 46 .1 employees on a 50 :50 basis . A federal transactions or value-added tax has implications for the collection of premiums because the premiums of employers could be assessed on the basis of total value added rather than total insurable payroll . Recommendation calculation of the employer's share of Unemployment Insurance premiums should b e 4 6 .2 Thereviewed if a value-added tax is introduced . In setting premium rates, sudden increases in premiums in times of increasing unemployment and higher rates during the initial years of recovery have a destabilizing impact upon demand . The current practice is to set the rate on the basis of a three-year moving average . But economic cycles are irregular and formulas prescribed by legislation are seldom in tune with reality . Recommendatio n 47 The proposed Unemployment Insurance Commission should be given the power to alter benefit or premium levels within given parameters defined in the new Act . Separating the Unemployment Insurance Commission from the current Department of Employment and Immigration raises the question of where employment services should be placed . There is agreement that services to the unemployed should be provided from one office . That office should provide information regarding claims and should offer assessment and counselling services . It appears reasonable to integrate the job listing and referral system with these services . These services should be available to all of the unemployed, and should not be confined to those in receipt of benefits . Recommendatio n The new Unemployment Insurance Commission should continue to assume responsibility for employment services (including job placement, assessment and counselling services) for all of those who are unemployed, including those who are not receiving Unemployment Insurance benefits . An evaluation of the placement services should be undertaken and this function should either be revitalized and refocussed or cancelled . COMPENDIUM OF RECOMMENDATIONS 32 9 Government reorganization is disruptive to clients and to the staff . While the separation of the Commission and the Department is an essential and fundamental change, the subsequent dislocation and potential problems of communication or duplication of services should be minimized . Recommendatio n 49 Staff of the new Unemployment Insurance Commission and the federal department delivering other human resource development programs should be co-located in the existing network of Canada Employment Centres . The Commission is a massive organization with some 28,000 employees . The size and level of the staff at both national and regional headquarters are out of proportion to the nature and value of the services that they perform . It would appear that a significant reduction in the number of staff could be achieved . Recommendation A significant reduction should be made in the number of staff at national and regional 50 headquarters . The Record of Employment supplied by the employer is the source of information required to determine the appropriate rate and period of benefits for a claimant . Errors in that form are the main cause of over- and underpayments of benefits, and of delays in processing claims . Recommendation 51 The Unemployment Insurance Commission should investigate the use of a simplified wage request or wage record system to replace the current Record of Employment system . Currently, an automated, comprehensive tracking system monitors the magnitude and causes of incorrect payments . It is designed more to determine the probability of fraud than to identify individual cases . Performance measurement is based on number of cases, not on dollar values or significance of cases . There is limited access to information on clients that is in the possession of other departments and agencies of government . Recommendations 52 Benefit control systems should be established which cross-check data on claimants with data i n other relevant government files . The Unemployment Insurance Act should be amended to permit overpayments to be recovered through offsets against other amounts owing to claimants from the goverment (e .g ., income tax refunds) . 53 The investigative effort of the Unemployment Insurance Commission should be focussed and improved, and cases of organized fraud should be given more attention . Performance measurement in this area should be based on dollar values in addition to the number of cases . 330 PART IV : CHAPTER 12 Conclusion The changes to the Unemployment Insurance program, and the recommendations for an earnings supplement and other economic and human resource development programs in this report, are radical and will be controversial . It will take courage to adopt them and will take time before they can be fully implemented . The Commissioners are acutely aware of how disruptive changes may be both to individuals and to regions . Time must be permitted for full assessment of the consequences, for monitoring new developments, and for introducing modifications as circumstances change . But there are other reasons why time is needed . Some of the major recommendations are closely interrelated . The proposed phasing-out of regionally extended benefits and of fishing benefits is dependent upon the introduction of an Earnings Supplementation Program . These proposals and the other initiatives in the human resource development strategy require consultation with provincial governments and federalprovincial agreements . The proposed new autonomous Commission and the reorganization of the current Canada Employment and Immigration Commission will also take time, not only to implement the proposed changes but also to allow those affected to adjust to the changes . For these reasons it is urged that a transition period of four or five years be allowed in order to phase in proposals where time for adjustment is deemed to be necessary . Appendices Appendix A 333 Terms of Reference Commission of Inquiry on Unemployment Insuranc e Order in Council P .C . 1985-2162 . Certified to be a true copy of a Minute of a Meeting of the Commit- Saucier, President, Produits Forestiers-Saucier, as Commissioners to inquire into the role of the tee of the Privy Council, approved by Her Excellency the Governor General on the 4th day of July, Unemployment Insurance Program within the 1985 . a means of improving the operation of labour context of the Canadian social security system, as The Committee of the Privy Council have had markets in Canada, supporting more effectively before it a report of the Minister of Employment Canada's economic development, ensuring the and Immigration stating that : equitable financing of the Program and providing Whereas in response to urgent calls from new and better opportunities for Canadians many quarters for reform of the Unemploy- experiencing temporary unemployment by : ment Insurance Program, the Government of (a) examining, in relation to the Program, the appropriateness and adequacy o f Canada announced in its November 1984 Economic Statement and May 23, 1985 (i) the coverage and conditions of insurabil- Budget Statement that it would undertake a ity, entitlement, and eligibility , thorough review of the Program ; (ii) the benefit structure , Whereas the Program is so large, so complex (iii) the funding by employers, employees and and impacts on Canadians so directly and in the Government of Canada of the various so many different ways, that any changes are components of the Program , bound to be far reaching ; (iv) the respective proportions of the cost of And Whereas, since the Program is in large part financed by premiums from employers the Program that are borne by employers, employees and the Government of Canada , and employees, it is vital that these financing partners play a major role in the review to (v) the developmental uses of the Unemployment Insurance Account for the purposes set ensure that a thorough and impartial reexami- out in sections 37, 38 and 39 of the Unemploy- nation of the Program be undertaken and that ment Insurance Act, 1971, and changes be introduced only after the views of (vi) any other aspects of the Program that may Canadians from all walks of life have been be raised during the course of the inquiry ; an d taken into consideration ; (b) inquiring into it is desirable that an inquiry be made into the (i) means to respond to deficiencies in the Unemployment Insurance Program . Program , The Committee, therefore, on the recommen- (ii) ways in which the Program may be used t o dation of the Minister of Employment and Immigration advises that, pursuant to Part I of the further re-entry into and adjustment to the labour market of claimants, Inquiries Act, a Commission do issue appointing (iii) changes to requirements to be met by Claude Forget, Partner, Secor Inc ., Roy Bennett, claimants in order to receive benefit, an d Esquire, John Munro, President, Regional Council (iv) administrative measures to be taken t o #1, International Woodworkers, Frances Soboda, maintain or improve the President, Local 4253, United Steelworkers of Program ; integrity of the America and Vice-President, the Nova Scotia and to report on the findings of the inquiry . Federation of Labour, Moses Morgan, President Emeritus, Memorial University and Guylaine In making the inquiry and report, the Commissioners shall give particular attention to : 334 APPENDIX A (i) the views of employers and employees mission as soon as possible after the conclu- referred to in paragraph (a) and of associations representing those employers and employees, on the matters referred to in paragraphs (a) and (b), an d sion of the inquiry ; 9 the Commissioners be known as the Commission of Inquiry on Unemployment Insurance ; and (ii) any recommendations and findings of the 10 Claude Forget be designated as Chairman of Royal Commission on the Economic Union the Commission of Inquiry on Unemployment and Development Prospects for Canada that relate to the Unemployment Insurance Pro- Insurance . P .C . 1986-73 0 gram . The Committee further advises that : 1 the Commissioners be authorized to adopt such procedures and methods as they may from time to time consider expedient for the conduct of the inquiry ; 2 the Commissioners be authorized to sit at such times and in such places inside Canada as they may consider necessary for the purposes of the inquiry ; 3 the Commissioners be authorized to travel outside Canada, where in the opinion of the Chairman of the Commission, it is necessary to do so, to gather information or otherwise to fulfil the purposes of the Commission ; 4 the Commissioners be authorized to engage the services of such consultants, researchers, technical advisers, or other experts, clerks, Certified to be a true copy of a Minute of a Meeting of the Committee of the Privy Council, approved by Her Excellency the Governor General on the 26th day of March, 1986 . The Committee of the Privy Council, on the recommendation of the Minister of Employment and Immigration and the Treasury Board, pursuant to Part I of the Inquiries Act, advise that the commission establishing the Commission of Inquiry on Unemployment Insurance, issued pursuant to Order in Council P .C . 1985-2162 of the 4th July, 1985, be amended by deleting therefrom the following paragraph : "AND WE DO HEREBY direct Our Commissioners to report to the Governor General in Council not later than March 31, 1986 ; " and substitute therefor the following paragraph : reporters and assistants, as they consider "AND WE DO HEREBY direct Our Commis- necessary or advisable, and also the services of sioners to report to the Governor General in counsel, to aid them in the conduct of the Council not later than September 30, 1986 . " inquiry at such rates of remuneration and reimbursement as may be approved by Treasury Board ; 5 the Commissioners be assisted by the officers and employees of the departments and agencies of the Government of Canada in any way the Commissioners may require for the conduct of the inquiry ; 6 the Commissioners be authorized, in cooperation with the Department of Public Works, to rent office space and space facilities for public hearings as they may consider necessary at such rental rates as are consistent with the policies of the Department of Public Works ; 7 the Commissioners be directed to report to the Governor General in Council not later than March 31, 1986 ; 8 the Commissioners be directed to file with the Dominion Archivist the records of the Com- P .C . 1986-225 6 The Committee of the Privy Council, on the recommendation of the Minister of Employment and Immigration and the Treasury Board, pursuant to Part I of the Inquiries Act, advises that the commission establishing the Commission of Inquiry on Unemployment Insurance, issued pursuant to Order in Council P . C . 1985-2162 of 4th July, 1985, as amended pursuant to Order in Council P .C . 1986-730 of 26th March, 1986, be further amended by deleting therefrom the following paragraph : "AND WE DO HEREBY direct our Commissioners to report to the Governor General in Council not later than March 31, 1986 ; " and substituting therefor the following paragraph : "AND WE DO HEREBY direct our Commissioners to report to the Governor General in Council not later than November 30, 1986 ." Appendix B Where We Went Appendix B Where We Went Public hearings and meetings October 28, 1985 Winnipeg, Manitoba November 4, 1985 Whitehorse, Yukon November 6, 1985 Yellowknife, Northwest Territories November 13, 1985 Moncton, New Brunswic k November 14, 1985 Fredericton, New Brunswick November 14, 1985 Bathurst, Ne w Brunswick November 15, 1985 Newcastle, New Brunswick November 18, 1985 St . John's, Newfoundland November 20, 1985 Glace Bay, Nova Scotia November 21, 1985 Halifax, Nova Scotia November 29, 1985 Edmonton, Albert a December 2, 1985 Calgary, Alberta December 3, 1985 Regina, Saskatchewan December 4, 1985 Regina, Saskatchewan January 6, 198 6 Vancouver, British Columbia January 7, 1986 Vancouver, British Columbia January 8, 1986 Vancouver, British Columbia January 9, 1986 Prince Rupert, British January 9, 1986 Columbi a Castlegar, British Columbia January 9, 1986 Duncan, British January 10, 1986 Victoria, British Columbia Columbia January 10, 1986 Prince George, British Columbi a January 13, 1986 Charlottetown, Prince Edward Island January 14, 1986 January 16, 1986 Quebec, Quebec Montreal, Quebec January 17, 1986 Montreal, Quebec January 27, 1986 Thunder Bay, Ontario January 27, 1986 January 28, 1986 Sudbury, Ontario January 29, 1986 Toronto, Ontario January 30, 1986 Toronto, Ontario January 31, 1986 January 31, 1986 Windsor, Ontario Hamilton, Ontario January 31, 1986 London, Ontario February l1,1986 Ottawa, Ontario February 12, 1986 Ottawa, Ontario Toronto, Ontario February 13, 1986 Ottawa, Ontario February 14, 1986 Ottawa, Ontario February 15, 1986 Ottawa, Ontario 3 Field trips, round-table discussions and consultations October 29, 1985 Winnipeg, Manitoba October 30, 1985 Thompson, Manitoba November 4, 1985 Dawson City, Yukon November 5, 1985 Fort Simpson, Northwes t Territories November 6, 1985 Rae Edzo, Northwest Territorie s November 14, 1985 Bathurst, New Brunswick November 15, 1985 Fredericton, Ne w Brunswick November 15, 1985 Newcastle, New Brunswic k November 19, 1985 Stephenville, Newfoundland November 19, 1985 Port au Port , Newfoundland November 19, 1985 Corner Brook, Newfoundland November 19, 1985 Dildo, Newfoundlan d November 19, 1985 Wabush, Labrador City, Labrador November 20, 1985 Sydney, Nova Scotia November 22, 1985 Halifax, Nova Scotia November 28, 1985 Edmonton, Albert a December 2, 1985 Calgary, Alberta January 9, 1986 Duncan, British Columbia January 9, 1986 Prince Rupert, British Columbi a January 10, 198 6 Prince George, British January 15, 1986 Columbi a Sept-Iles, Quebec January 15, 1986 January 15, 1986 January 27, 1986 Beauce, Quebec Trois-Rivieres, Quebec Thunder Bay, Ontario January 27, 1986 Sudbury, Ontario January 31, 1986 Toronto, Ontario January 31, 1986 Chatham, Ontario January 31, 1986 Windsor, Ontario February 3, 1986 Toronto, Ontario February 10, 1986 March 1 1 , 1986 Ottawa, Ontario Frobisher Bay, Northwest Territories Appendix C 339 List of Participants and Submissions Many individuals and organizations contributed to our work, through briefs presented at public hearings, through discussions during informal meetings and field trips, as well as through letters received at our offices . Our thanks go to all of them Canada Employment and Immigration Union, Alberta/NWT Region ' City of Edmonton, Social Services Department' Communitas Inc . ' Construction Labour Relations' and to the communities visited . Dandelion Group ' Presentations at public hearings Edmonton Chamber of Commerce' Some people who came to the hearings also submitted written briefs, and their names are marked Jannohamed, Sa m Doering, Peter ' with an asterisk' . Albert a Calgary, December 2,1985 Aitcheson, Ji m Alberta Chamber of Commerce' Northern Alberta and Northwest Territories (District of Mackenzie) Building and Construction Trades Council ' Personnel Association of Edmonton' Robertson, Dorrell ' British Columbia Alberta Federation of Labour' Vancouver, January 6, 198 6 Calgary Chamber of Commerce' Calgary Labour Council' British Columbia Chamber of Commerce ' Calgary Personnel Association' Canadian Petroleum Association' British Columbia Federation of Labour, Unemployment Action Centre ' Garvin, Terry British Columbia Government Employees Union' Broome, Dou g Hart, Harris ' Business Council of British Columbia' International Brotherhood of Electrical Workers, Canada Employment and Immigration Union' Local254 ' Meyer, Jack L .' Murphy, Sheila Capilano College Faculty Association' College-institute Educators' Association of British I Columbia ' Parry, Wayne Confederation of Canadian Unions' Radke, David' International Woodworkers of America' Overall, Rand y Roy, Edmond ' Royal Canadian Mounted Police Veterans' Association, Calgary Division ' Southern Alberta Building and Construction Trades Council ' Stumpf, Harley Van Bostelen, Marti n Edmonton, November 29, 1985 Alberta Teachers' Association' Berg, Carl Bolstad, Allan' Unitarian Church of Vancouver, Unemployment Sub-Committee ' United Association of Journeymen and Apprentices of the Plumbing and Pipefitting Indust ry of the United States and Canada, Local Union 170 ' United Fishermen and Allied Workers' Union, Local 31 ' Vancouver Unemployment Action Centre' 3 40 APPENDIX C Vancouver, January 7, 1986 Kamloops Unemployment Guidance Centre' Ash, Ceci l Kroll, Barbara ' British Columbia and Yukon Territory Council of the Canadian Federation of Labour ' Marsh, Don N .' Shayler, John British Columbia Council of the Confederation of Solidarity Coalition ' Canadian Unions ' British Columbia Federation of Labour' Surrey Regional Chamber of Commerce' Unemployed Teachers' Action Centre' British Columbia Forest Products Ltd . ' Unemployment Insurance Working Group' British Columbia Provincial Council of Carpen- Vancouver and District Labour Council' ters ' Canadian Association of Industrial, Mechanical Vancouver and District Public Housing Tenants' Association ' and Allied Workers ' Canadian Farmworkers' Union ' Vancouver Island Building and Construction Trades Council ' Canadian Union of Public Employees, British Columbia Division ' Carling, Mike Elliot, Lorne Victoria, January 10, 1986 Association of British Columbia Professional Foresters ' Gariepy, Richard Campbell River, Courtenay and District Labour Hayter, Mavis ' International Brotherhood of Electrical Workers, Council ' Committee of the Unemployed' Local 213 ' Jackson, Larry' Kaminski, Albert Cote, Serge Cracknell, Pa t First Nations of South Island Tribal Council' Management and Professional Employees Society Gray, Lesli e of B .C . Hydro ' Marine Workers' and Boilermakers' Industrial Hutcheson, Paul Kiess, Viola Union, Local No . 1 ' Moyle, Barbara National Anti-Poverty Organization' Office and Technical Employees' Union' Krueger, Lawrence ' Manly, Jim (MP, Cowichan-Malahat-The Islands) ' Ouellet, Joh n Scott, BeverleyJ . ' Port Alberni and District Labour Council' Social Planning and Review Council of British Touchstone Committee ' Columbia ' Vancouver Board of Trade ' Vancouver, New Westminster and District Building and Construction Trades Council' Vlahovic,Jack Unemployed Workers' Centre' Victoria and District Labour Council' Victoria Chamber of Commerce' Women for Economic Survival ' Manitob a Wilkinson, Norma n Winnipeg, October 28, 1985 Vancouver, January 8, 198 6 British Columbia and Yukon Territory Building and Construction Trades Council ' British Columbia and Yukon Territory Building Trades Training Co-ordinators Committee' Burnaby Unemployment Action Centre ' Carpentry Apprenticeship Joint Board of British Columbi a Cinnamon, Rei d End Legislated Poverty ' Jobs or Income Now Coalition Community Unemployed Help Centre' Emberley, Kenneth ' Government of Manitoba, Department of Employment Services and Economic Security' Manitoba Federation of Labour ' Manitoba Teachers' Society ' Social Planning Council of Winnipeg' Winnipeg Chamber of Commerce' Winnipeg Labour Council' LIST OF PARTICIPANTS AND SUBMISSIONS 34 1 New Brunswic k Newfoundlan d Bathurst, November 14, 198 5 Association des pecheurs professionnels acadiens St . John's, November 18, 1985 Coalition for Equality' inc ., Shippagan ' Blanchard, Mathild a Brunswick Mining and Smelting - Bathurst Decker, Chris (MHA, Strait of Belisle) Chaleur Regional Industrial Commission Newfoundland and Labrador Federation of City of Bathurs t New Brunswick Association of Metis and NonStatus Indian s Fishermen's Union, Local 1252 ' Lush, Tom (MHA, Bonavista North)' Labour ' Newfoundland Teachers' Association ' Provincial Advisory Council on the Status of Women ' New Brunswick International Paper Forest Products Inc . - Dalhousi e St . John's and District Labour Council' North Shore Forest Products Marketing Board - St . John's Board of Trade ' Bathurs t St . John's Status of Women Council ' Unemployed Workers' Union Northwest Territorie s Fredericton, November 14,198 5 Canada Employment and Immigration Union' Fredericton Anti-Poverty Organization Government of New Brunswick' Northumberland County Truckers' Association ' Moncton, November 13,198 5 Conseil du travail, peninsule du nord-est du Nouveau-Brunswick' Yellowknife, November 6,1985 Cominc o Northwest Territories Chamber of Mines Northwest Territories Federation of Labour' Yellowknife Chamber of Commerce ' Nova Scoti a Glace Bay, November 20, 198 5 Greater Moncton Chamber of Commerce ' Kent North Truckers Association' Canadian Seafood and Allied Workers' Union, McKee, Mike (MLA, Moncton North)' Cape Breton Island Building and Construction Moncton and District Labour Council' Local 116 ' Trades Council ' New Brunswick Federation of Labour' Kowalski, Barbar a Newcastle, November 15, 1985 Maritime Fishermen's Union O'Neill, Benni e Carter, Jerry Cercle fran4;ais Comeau, Mr . Greater Miramichi Chamber of Commerce Paquette, James United Mine Workers of America Walsh, Gus Heath Steele Mines Limite d Halifax, November 21,198 5 Maritime Fishermen's Unio n City of Halifax, Social Planning Department' Miramichi Pulp and Paper - Woodlands Organiza- Halifax Board of Trade ' tio n Kerans, Pat ' Miramichi Regional Development Corporation Miramichi Unemployed Workers Union Mainland Nova Scotia Building and Construction Trades Council ' Newcastle-Chatham District Labour Council Metro Action Committee for Employment' Town of Newcastl e Vandijk, Viola Nova Scotia Federation of Labour' Village of Rogersville Wood, Charmaine ' Truckers' Association of Nova Scotia' Women's Centre - Chatham Ontario Hamilton, January 31, 1986 Arnold, Ben 342 APPENDIX C Burlington Chamber of Commerce' Mining Association of Canada' Canadian Association of Movers' Cochrane, Edit h National Council of Women of Canada' Regional Municipality of Ottawa-Carleton' Community College Teachers Sutter, Stewart ' Copps, Sheila (MP, Hamilton East)' Cronkwright Transport Limited' Ottawa, February 12, 1986 Fraser, Barry ' Brewster, Doug Hamilton and District Chamber of Commerce' Caccia, Hon . Charles (MP, Davenport)' Canadian Conference of Teamsters' Hamilton-Brantford, Ontario Building and Construction Trades Council ' Canadian Construction Association' McCall, Peter Canadian Dump Truckers Federation' Michalec, H . Canadian Labour Congress ' National Committee for Independent Canadian Canadian Shipbuilding and Ship Repairing Asso- Unions ' ciation ' O'Connor, Terry Corbett, Harold Ontario Provincial Council of Labour' Steylen, Ann ' Crosby, Howard (MP, Halifax West) Federated Women's Institutes of Canada' Strobl, Edward Federation des travailleurs et travailleuses du United Steelworkers of America, Hamilton Area Council ' Quebec ' Frith, Hon . Douglas C . (MP, Sudbury)' United Steelworkers of America, Local 1005' Labourers' International Union of North America' United Steelworkers of America, Local 8995, Lavoie, Gaston ' Simcoe ' Voss, Susan' Weszely, Paul Wright, Timothy G . ' Mechanical Contractors Association of Canada' National Anti-Poverty Organization ' New Democratic Party Caucus ' Nowlan, Patrick (MP, Annapolis Valley-Hants)' Ontario Secondary School Teachers' Federation' London, January 31, 1986 Rockburne,E d County of Bruce, Social Services' Rompkey, Hon . William (MP, Grand Falls-White Dow, Muriel ' Bay-Labrador) ' Guetter, John' Jefferson, James Earl ' Ottawa, February 13, 198 6 London and District Labour Council' Canadian Conference of Catholic Bishops' London Unemployment Help Centre Canadian Forestry Service ' Canadian Pulp and Paper Association' Snyder, Grig g Canadian Textiles Institute ' Ottawa, February 11, 1986 Canadian Union of Public Eniployees, National Berger, David ( MP, Laurier) ' Building and Construction Trades Department Cassidy, Michael (MP, Ottawa Centre)' AFL/CIO ' Canada Employment and Immigration Union' Canadian Conference on the Arts ' Canadian Federation of Independent Business' Canadian Federation of Labour ' Canadian Paperworkers Union' Canadian Railway Labour Association' Canadian Teachers' Federation ' Office ' Eldon, Jean E . ' Lewis, Doug (MP, Simcoe North) ' Local Agricultural Employment Advisory Board, Ottawa Valley' Local Agricultural Employment Advisory Board, Stormont-Dundas ' Machinery and Equipment Manufacturers' Association ' CUSO ( Canadian University Services Overseas)' Mouvement socialiste du Quebec' Department of National Defence ' National Council of YMCAs of Canada ' National Union of Provincial Government Kroeker, John' MacDonnell, Sandy Employees' LIST OF PARTICIPANTS AND SUBMISSIONS 34 3 OPCAN' Van Embden, R .' Social Planning Council of Ottawa-Carleton' Watts, Ji m 3rd Dimensions and Associates (1973) Ltd .' United Food and Commercial Workers Union' United Steelworkers of America ' Thunder Bay, January 27, 1986 Angus, lain (MP, Thunder Bay-Atikokan)' William M . Mercer, Limited ' Bayne, Francis W . ' Brotherhood of Railway and Airline Clerks' Ottawa, February 14,1986 Browning-Ferris Industries Ltd .' Alliance autochtone du Quebe c Canada Employment and Immigration Advisory Council ' Clatworthy, Douglas Communist Party of Canada, Northwest Ontario Canadian Artists' Representation (CARFAC)' Regional Committee ' Epp, Ernie (MP, Thunder Bay-Nipigon)' Canadian Council on Social Development' Kam Theatre ' Canadian Hospital Association ' Kinna-Aweya Legal Clinic ' Canadian Police Association' Ontario-Manitoba Primary Council of the Chiasson, Alfre d Economists, Sociologists and Statisticians Association ' Canadian Paperworkers Union ' Thunder Bay Council of Retirees ' United Steelworkers of America, Local 5055 ' Federal Superannuates National Association' Federation des femmes du Quebec' Toronto, January 28, 1986 International Longshoremen's Association' Native Council of Canada ' Benetech Canada Inc . ' Board of Trade of Metropolitan Toronto' Ontario Metis and Non-Status Indians' Associa- Canadian Actors' Equity Association ' tion ' Public Service Alliance of Canada ' Canadian Federation of Students, National Graduate Council ' Canadian Paraplegic Association ' Ottawa, February 15, 1986 Communist Party of Canada, Central Executive Fortier, Guy ' James Bay Cree Corporation ' Committee ' de Cunha, Rui Mouvement action chomage de I'Outaouais Elias, Coli n Ottawa Board of Education ' International Union, United Automobile, Aero- Royal Canadian Mounted Police' Unemployment Help Centre, Kingston ' space and Agricultural Implement Workers of America (UAW ) ' Kitchener-Waterloo and District Community Sudbury, January 27, 1986 Borsato, Mari o Corporation of the City of North Bay, Department of Social Services ' Lane, Arja' McLean, Harvey ' Industrial Training Committee ' Madsen, Jay S .' McCormick, Mary Micallef, Captain Jame s National Action Committee on the Status of Women ' N'Swakamok Native Friendship Centre' National Citizens' Coalition' Pastoral Institute of Northern Ontario' Regional Municipality of Sudbury' Ontario Federation of Labour' Rodriguez, John (MP, Nickel Belt ) Roy, Claude* Ontario Nurses' Association' Ontario Police Association St-Pierre, Ronald ' Organization of Canadian Symphony Musicians' Professional Association of Canadian Theatres Sudbury and District Chamber of Commerce' Retail Council of Canada ' Sudbury Mine, Mill and Smelter Workers Union, Social Planning Council of Oshawa-Whitby' Local 598 ' Sudbury Multicultural-Folk Arts Association' United Steelworkers of America, Local 6500' 344 APPENDIX C Toronto, January 29, 1986 Alliance of Canadian Cinema, Television and Radio Artists ' Amalgamated Clothing and Textile Workers Union ' Canadian Electrical Distributors Association' Canadian Farm Labour Pools Canadian Organization of Small Business' Rexdale Planning ' Royal Canadian Mounted Police Veterans' Association ' United Auto Workers, Local 707 ' United Church of Canada, National Working Group on the Economy and Poverty' Waterloo, Wellington, Dufferin and Grey, Buildin g and Construction Trades Council ' Canadian Payroll Association ' Canadian Restaurant and Foodservices Associa- Windsor, January 31, 1986 tion ' Canadian School Trustees' Association' Commissioner of Social Se rvices, City of Windsor Heap, Dan (MP, Spadina) ' Holjevac, Mike INCO Limited' Essex and Kent Counties Building and Construction Trades Council ' Mayor's Committee on Employment Opportunities and Se rvices to the Unemployed ' Klein, George ' Sarnia and District Labour Council' Labour Council of Metropolitan Toronto' McCue, Mik e Unemployed Help Centre of Windsor' Windsor and District Labour Council ' Social Planning Council of Kitchener-Waterloo' Windsor Youth Employment Counselling Centre ' Social Planning Council of Metropolitan Toronto' Toronto Legal Clinics' Unemployment Insurance Prince Edward Islan d Workgroup ' Toronto Union of Unemployed Workers ' United Electrical, Radio and Machine Workers of Canada ' Charlottetown, January 13, 198 6 Action Commission of the Roman Catholic Diocese of Charlottetown Atlantic Provinces Chamber of Commerce' Toronto, January 30, 1986 Binns, Pat (MP, Cardigan) ' Axe, Mr . and Mrs . Lawrence ' Berwick Ferguson Payroll Canada Ltd .' Construction Association of Prince Edward Brewery, Flour and Cereal Workers Government of Prince Edward Island' Canada Employment and Immigration Union' Canadian Bankers' Association ' Latin American Mission Program' MacAusland, Colin ' Canadian Chamber of Commerce ' Maritime Fishermen's Union ' Canadian Congress for Learning Opportunities for Prince Edward Island Federation of Labour' Women ' Canadian Forces Retirees Canadian Hearing Society' Canadian Institute of Actuaries ' Canadian Manufacturers' Association ' Church and Community : Partners for Employment ' Etobicoke Advisory Committee on Unemployment ' Island ' Prince Edward Island Fishermen's Association' Prince Edward Island Opposition Caucus' Prince Edward Island Truckers' Association' Roberts, Hugh D . ' Wood Product Manufacturers Association of Nova Scotia ' Quebe c Montreal, January 16, 1986 Federation of Temporary Help Services' Independent Artists' Union ' Benoit, Annette Ontario Coalition for Better Day Care ' Centrale des syndicats democratiques' Ontario English Catholic Teachers' Association' Ontario Public Service Employees Union ' Commission des services juridiques ' Conseil conjoint numero 91 des teamsters du Ontario Public Service Employees Union, Local 595 ' Quebec ' Conseil consultatif canadien sur la situation de la Ontario Trucking Association' Centrale de 1'enseignement du Quebec' femme LIST OF PARTICIPANTS AND SUBMISSIONS 34 5 Conseil provincial du Quebec des metiers de la construction (International) ' de Romana, Alfredo Regina Chamber of Commerce ' Saskatchewan Action Committee on the Status of Women ' Forte, Angelo' Saskatchewan Association on Human Rights' Hughes, Frank' Jacques, Jean-Paul' Saskatchewan Federation of Labour' Western Grain Elevator Association ' Martineau, Serge ' Mouvement action chomage de Montreal inc .' Regina, December 4, 1985 Office diocesain de pastorale ouvriere et sociale' Bauman, Gail ' Poirat, Gustave ' Committee Against Poverty ' Societe de ressources communautaires de Community Service Employment Co-operative of Brandon ' Solidarite populaire Quebec ' Syndicat de 1'emploi et de 1'immigration du Canada, region du Quebec ' Regina ' Labourers' International Union of North America' Riches, Graham ' Saskatchewan Chamber of Commerce' Union des artistes ' Saskatchewan Community Colleges Trustees Montreal, January 17, 1986 Ternowetsky, Gordon ' Association ' Action-travail des femmes' Association des femmes collaboratrices' Beaudoin, Gaston Chambre de commerce du Quebec ' Comite socio-economique des Iles-de-la-Madeleine ' Yukon Whitehorse, November 4,1985 Armstrong, Irwin ' Council for Yukon Indians Mauro, Jennife r Confederation des syndicats nationaux (CSN)' Millard, Ro n Conseil du patronat du Quebec ' Whitehorse Chamber of Commerce Federation des travailleurs du papier et de la foret ( CSN ) ' Williams, Hughi e Mouvement action chomage de Trois-Rivieres' Yukon Chamber of Mines Yukon Federation of Labour Syndicat des techniciennes et techniciens du Yukon Visitors' Associatio n cinema du Quebec ' Visual Planning Corporation' Quebec, January 14, 1986 Action chomage Kamouraska, inc . Confederation des syndicats nationaux (CSN)' Federation des syndicats du secteur aluminium inc . ' Mouvement action chomage de Quebec inc .' Reseau d'action et d'information pour les femmes (RAIF) ' Vaillancourt, Jean-Pau l Written submission s Alberta Alberta Chamber of Commerce, Edmonton Alberta Federation of Labour, Edmonton Alberta Federation of Police Associations, Calgary Alberta Institute of Microcomputing, Edmonton Alberta Provincial Pipe Trades Association, Edmonto n Alberta Teachers' Association, Edmonton Anderson, G .H ., Edmonto n Saskatchewa n Aries Geo-Data Corporation, Calgary Armstrong, Ralph, Edmonto n Regina, December 3,198 5 Art of Winningness, Calgary Canada Employment and Immigration Union' Beecher, Barbara E ., Calgary Canadian Congress for Learning Opportunities for Women ' Bergevin, Dianne, Leduc Blais, Marie, Grande Prairie Irwin, Gordon' Bolstad, Allan, Edmonton Krempien, Brian' Bradley, Noreen T ., Edmonton 346 APPENDIX C Bruce, David, Grande Prairie Byers, Henry, Calgary Koehler, U ., Peace River Krisher, Glenn, Barrhea d Calgary Chamber of Commerce Labourers International Union, Construction and General Workers, Local Union No . I 111, Calgary Labour Council Calgary Personnel Associatio n Calgary Canada Employment and Immigration Union, Alberta/NWT Region, Edmonto n Laebon Development Limited, Red Deer L'Heureux, Louise, Joussar d Canadian Pension Equality Foundation, Calgary Malone, Arnold, MP, Crowfoot Canadian Petroleum Association, Calgar y Marcellus, Pat, Calgary City of Calgary Meyer, Jack L ., Calgary City of Edmonton, Social Services Department Moon, Gayle, Grande Prairie Clarke, Sandra, Barrhea d Morey, Ruth T ., Edmonton Coal Association of Canada, Calgary Newcombe, Valerie, Edmonton Northern Alberta and Northwest Territories Communitas Inc ., Edmonton Construction Labour Relations, Edmonton Cormier, Paul R ., Calgary (District of Mackenzie) Building and Construction Trades Council, Edmonto n Cote, Joyce, Calgary Olsen, Roy, Medicine Hat County of Strathcona, No . 20, Sherwood Park Parnwell, L ., Edmonton Coyle, Garry G ., Lethbridg e Pederson, Ruth E ., Sherwood Park Dandelion Group, Edmonton Personnel Association of Edmonton Doering, Peter, Edmonton Pittman, Peter R .J ., Calgary Plourde, Patrick, Rycroft Druhall, John, Calgary E & E Containers (1979) Ltd ., Calgary Plypick, N .A ., Edmonton Edmonton Chamber of Commerce Puzey, Matthew, Red Deer Edmonton West Progressive Conservative Associa- Radke, David, Calgary tion Policy Committee Robertson, Dorrell, Edmonton Edwards, Jim, MP, Edmonton South Robinson, Wendy, Edmonton Eggens, Bert, Sherwood Park Fisher, A .J ., Edmonton Roy, Edmond, Calgary Royal Canadian Mounted Police Veterans' Associa- Fletcher, Greg, Calgary Ghosh, N ., Fort McMurray Royal Canadian Mounted Police Veterans' Associa- Gibson, Keith, Bluffton tion, Calgary Divisio n tion, Lethbridge Divisio n Government of Alberta, Edmonton Rysdyk, J . R ., Calgary Greene, John, Edmonto n Sauter, Charles D ., Calgary Guckert, A ., Drumheller Servpro Cleaning Ltd ., Calgary Hamilton, Vivian, Grande Prairie Simms, Norma, Calgary Southern Alberta Building and Construction Hart, Harris, Calgary Hudson, A .W ., Rocky Mountain House International Association of Heat and Frost Insula- Trades Council, Calgary Taylor, Gordon E ., MP, Bow River tors and Asbestos Workers, Local 110, Edmon- Tosh, Vivian, Grimshaw to n University of Alberta, Edmonton International Brotherhood of Electrical Workers, Local 254, Calgary Westersund, Donald A., Elnora Wilson, L .L., Grimsha w International Brotherhood of Electrical Workers, Local 424, Edmonto n Wilson, Margaret, Edmonton Woytkiw, Emily, Mundare James, B .G ., Edmonton YWCA, Calgary Jarman, W .L ., Edmonton Jonsson, Diane, Edmonton Kaplain, Florence, Edmonton Kobley, John L ., Calgary British Columbia Ability Personnel Association, Victoria Adey, J .K ., Kelowna LIST OF PARTICIPANTS AND SUBMISSIONS 34 7 Alnos, Bob, Vancouver Alton, James R ., Oliver Arnison, L ., Port Coquitla m Association of British Columbia Professional Foresters, Vancouve r Aten, Wilma C ., Campbell River Bachmeier, A ., Port Alberni Canadian Association of Industrial, Mechanical and Allied Workers, New Westminste r Canadian Farmworkers' Union, Burnab y Canadian Union of Public Employees, British Columbia Division, Burnaby Capilano College Faculty Association, North Vancouver Barnett, Wendy, Prince George Bibby, John, Crawsto n Carlson, A .G ., Revelstoke Carter, Dave, Castlega r Bingley, K ., Coquitla m Board of School Trustees, School District No . 50, Castlegar and District Unemployment Action Queen Charlotte Cit y Centre CMS Self Help Centre, Shawinigan Lake Boehmer, Herbert J ., Westbank Coffin, Alison Kim, Fruitval e Boyle, E .F ., Vancouve r College-Institute Educators' Association of British Columbia, Vancouve r Brisco, Bob, MP, Kootenay Wes t British Columbia and Yukon Territory Building and Construction Trades Council, Burnaby British Columbia and Yukon Territory Building Collier, Thomas A ., Quesne l Committee of the Unemployed, Campbell River Community Law Centre, Nanaim o Trades Training Co-ordinators Committee, Comox Valley UIC Appeal Group Vancouve r Confederation of Canadian Unions, Vancouver British Columbia and Yukon Territory Council of the Canadian Federation of Labour, Burnaby Corporation of the Village of Lake Cowichan British Columbia Chamber of Commerce, Vancou- Craigen, Jim, Williams Lake Cranbrook Unemployment Action Centre ver British Columbia Construction Association, Crawford, Andrew B ., Ladysmith Cruickshank, A ., Vancouve r Victori a British Columbia Council of the Confederation of Cummings, J .D ., Victori a Canadian Unions, New Westminste r British Columbia Federation of Labour, Unemployment Action Centre, Burnaby British Columbia Forest Products Ltd ., Vancouver British Columbia Government Employees Union, Burnaby British Columbia Government Employees Union, Prince George British Columbia Provincial Council of Carpenters, Vancouver Brooke, Mary, Victoria Dawson Creek and District Chamber of Commerce Dawson, James Paul, Lower Nicol a Dilts, A .W ., Cranbrook Downey, K .J ., Westban k East-West Kootenay, Building and Construction Trades Group, Cranbrook End Legislated Poverty, Vancouve r Evens Group, Human Resource Council, Richmond Ferguson, William, Sardi s First Nations of South Island Tribal Council, Mill Bay Buckberry, A ., Surrey Flynn, James, Kamloops Building and Construction Trades Group, Cran- Forshaw, R .P ., Grand Forks Fort George Band, Shelley brook Burnaby Unemployment Action Centr e Business Council of British Columbia, Vancouver Freer, Ed, Revelstoke Gaffney, H .C ., Burnaby "By Wave" Fresh-Frozen Seafoods, Prince Rupert Gardiner, Connie, Kelowna Campbell River, Courtenay and District Labour George, B ., Penticton Council, Campbell Rive r Canada Employment and Immigration Union, Godderis, Bud, Castlegar British Columbia and Yukon Territory Region, Godderis, Francis M ., Castlegar Gooden, Dorothy, Salmon Arm Burnaby Goodman, Hugh J ., Quesne l Government of British Columbia, Victoria 348 APPENDIX C Grant, Nigel, West Vancouver Hayes, John C ., Cranbrook Marine Workers' and Boilermakers' Industrial Union, Local No . ], Vancouver Hayter, Mavis, Vancouver Marsh, Don N ., Delta Hjorleifson, Christine, Vancouver Martin, C .E ., Abbotsford Hofer, Joe, Kelowna Holomay, N ., Vancouver Marvel, Jack E ., Golden Hope, M .E ., Victoria McCarthy, Grace M ., Victoria McCorkindale, Russell R ., Surrey Horswell, R .G ., Vernon McEachern, Allan, The Honourable, Chief Justice, Hutchinson, A .M ., Vancouver Intensive Forestry, Ymi r International Brotherhood of Electrical Workers, Local 213, Burnaby International Woodworkers of America, Local 1-80, Duncan International Woodworkers of America, Local 1-363, Courtena y The Supreme Court of B .C ., Vancouver McKenna, J .R ., New Hazelto n Mechanical Contractors Association of British Columbia, Burnaby Meyer, Phyllis, Nanaimo Miltimore, J .E ., Summerland Mitchell, Margaret, MP, Vancouver East Momuth, T .W ., Victori a International Woodworkers of America, Western Canadian Regional Council No . 1, Vancouver Morgan, Mitchell, Victoria Morley,J .H ., Victoria Irving, Ronald H ., Vancouve r Mulherin, P . Wayne, Vancouver Jackson, Larry, Burnaby Jaeggle, Gilbert E ., Coquitlam Murray, James W ., Prince George James, John, Winfiel d Narsing, Rama, Williams Lake Jenna Construction Ltd ., New Hazelton Jervis, T . Fred, Burnaby National Anti-Poverty Organization, Vancouver Nelson, H .K ., Verno n Johnson, Frances M ., Trai l Nelson Unemployment Action Centr e Kamloops Unemployment Guidance Centre Kearns, R.P ., Maple Ridg e New Westminster and District Labour Council Kennedy, Ronald J ., Vancouver Kerkkonen, Linda, Kelowna North Coast Tribal Council, Prince Rupert Kinakin,John, Castlega r Office and Technical Employees' Union, Burnaby Kitimat-Terrace and District Labour Council, Olson, Melvin A ., Surre y Kamloop s Kroll, Barbara, Vancouver Krueger, Lawrence, Victoria Landen, Audrey, Vancouver Murray, R .L ., Surrey Unemployed Action Centre O'Donnell, J ., North Vancouve r Oosterman, Jan, Burnaby Organization of Unemployed Workers, Port Alberni Orr, Doug, Nakus p Landsman Community Services Ltd ., Courtenay Orser, Russell, Coquitlam Larson, Ralph, Kamloop s Pacific Trollers Association, Richmond Law, Larry L ., Merritt Penny, Vincent L ., Kelown a Legge, Mary, Kamloops Piersdorff, Isabel, Vancouver Leung, Cynthia, Victori a Pineo, Robert, Nanaimo Linde, Kathey A ., Williams Lake Lovell, Verna, Vancouve r Poirier, Norma, Kelown a Low Income Support Group, Castlegar Lussier, Pierre, Terrace MacDonald, Beth, Victoria Pitts, A ., Maple Ridge Port Alberni and District Labour Counci l Prince George and District Building and Construction Trades Counci l MacKinnon, A .A ., Kamloop s Prince George and District Labour Council Management and Professional Employees Society of B .C . Hydro, Vancouve r Prince George Unemployment Action Centre Prince George Women's Resource Centre Manly, J ., MP, Cowichan-Malahat-The Islands Prince Rupert Labour Council LIST OF PARTICIPANTS AND SUBMISSIONS 34 9 Professional Employees Association, Victori a Pulp and Paper Workers of Canada, Local No . 1, Castlega r Ramesbottom,J .D ., Comox Ransom, Iris, Maple Ridge United Brotherhood of Carpenters and Joiners of America, B .C . Northwest District Council, Locals 1735, 1549, 1081, Prince Ruper t United Brotherhood of Carpenters and Joiners of America, Local 2300, Castlega r Reed, Peter, Vancouver Regan, Ross, Vancouver United Fishermen and Allied Workers' Union, Local 31, Prince Ruper t Reid, W ., Surre y Vancouver and District Labour Counci l Vancouver and District Public Housing Tenants' Reynard, Dennis, Prince George Robinson, R .K ., Langley Robinson, Svend J ., MP, Burnaby Rudhardt, K .L .L ., Sidne y Ryan, Larry, Victori a Salmon Arm and District Chamber of Commerce School District Number 7, Nelson Schraepel, Gloria, Elkford Association Vancouver Board of Trad e Vancouver Island Building and Construction Trades Counci l Vancouver, New Westminster and District Building and Construction Trades Council, Burnaby Scott, BeverleyJ ., Vancouver Vancouver Unemployment Action Centre Selles, Peter, Naramata Vandyke, Pieta M ., Victori a Siquera, Vincent M ., Victoria Victoria and District Labour Council Sjodin, W ., Revelstoke Victoria Chamber of Commerce Smith, Lenora I ., West Vancouve r Victoria Personnel Association Visser, Derek, Winla w Social Planning and Review Council of British Columbia, Vancouve r Waters, C . A ., Armstrong Solidarity Coalition, Vancouver Watkins, B ., Williams Lake Squamish Solidarity Coalition Webb, D ., Vancouver West, J . P ., South Burnab y Stead, R ., Nanaim o Steeves, Kenneth A ., Courtenay Sterner, Kurt, Surrey West Kootenay Power and Light Company Limited, Stretch, Helen, Malakwa Trai l Williamson, T .H ., Ganges Surrey Regional Chamber of Commerce, Wilson, Douglas G ., North Vancouver Vancouve r Thurston, Donna M ., Surrey Thyer, N .H ., Nelso n Touchstone Committee, Victoria Trail Unemployment Action Centre Wilson, Raymond, North Vancouver Women for Economic Survival, Victori a Women in Trades - Kootenay Council, Kootenay Regio n Wood, Leroy V ., Comox Tweed, A .K ., 100 Mile House Woodhouse, John A ., Prince George Unemployed Teachers' Action Centre, Vancouver Unemployed Workers' Centre, Nanaimo Woods, Herbert, Castlega r Woods, T .D ., Vancouver Unemployment Action Centre, Prince Rupert Wray, Cramford P ., Oliver Unemployment Insurance Working Group, Yuuho, Sunee, Victoria Zak, E ., Olive r Vancouver Unemployment Research Group, Vancouver Unitarian Church of Vancouver, Unemployment Sub-Committe e Manitoba Association of Employees Supporting Education tices of the Plumbing and Pipefitting Industry Services, Winnipe g Becker, Felix I ., Thompson of the United States and Canada, Local Union Bennett, Wesley R ., Winnipe g 170, Burnaby Blaikie, Bill, MP, Winnipeg-Birds Hill United Association of Journeymen and Appren- Clark, Lee, MP, Brandon-Souri s Community Unemployed Help Centre, Winnipeg 350 APPENDIX C Deschenes, Elie, Winnipeg Deschenes, Joseph, Winnipeg Brownridge, Ronald, Oromocto Bruce, Carl H ., Bolestown Emberley, Kenneth, Winnipeg Cameron, Ian D ., Fredericto n Gnutel, John, Winnipe g Canada Employment and Immigration Union, New Brunswick Region, Moncto n Government of Manitoba, Department of Employment Services and Economic Security, Canadian Labour Congress, Atlantic Regional Winnipeg Harrison, George, Winnipeg Henderson, Cheryl, Brandon Office, Moncton C .N . Pensioners Association of Canada Inc ., Moncton Council No . 1 Hilderman, Art, Winnipeg Coakley, Charles, Mint o Ireland, G .W ., Winnipeg Irwin, Gordon R ., Winkle r Conseil du travail, peninsule du nord-est du Nouveau-Brunswick, Moncto n J .B . Agri Industries Ltd ., Morden Conseil economique du Nouveau-Brunswick inc ., Job Finding Club, Winnipeg Moncton Manitoba Action Committee on the Status of Women, Winnipe g Corbett, R .A ., MP, Fundy-Royal Cosman, Wilbur M ., Oromocto Manitoba Business Development and Tourism, De Luca, J ., Moncto n Duffy,John L., Fredericto n Winnipe g Manitoba Federation of Labour, Winnipeg Federal Superannuates National Association, Manitoba Teachers' Society, Winnipeg Fredericton and Area Branch, Oromocto Federation des travailleurs du Nouveau-Bruns- McBurney, James B ., The Pas McKenzie, Dan, MP, Winnipeg-Assiniboine Millar, Vern, Souri s National Federation of Nurses' Unions, Thompson National Working Group on the Economy and Poverty, Winnipe g Red River Community College, Winnipeg wick, Moncto n Flemming, Arthur G ., Fredericton Fox, Mel, Oromocto Fredericton Anti-Poverty Organizatio n Fundy Weir Fishermen's Association Inc ., St . Schaefer, Stan, Winnipe g Andrew s Gareau, Gil, Oromocto Simard, Robert and Roland, Winnipeg Geldart, Loris R ., Elgin Social Planning Council of Winnipeg Gerdson, John, Oromocto Toews, John, Selkirk Girard, Albert, MP, Restigouche United Steelworkers of America, Local 6166, Godfrey, Karen A ., St . John Thompson Wilde, John, Winnipeg Winder, Len, Winnipeg Winnipeg Chamber of Commerce Winnipeg Labour Counci l Young Women's Christian Association, Winnipeg New Brunswick Association des pecheurs professionnels acadiens inc ., Shippagan Atlantic Provinces Chamber of Commerce, Moncton Audet, Marcel, Fredericton Barton, B .D ., Rothwell Bennett, Francis, Albert Bennett, Myron L ., Albert Berthelot, L .G ., Campbellton Bierhorst, Muriel, Oromocto Borden, Harold E ., Fredericton Good, David, Oromocto Goodlad, Terence S ., Oromocto Gordon, D ., Newcastl e Government of New Brunswick, Fredericton Greater Moncton Chamber of Commerce Greene, David G ., Tide Head Harding, Doug, Rothesay Hill, Robert, Oromocto Hobday, Leonard T., Fredericton Howie, Hon . J . Robert, MP, York-Sunbury Johnston, Wayne S ., Fredericton Joordens, Thomas, Fredericto n Kent North Truckers Association, St . Louis de Kent King, Richard, Fredericton Kirk, H .W ., Fredericto n Kitts, Clarence E ., Albert County Landry, Vernon, Oromocto LeBel, Myrtle, Plaster Rock LIST OF PARTICIPANTS AND SUBMISSIONS 35 1 Lord,James E ., Chatham Wilson, A .R ., Saint John East Lustig, M . Allan, Oromocto Wood, Lebaron, Nackawic Young, Don, Fredericton MacDonald, Blaine R ., Rothesay MacDonald, James J ., Oromocto Zwoker, M .N ., Oromoct o Maclntosh, Bertha, Chatham MacKinnon, Rodney A ., Oromocto Newfoundland Mason, Guy G ., Westfield Bay St . George Community College, Stephenville McArthur, Georgina, Fredericton Bay St . George Regional Band of Newfoundland Indians, St . George' s McKay, John, Oromoct o McKee, Mike, MLA, Moncton North McKinnon, Barbara, Oromocto McQueen, J . Wayne, Grand Bay Moir, Mel, Fredericto n Mombourquette, J .W ., Minister of Labour, Fredericto n Moncton and District Labour Council, Riverview Montgomery, Stephen, Rothesa y Morais, Albert, Fredericton Murphy, Donald W ., Minto New Brunswick Federation of Labour, Moncton Northumberland County Truckers' Association, Red Ban k Parsons, Keith, Saint John Pert, Robert W ., Shediac Pinsent, Stuart, Oromocto Price, G .R ., Oromocto Progressive Conservative Women's Association, Bragg, Clifford J ., Gambo Canadian Labour Congress, Newfoundland and Labrador, St . John' s Cannell, R.K ., Labrador Coalition for Equality, St . John' s Combined Councils of Labrador, Labrador City Corner Brook Chamber of Commerc e Crocker, Harold F ., Corner Broo k Dunfield Park Tenant Association, Corner Brook Economic Council of Newfoundland and Labrador, St . John' s Fishermen of Fortune Bay, Placentia Bay, Bonavista Bay, Trinity Ba y Fishermen's Union, Local 1252, St . John's Fizzard, Helena, Buri n Fogo Island Co-operative Society Limited Grenfell Regional Health Services, St . Anthony Hiscock, Eugene, St . John' s Ramsay, Thomas B ., Fredericton Kelland,Jim, MHA, Naskaupi Labrador Inuit Association, St . John' s Ricketts, Edward G ., Oromocto Labrador West Status of Women Council, Labrador Oromoct o Russon, Sylvia . Fredericto n St . John District Waterfront Council International Longshoremen's Association, Local 273 Salonius, P .O ., Fredericto n Sargent, Archie and Gloria, Bloomfield Scott, Melrose, Penobsqui s Simcock, William, Fredericton Somerton, Cecil W ., Oromocto Spadoni, L ., Fredericton Starkey, Douglas S ., Queens County Sutherland, J .W ., Oromocto Tompkins, A ., Fredericto n Town of Susse x Valcourt, Bernard, MP, Madwaska-Victoria Cit y Lush, Tom, MHA, Bonavista Nort h Modified Industry and Labour Adjustment Program (MILAP), Labrador Cit y Moore, Kevin M ., Corner Brook Newfoundland and Labrador Employers' Labour Relations Council, St . John's Newfoundland and Labrador Federation of Labour, St . John's Newfoundland and Labrador Fisheries Producer Co-operative Association, St . John's Newfoundland . Fishermen, Food and Allied Workers Union, St . John' s Village Council of Eel River Crossing Newfoundland Teachers' Association, St . John's Orr, James C ., St . John' s Village of Belledun e Petty Harbour Fishermen's Producer Co-operative Village of Mint o Warnock, Fred, Fredericton White, Harold, Fredericton Willar, Donald H ., Fredericton Society Ltd . 352 APPENDIX C Provincial Advisory Council on the Status of Women, Newfoundland and Labrador, St . John' s Prowse, K .R .J ., Deer Lake Rompkey, Hon . William, MP, Grand Falls-White Bay-Labrado r Forsyth, William R., Chester Basin Fudge, David, Deep Brook Gale, Edward, Lower Sackville Geldart, Loris R ., Elgi n Gibbons, Michael, Musquadobort Harbour Government of Nova Scotia, Halifax St . John's and District Labour Council Halifax Board of Trade St . John's Board of Trad e Hall, Allison G ., Annapolis County St . John's Status of Women Council Hamer, Derek, Halifax Sparks, Jean, St . John' s Hatch, Peter C ., Hantspor t Taylor, James A ., Con Bay Taylor, Leonard, Crique t Hurley, Gardner, MLA, Cumberland West Tobin, Brian, MP, Humber-Port Au Port-St . Barbe Igoe, John M ., Weymout h John's Cove Fisheries Ltd, Yarmouth Torngat Fish Producers Co-operative Society Ltd ., Jones, David B ., Sackville Happy valley Town of Glenwoo d Kennedy, Donald J ., Dartmouth Kerans, Patrick, Halifax Unemployment Action Committee, St . John's Lacroix, Mary Dale, Yarmouth Warren, Garfield, MHA, Torngat Mountai n Lingley, Edward, Dartmouth White Bay North Development Association, St . Anthony Lively, C .E ., Weymout h Lunenburg County District School Board, Women's Involvement Committee, Dild o Nova Scotia Annapolis Valley Labour Council, Hantsport Beaver, Dorothy, Halifa x Boyd, R .W ., Yartmout h Breton Industrial and Marine Limited, Port Hawkesbury Burke, Stanley L ., Greenwoo d Canadian Seafood and Allied Workers' Union, Local 116, North Sydne y Cape Breton Development Corporation, Sydney Cape Breton Island Building and Construction Trades Council, North Sydne y City of Halifax, Social Planning Department Coates, Hon . Robert C ., MP, Cumberland-Colcheste r Comeau, Gerald, MP, South West Nova Community Initiatives Support Network, Halifax Dalhousie Staff Association, Halifa x Dennison, Charles, Middleton Diamond, A .R ., Stellarton Element National Component, Halifax Enriquez, Charles, Antigonis h Everett, Ernest M ., Digby Farmer, Emily, Halifax Farnsworth, Stanley, Lakeside Ferreira, Winston, Annapolis Royal Fillmore, Gerald E ., Newport Fitzgerald, James, Halifax Fleming, James, Halifax Bridgewate r MacAulay, W .G ., Greenwood MacDonald, Blaine R ., Rothesay MacDonald, Hugh, North Sydney MacDonald, Kathleen, D'Escousse MacKenzie, Don, Greenwood MacKenzie, Steve, Sydney MacLean, Alma, Amherst MacLeod, Greg, Sydney MacMillan,J .N ., Cornwallis MacNeil, Gary, New Glasgow Mainland Nova Scotia Building and Construction Trades Council, Halifax Marshall, Wayne, Bridgewater Menzies, Janet, Halifa x Metro Action Committee for Employment, Halifax Meuse, Harold, Yarmout h Mitton, June, Street Harbour Montgomery, Thomas R., Chester Basin Murphy, William J ., Mahone Ba y Nova Scotia Certified Nursing Assistant Association, Halifax Nova Scotia Federation of Labour, Halifa x Nova Scotia Government Employees Union, Halifax Nowlan, Patrick, MP, Annapolis Valley-Hants Oakley, Arthur, Granville Ferr y Oxford, Raymond, Cape Breton Pensioners Against UI Injustice, Sackville Pettipas, AndrewJ ., Halifax LIST OF PARTICIPANTS AND SUBMISSIONS 35 3 Ranger, Lionel H ., Dartmouth Rousseau, Jacques, Plympton Algonquin College of Applied Arts and Technology, Nepea n Roy, Dianne, Dartmouth Alliance of Canadian Cinema, Television and Sadler, M ., Halifa x Radio Artists, Toront o Amalgamated Clothing and Textile Workers Saunders, John A ., Newport Saurette,J ., Deep Brook Semple, Matthew L ., Dartmouth Simourd, J .G ., Halifa x Skiba, Shirley, Dartmouth Southwest Nova Scotia Fish Packers Association, Metegha n Union, Toront o Angus, lain, MP, Thunder Bay-Atikoka n Apparel Manufacturers Association of Ontario, Toront o Aquafarms Canada Limited, Feversham Armstrong, Grant G ., Trenton Tomlinson, Gordon F ., Dartmouth Association of Canadian Distillers, Ottawa Tompkins, A ., Fredericton Association of Part-Time Undergraduate Students, Township of Pictou Toronto Truckers' Association of Nova Scotia, Halifax Attewell, William C ., MP, Don Valley East Tupper,J .D ., Kingston Axe, Lawrence, Kincardine United Brotherhood of Carpenters and Joiners of Balch, Joan, Toronto America, Local 1588, Sydney Vicar, Bruce A .M ., Middleton Voluntary Planning, Halifax White, Thomas, Yarmout h Bauer, Ray, Frankford Baugh, David J ., Toronto Baxter, Leslie D ., Orleans Bayne, Francis W ., Thunder Bay Women's Employment Outreach, Halifax Beath, J .G ., Trento n Wood, Charmaine, Halifa x Beatty, William, Willowdale Wood Product Manufacturers Association of Nova Beeby, Dean, Toront o Scotia, Lower Sackvill e Young, Brian, North Sydne y Bell, Alex G ., Carrying Place BeII,John R ., Frankford Bell, R .J ., Brighto n Northwest Territorie s Advisory Council on the Status of Women, Frobisher Bay Apprenticeship In-Training Service, Government of the Northwest Territories, Frobisher Bay Cairns, Rosemary, Yellowknife Deh Cho Regional Council, Fort Simpson Dene Band, Fort Simpso n Dene Nation, Yellowknif e Government of the Northwest Territories, Yellowknife Government of the Northwest Territories, Depart- Benetech Canada Inc ., Toronto Berwick Ferguson Payroll Canada Ltd ., Toronto Bird, Debbie, Fergu s Bissonnette, Cecil J ., Copper Cliff Board of Trade of Metropolitan Toronto Booth, R.F ., Mississauga Bosley, Hon . John (Speaker of the House of Commons), Ottaw a Bracher, Susan, Toronto Branch, Anna, Orillia Bray, I ., Orangeville Breimer, Theo J ., Kingston ment of Economic Development and Tourism, Brett, T .M ., Stirlin g Baffin Region, Yellowknife Brien, Joseph, Toronto Northwest Territories Federation of Labour, Yellowknife Northwest Territories Public Service Association, Yellowknife Pasiciel, Rita, Inuvi k Yellowknife Chamber of Commerce Ontario Abramowitz, Michael, Glouceste r Alcan Placement Assistance Committee, Kingston Brightman, L ., Peterborough Brittain, John, Stittsville Britton, Kenneth H ., Agincourt Broderick, T .C ., Trenton Brookes, T .A .F ., Baden Brotherhood of Railway and Airline Clerks, Thunder Ba y Brown, Dale C ., Wellington Brown, Herbert T ., Toronto 354 APPENDIX C Browning-Ferris Industries Ltd ., Thunder Bay Buchanan's Mink Ranch Inc ., Laure l Canadian Horticultural Council, Nepean Canadian Hospital Association, Ottawa Building and Construction Trades Department, Canadian Human Rights Commission, Ottawa AFL/CIO, Ottaw a Burlington Chamber of Commerce Canadian Institute of Actuaries, Ottawa Burridge, Bruce W ., Thunder Bay Canadian Life and Health Insurance Association Busbridge, T ., Scarborough Buss, G ., Kingston Inc ., Toronto Canadian Manufacturers' Association, Toronto Caccia, Hon . Charles, MP, Davenport Canadian Organization of Small Business, Mark- Cambridge, G ., Bellevill e Canadian Labour Congress, Ottaw a ha m Campbell, Mary A ., Hamilton Campbell, W .R ., Trento n Canadian Paraplegic Association, Toronto Canada Employment and Immigration Advisory Canadian Railway Labour Association, Ottawa Council, Ottaw a Canada Employment and Immigration Union, Ottawa Canada Employment and Immigration Union, Ontario Region, Toronto Canadian Actors' Equity Association, Toronto Canadian Advisory Council on the Status of Women, Ottawa Canadian Artists' Representation (CARFAC), Ottaw a Canadian Association for Adult Education, Toront o Canadian Association of Movers, Hamilton Canadian Association of Professional Dance Organizations, Toront o Canadian Payroll Association, Toronto Canadian Restaurant and Foodservices Association, Toront o Canadian School Trustees' Association, Ottawa Canadian Shipbuilding and Ship Repairing Association, Toront o Canadian Teachers' Federation, Ottawa Canadian Textile and Chemical Union, Toronto Canadian Union of Public Employees, Ottawa Canadian Union of United Brewery, Flour, Cereal , Soft Drink & Distillery Workers, Toronto Canital Insurance Limited, Malto n Capital Tool and Design Limited, Concord Carmichael, D .J ., Kanat a Carr, G .L ., Nepea n Cassidy, Michael, MP, Ottawa Centre Canadian Association University Continuing Celetti, Paul, Sault Ste . Marie Education, Toront o Canadian Bankers' Association, Toronto Chadband, Edward, Stell a Chamber of Commerce, Niagara Falls Canadian Chamber of Commerce, Ottawa Charlebois, Laurier, Cornwall Canadian Conference of Catholic Bishops, Ottaw a Charron, Ray, Windso r Canadian Conference of Teamsters, Ottawa Cherry, RosemaryJ ., Baltimore Canadian Conference on the Arts, Ottawa Chevalier, Ernest, Trenton Canadian Congress for Learning Opportunities fo r Chidgey, Peter, Yarke r Women, Toront o Canadian Construction Association, Ottawa Canadian Council on Social Development, Ottawa Canadian Dump Truckers Federation, Ottawa Canadian Electrical Distributors Association, Don Mill s Canadian Federation of Independent Business, Ottaw a Canadian Federation of Labour, Ottawa Canadian Federation of Students, National Graduate Council, Toront o Canadian Food Processors Association, Ottawa Choice in Child Care Committee, Ottaw a Church and Community : Partners for Employment, Toront o Chute, Ruth, London Citizens for Public Justice, Toronto Clements, D .R ., Ottawa Clowater, R .J ., Trenton Cole, D .W ., Trento n Communist Party of Canada, Central Executive Committee, Toronto Communist Party of Canada, Northwest Ontario Canadian Hearing Society, Toront o Regional Committee, Thunder Bay Community College Teachers, Hamilton Canadian Home Builders' Association, Ottawa Community Impressions Ltd ., Durham LIST OF PARTICIPANTS AND SUBMISSIONS 35 5 Community Initiatives Support Network, Ottawa Energy Pathways Inc ., Ottaw a Confederation of Canadian Unions, Toronto Epp, Ernie, MP, Thunder Bay-Nipigo n Cooney, Joan, Bellevill e Essex and Kent Counties Building and Construc- Copps, Sheila, MP, Hamilton East Corak, Miles R ., Kingston Corbett, Lester, Petawawa Cornet, Herman C .J ., Kingston Corporation of the City of North Bay, Department of Social Se rvices Corporation of the City of Windsor, Social Se rv ices Department Corporation of the Town of Gore Ba y Corporation of the Township of St . Joseph, Richards Landing tion Trades Council, Windsor Etobicoke Advisory Committee on Unemployment, Rexdale Family Service Association of Metropolitan Toronto Federal Superannuates National Association, Ottaw a Federated Women's Institutes of Canada, Ottawa Federation of Automobile Dealer Associations of Canada, Willowdale Federation of Temporary Help Services, Toronto Coughlan, W .J .P ., West Hil l Fennell, Scott, MP, Ontari o Council of Ontario Contractors Associations, Ferguson, Doris, Monkland Willowdal e Ferrie, Douglas S ., Weston County of Bruce, Social Se rv ices, Walkerton Cowan, Ma ry , Minde n Fisher, Larry, Pembroke CP Express and Transport, Cobourg Cringan, Craig, Mississauga Fitzpatrick, Michael, Don Mills Fisheries Council of Canada, Ottawa Cronkwright Transport Limited, Simcoe Fontaine, Fernand, Ottawa Fortier, Guy, Gloucester Crow, Don, Wallaceberg Fortin, Maurice, Belleville Cruddas, Edward, Willowdale Foster, Barbara, Sault Ste . Marie Cuddy Farms Limited, Strathroy Foster, David, North York Cummings, She ry l L ., Kincardine Foster, Maurice, MP, Algoma Curto, C ., Hamilto n CUSO ( Canadian University Se rv ices Overseas), Francescone, B ., Trenton Fraser, Barry, Hamilto n Davis, Patricia, Hamilton Ottawa Frith, Hon . Douglas C ., MP, Sudbury Gastle, Mary, Burlingto n Dawe, William J ., Neustadt Gearing, W .R ., Orilli a Daynard, Kenneth G ., Chalk River Gervais, Aurele, MP, Timmins-Chapleau Dean, W .J ., Ottaw a Gilligan, D .J ., Agincour t Dennison, Pauline Joan, Ingleside Department of National Defence, Ottawa Gloin, James R ., Mount Brydges Dewart, Sheila, Toront o Gough, Pamela R ., Etobicoke Grant, Marcia, Hamilton Dobby, E ., Oshawa Dow, Muriel, London Gosselin, E . P ., Thunder Bay Gray, Hon . Herb, MP, Windsor West Dowding, Gerald S ., Windsor Green, Len and Betty, Guelph Dragenovich, Lynda, Sault Ste . Marie Greenwood-Speers, Judy, Waterlo o D .S . Rudd Associates Limited, London Duczak, Linda J .M ., Allisto n Grey-Bruce Canada Farm Labour Pool, Owen Duncan, Murray, Scarboroug h Guerin, Gary L ., Toronto East Gate Alliance Church, Ottaw a Economists, Sociologists, and Statisticians Asso- Guetter, John, Woodstock Gurbin, Gary M ., MP, Bruce-Gre y ciation, Ottawa Soun d Hall, Donald F ., Scarborough Edgar, Frank, Trenton Hall, Doug, Brantford Edwards, W .S ., Mooretown Hamilton and District Labour Council Cldon,Jean E ., Ottaw a Employees of Samsonite, Stratford Hamilton and District Chamber of Commerce 356 APPENDIX C Hamilton-Brantford, Ontario Building and Construction Trades Counci l Hardey, Elliot, Chatham Harris, Freda, Par ry Sound Jesseau, Albert, Orillia Johnston, Douglas B ., Ottawa Kam Theatre, Thunder Ba y Hart ry , V .M ., Frankford Keewaytinok Native Legal Services, Moosonee Kellogg, Dora, Willowdal e Hassall, Jack, Huttonville Kemp, Ronald W ., Belleville Hayes, Howard, Trenton Kendall, Dave, Pembroke Haythorne, George V., Ottawa Kinna-Aweya Legal Clinic, Thunder Bay Heap, Dan, MP, Spadina Kitchener-Waterloo and District Community Heard, Barbara, Willowdale Industrial Training Committe e Klein, George, Toronto Helmkay, D ., Rainy River Hemingway, John A ., Kanata Kozulak, A ., Gloucester Henderson, Cheryl, Brandon Kramer, Sara, Belleville Heppell, Christina, Scarborough Kroeker, John, Ottawa Hiel, Dolf, Scarboroug h Kroeplin, James, Walkerton Hill, Bruce, Ottawa Kubisheski, Carole J ., Renfrew Hill, R .C ., Mississauga Kuley, Erika, Sarni a Kutac, Zdenek, London Hillier, Tammy, Kingsville Hoddinott, Margaret, Rexdale Holophane-Manville Canada Inc ., Brampton Kvas-Jemec,Josie G ., Toront o Labour Adjustment Review Board, Ottawa Holt, Bernard, Toront o Labour Council of Metropolitan Toronto, Don Hoover, Jay, Brantford Hore, Raymond E ., Trenton Hucul, S ., St . Alber t Mill s Labourers' International Union of North America, Toront o Hughes, Frank P ., Hawkesbu ry Hughes, G .W ., Petawawa Lagorio, BE ., Carrying Place Hughes, Laughlin, Toront o Humane Society of Ottawa-Carleton Langhorne and Lynch, Cobourg Lavallee, Philippe, Gloucester Hutchinson, M ., Willowdal e Lavoie, Gaston, Ottaw a INCO Limited ( International Nickel Company of Lawr, Mary, Haliburto n Ontario), Toront o Lane, Arja, Sudbury Lea, Joseph William, Etobicoke Independent Artists' Union, Toront o Leduc, Rose Marie, Victoria Harbour International Association of Bridge, Structural and Lefebvre, Ernest, Rockland Ornamental Iron Workers, Local 736, Hamilto n Legal Assistance of Windsor Lewis, Doug, MP, Simcoe North International Brotherhood of Electrical Workers, Lewis, Henry, Prescott Local Union 353, Toront o International Longshoremen's Association, Link-up Delivery Ltd ., Hamilton Toront o International Union, United Automobile, Aerospace and Agricultural Implement Workers of America (UAW), Willowdal e Intertech Engineering Corporation, Toronto Isaacs, L ., Trenton James Fibre-Glass Manufacturing Co . Ltd ., Shelburne Jefferson, James E ., London Jensen, Clarence H ., Ottawa Jess, Michael, Hamilton Lewis, J .T ., Ingersol l Local Agricultural Employment Advisory Board, Kent and Are a Local Agricultural Employment Advisory Board, Ontario Region of the Counties of Northumberland and Durham, Chatha m Local Agricultural Employment Advisory Board, Ottawa Valle y Local Agricultural Employment Advisory Board, Stormont-Dundas Logan, Ralph A ., Beachburg London and District Labour Council London Union of Unemployed Workers 1 .1ST OF PARTICIPANTS AND SUBMISSIONS 35 7 Loosemore, Doreen, London Moser, A ., Brampton Lozowy, Nadia, Etobicoke Motor Vehicle Manufacturers' Association, Luff, William, Bellevill e MacDougall, John A ., MP, Timiskaming Mountainview Homes, Thorold MacFie, Alex, Windso r Toront o MacGillivray and Company, St . Catharines Mudrick, Florence, Willowdale Mullen, Alastair, Pembrok e Machinery and Equipment Manufacturers' Asso- Municipalite de Cosby-Mason et Martland, Noel- ciation, Ottawa vill e MacKinnon, William, Trenton MacNeill, Ida L ., Pembroke Municipality of Metropolitan Toronto, Metropolitan Community Services Departmen t Madsen, Jay S ., Port Perry Malmud, Maureen, Toronto Nagpur, Anant, Ottawa Management Science America (Canada) Ltd ., Toront o Marquardt, Charles, Eganville Martin Lacey Agencies Limited, Toront o National Action Committee on the Status of Women, Toront o National Anti-Poverty Organization, Ottawa National Association of Women and the Law, Ottawa Mayor's Committee on Employment Opportuni- National Citizens' Coalition, Toronto ties and Services to the Unemployed, Windsor McCarthy and McCarthy, Toronto National Committee for Independent Canadian McCormack, Shirley, Thunder Bay Unions, Hamilto n National Council of Women of Canada, London McDermid, John, MP, Brampton-Georgetown National Council of YMCAs of Canada, Ottawa McDonald, Donald D ., Windso r National Union of Provincial Government McFarland, W .J ., Fort Erie Employees, Ottaw a McFarlane, R ., Trenton Native Council of Canada, Ottawa McHersch, Mary, Toronto McIntosh, G .C ., Waterloo Native Friendship Centre, Sudbury McKeage, R .G ., Kanata McKelvie, Harry, Kitchener Neukamn, Emil, Aylme r Neish, P ., London McLean, Donald S ., Orillia . New Democratic Party Caucus Nickerson, Brenda, Mississauga McLean, Harvey, Lively Niven, Robert, St . Catharine s McLean, L ., Athen s North Eastern Ontario Senior Citizens' Associa- Mechanical Contractors Association of Canada, tion, Sault Ste . Mari e Northern Wilderness Outfitters Ltd ., Fort Frances Ottaw a Mehlenbacher, Yvonne, Ancaster Melville, Robert M ., Frankford Methuen, A ., Toronto Meyrink, George, Puslinch Millan, Earle T ., Don Mills Miller, Ronald, Toronto Mills, G .E ., Milto n Norton, D .O ., North Bay N'Swakamok Native Friendship Centre, Sudbury Ontario Coalition for Better Day Care, Toronto Ontario English Catholic Teachers' Association, Toronto Ontario Federation of Labour, Don Mills Mines, Robert H ., Thunder Bay Ontario-Manitoba Primary Council of the Canadian Paperworkers Union, Thunder Ba y Mining Association of Canada, Ottaw a Ontario Metis and Non-Status Indians' Associa- Ministry of Community and Social Services tion, Sault Ste . Mari e Ontario Nurses' Association, Toront o (Ontario), Cobourg Mitchell, F .B ., Trenton Ontario Provincial Council of Labour, Scarbor- Mitchell, John, Pembroke Mollot-Jodi, Joanne, Brampton oug h Ontario Provincial Police Association, Barrie Montone, Toni, Kanata Ontario Public Service Employees Union, Toronto Morgan, Cathie, Hensall Ontario Public Service Employees Union, Local Morrison, Lloyd, Guelph 595, Toronto 358 APPENDIX C Ontario Secondary School Teachers' Federation, Toront o Royal Canadian Mounted Police Veterans' Association, Toront o Ontario Trucking Association, Toronto Rozon, Barbara, Vankleek Hil l Organization of Canadian Symphony Musicians, Rubber Association of Canada, Mississauga Rexdale St-Pierre, Ronald, Sudbury Osgoode Hall Law School, Downsview Santry, Gladys, North Ba y Ottawa Board of Educatio n Pappel, Albert, Barri e Sarnia and District Chamber of Commerce Pastoral Institute of Northern Ontario, Sudbury Payne, G .W ., Frankford Saunders, Maureen, Willowdale Saweczko, Jilian M ., Toront o Pearson, T .L., Londo n Scheepers, Alida, Winchester Penner, Keith, MP, Cochrane-Superior Scott, Bill, Pembroke Perry, Peter, Collingwood Shekter, B .B ., Hamilton Peterborough Hut Restaurant Limited Simpson, B .M ., Cobourg Peters,J .D .W ., Manotic k Petrie,J .W ., Ottawa Sioux Lookout Community Legal Clinic Pettingil, John, Wellington Sloan, R . F ., Trento n Sarnia and District Labour Council Sirois, Therese, Petawawa Phoenix Global Ltd ., Rexdale Smook, Maurice, Stoney Cree k Pietz, Allan, MP, Welland Social Planning Council of Kitchener-Waterloo Social Planning Council of Metropolitan Toronto Platt, Kenneth J ., Toronto Poirier, M .C ., Trento n Social Planning Council of Oshawa-Whitby Pounder, Malcolm B ., Carrying Place Social Planning Council of Ottawa-Carleton Practical Concepts Inc ., Ottaw a Professional Computer Consultants Group Ltd ., Soper, Joan, Toront o Toront o Professional Institute of the Public Service of Canada, Ottaw a Provincial Building and Construction Trades Council of Ontario, Hamilto n Stackhouse, Reginald, MP, Scarborough West Starmph, F ., White Rive r Status of Women Canada, Ottawa Stein, R .W ., New Marke t Stewart, Joseph 0 ., Salem District Steylen, Ann, Beamsvi I le Public Interest Advocacy Centre, Ottawa Public Service Alliance of Canada, Ottawa Stoakes, Robert, Ottawa Ray, A .K ., Gloucester Stuart, John W ., Belleville Rea, Samuel A ., Toronto Sudbury and District Chamber of Commerce Read, A .D ., Bellevill e Sudbury Mine, Mill and Smelter Workers Union, Rector, William MacKinnon, Trenton Redway, Alan, MP, York East Regional Municipality of Ottawa-Carleton Regional Municipality of Sudbur y Strong, Anne, Orleans Local 59 8 Sudbury Multicultural-Folk Arts Association Sudbury Women's Centre Sutter, Stewart, Ottawa Reid, Joe, MP, St . Catharines Swackhammer, E ., Honey Harbour Reid, W ., Concord Szlapa, Dieter, Paisley Retail Council of Canada, Toronto Tang, Leticia, London Rexdale Planning Theriault, Gerry, Gloucester Richardson, Violet, Grafton Thompson, Bob, Willowdale Thunder Bay Council of Retirees Rittinger,J .E ., Trenton Robertshaw, Thomas, Toronto Robertson, W .R ., Cobourg Tiessen, Herb, Trento n Rocky Bay Band, MacDiarmid Toronto Legal Clinics' Unemployment Insurance Rolica, Lillian Roberta, Kerwood Tops Car Wash Company Ltd ., Ottawa Workgrou p Roy, Claude, Sudbur y Toronto Union of Unemployed Workers Royal Canadian Mounted Police, Ottawa Torrance, Mary M ., Kingston LIST OF PARTICIPANTS AND SUBMISSIONS 35 9 Township of Tehkummah Working Centre, Kitchener Tripp, Stephen G ., Trenton Wotton, John, Pert h Unemployed Help Centre of Windsor Unemployed Workers' Network, Thunder Bay Wright, Timothy G ., Hamilton Unemployment Help Centre, Kingston Zamora, Nancy L ., Toronto United Auto Workers, Local 707, Oakville Zollner, Heinz, Trenton United Auto Workers, North York, Willowdale Zuker, Richard C ., Nepea n United Church of Canada, National Workin g Group on the Economy and Poverty, Toronto Prince Edward Island United Electrical, Radio and Machine Workers of Canada, Don Mills United Food and Commercial Workers Union, Rexdal e United Steelworkers of America, Thunder Bay United Steelworkers Association of America, Toront o United Steelworkers of America, District 6, Thunder Bay United Steelworkers of America, Hamilton Area Counci l United Steelworkers of America, Local 1005, Hamilton United Steelworkers of America, Local 5055, Thunder Bay United Steelworkers of America, Local 6500, Sudbu ry United Steelworkers of America, Local 8995, Simco e University of Toronto Uriarte, Joseph, Mississauga Van Embden, R ., Azilda Voss, Susan, St . Catharines Walker, Sandra S ., Mississauga Warne Marketing and Communications, Toronto Warner, Norman, MP, Stormont-Dundas Waterloo, Wellington, Dufferin and Grey, Buildin g and Construction Trades Council, Kitchener Watson, Constance, Ashto n Yando, S .A ., Niagara Falls Atlantic Provinces Chamber of Commerce, Charlottetown Binns, Pat, MP, Cardiga n Canadian Manufacturers' Association, Prince Edward Island Branch, Charlottetown Community Advisory Board, Southern Kings an d Queens Services Centre, Montague Construction Association of Prince Edward Island, Charlottetown Coyle, F .C ., Charlottetown Dennison Woodcutting Co ., Victoria Gallant, Ed, Hilltop and North Rustico Government of Prince Edward Island, Charlottetow n Greater Summerside Chamber of Commerce Irving, Axel, Murray Harbou r Latin American Mission Program, Charlottetown MacAusland, Colin, Parkdal e Maritime Fishermen's Union, Charlottetown Potato Producers' Association of P .E .I ., Kensingto n Prince Edward Island Federation of Labour, Charlottetow n Prince Edward Island Fishermen's Association, Charlottetow n Prince Edward Island Opposition Caucus, Charlottetow n Prince Edward Island Truckers' Association, Charlottetow n Wharton, J .S .D ., Kanata Roberts, Hugh D ., Belfast Wilds, Milford J ., Barri e Royal Canadian Legion, Branch No . 26, Morrell William M . Mercer Limited, Toronto Schroeder, Julie, Bangor Roa d Social Action Commission, Roman Catholic Williams, Janet, Owen Sound Williams, Sydney A ., Ottawa Wilson, Andrew M ., London Diocese of Charlottetow n Walker, Felix, Cardiga n Windsor and District Labour Counci l Windsor Youth Employment Counselling Centre Ward, James W ., Charlottetown Wise, Hon . John, MP, Elgi n Wood, Ross E ., St . Williams Abbey-Finestone Inc ., Westmount Quebec Woolhouse, Mr . and Mrs ., Toronto Action-travail des femmes, Montreal Alliance des professeurs de Montreal Workers' Compensation Board, Toronto Amyot, Florian, Pointe-aux-Trembles 360 APPENDIX C Association des anciens de la SCHL de la region du Quebec, St-Lauren t Canadian Pulp and Paper Association, Montreal Canadian Textiles Institute, Montrea l Association des constructeurs de routes et grands Carrefour des mouvements d'action catholique, travaux du Quebec, St-Jean-sur-Richelieu Association des femmes collaboratrices, St- Centrale de l'enseignement du Quebec, Montreal Lamber t Association des manufacturiers canadiens, Montreal Association des manufacturiers de bois de sciage du Quebec, Quebec comite diocesain d'action catholique, Quebec Centrale des syndicats democratiques, Montreal Centre d'emploi du Canada, section syndical e locale 10430, Riviere-du-Loup Centre des femmes de Riviere des Prairies, Montrea l Association des proprietaires de machinerie lourde du Quebec inc ., St -jean -sur-Richelieu Centre local de services communautaires Les Association des retraites de Montmorency, Beau- Chambre de commerce de Grandes-Piles por t Association des retraites sans Assurance-chomage, Quebe c Association du personnel de l'enseignement de la regionale Carignan, Sore l Association quebecoise des payeurs, Anjou Association quebecoise pour la defense des droits Aboiteaux, St-Pasca l Chambre de commerce de Riviere-du-Loup Chambre de commerce du Quebec, Montreal Champagne, Michel, MP, Champlain Champagne, Paul, Fabrevill e Charbonneau, Rosario, Verdun Charron, Rheal D ., Charny Chenel, Walter, Port-Cartier des retraites et des pre-retraites, Trois- Chevrier, Viateur, Montrea l Rivieres Audouin, Sylvie, Montreal Chinese Neighbourhood Society of Montreal Clarke, Angeline, Montreal Ayotte, Ernest, Princeville Clermont, Rene, St-Hubert Bannister, Lloyd, La Salle Cloutier, Paul, Trac y Barrette,J .R ., Longueuil Beauchemin, Jeanne, Quebec Coalition des organismes communautaires du Beauregard, Margo, Montreal Comite action-chomage Kamouraska inc ., St- Bechard, Jeanne d'Arc, Chateauguay Quebec, Montreal Bruno Bechard,Lucie, Chateaugua y Comite d'adaptation communautaire, Sept-Iles Bell Canada, Tax Administration Division, Mont- Comite de reclassement de la compagnie miniere Quebec Cartier, Sept-Iles rea l Berger, David, MP, Laurie r Comite des retraites, Rivi&e-du- Loup Bernier, F .O ., Dollard des Ormeaux Boisvert, Lorraine, Montrea l Comite pre-retraite Cascades East Angus Booth, S .C ., Pointe-Claire Bouchard, Jacques, Ville la Baie Boucher, Jerome, Sept-Ile s Bourque, Jean-Paul, Otterburn Heights Bourque, Noella, Montreal Brisson, Lucie, Montreal Comite socio-economique des Iles-de-la-Madeleine Commission des services juridiques, Montreal Compagnie miniere IOC, Sept-Ile s Compagnie miniere Quebec Cartier, Port-Cartier Confederation des syndicats nationaux (CSN), Montrea l Brunelle, Romuald, Montreal Bruyere, Robert, Montrea l Conseil central des syndicats nationaux de la Campeau, Cousineau and Ouellet, Montreal Conseil central des syndicats nationaux de Sept- Campeau, Pierrette, Montrea l Canadian Forestry Service, Hul l Ile s Conseil conjoint numero 91 des teamsters du Canadian Office Employees Union, Ville MontRoya l Canadian Paperworkers Union, Montreal Canadian Police Association, Montreal region de Quebec, Quebec Quebec, Ville D'Anjou Conseil du patronat du Quebec, Montrea l Conseil paroissial de pastorale de la communaute St-Hyacinthe-le-Confesseur, St-Hyacinthe LIST OF PARTICIPANTS AND SUBMISSIONS 36 1 Conseil provincial du Quebec des metiers de la construction (International), Montrea l Conseil regional de developpement de la Cote Nord, Baie-Comea u Frenette, Maurice, Verdun Gagne, Mireille, Victoriaville Gagnon, Benoit, St-Eugene Gagnon, Jean, Canton Tremblay Conseil regional de pastorale, Pointe-au-Pic Gaudreau, Denise, Granby Cooper, D .B ., Hudson Heights Gaudreau, Pierre, Montreal Corporation des maitres mecaniciens en tuyauterie du Quebec, Ste-Fo y Geltman, Harold, Montreal Girouard, Derek E ., Chambly Corporation municipale de St-Medard, Comte de Goldsmith, Bernice, Montreal Rimousk i Goltman, D .M ., Montreal Cote, Gaetane, Princeville Groupe Sobeco Inc ., Montreal Cote, Jacques, Montreal Grow, R ., Verdu n Couture, Carol, Sept-Iles Guilbault, Jean-Guy, MP, Drummond Couturier, Gvana, Jonquiere Della Noce, Vincent, MP, Duvernay Guimond,Jean-Marc, Montreal Desrochers, Lucienne, Quebec Dextraze, Prudent, St-Jea n Helie, Bertrand, Val d'Or Hesse, Mervin M ., Farnham Hayeur, Lucie, Anjo u Doyon, Donald, St-Georges-de-Beauce Hogues, Jean-Paul, Charny Drolet, Louis, Charny Hooles, Patricia, Greenfield Par k Dube, Alphonse, Trois-Rivieres Hopital d'Argenteuil, Lachute Dube, Guy, Lava l Dubuc-Bouvier, Madeleine, Montreal Houle, Paul-Cmile, Alm a Hubert, Paul E ., Iles-de-la-Madeleing Faucher, F ., Montrea l lafigliola, Giuseppe, St-Leonard Federally Regulated Employers - Transportation Jacques, Jean- Pau1, Pointe-aux-Trembles and Communications, Montreal Federation des associations de families monoparentales du Quebec inc ., Montrea l James Bay Cree Corporation, Montreal Jansz, Clifford H ., Dorva l Jones, William A ., Pierrefonds Federation des femmes du Quebec, Montreal Federation des policiers du Quebec, Montreal Kaye, G .H ., Chateaugua y Federation des producteurs de pommes d u Labelle, Gilles, Montreal Quebec, Longueui l Federation des producteurs maraichers du Quebec, Longueui l Federation des syndicats du secteur aluminium inc ., Jonquiere Federation des travailleurs du papier et de la foret (CSN), Montrea l Keable, Guy, Pointe-aux-Trembles Ladouceur, Marcel, Ste-Julie L'Alliance des professeurs de Montreal L'Allier, Carmen, Montrea l Lamazzi, Gino, Laval Lamazzi, Linda, Fabreville Lamazzi, Pauline, Laval Lapierre, Gaston, St-Georges Federation des travailleurs et travailleuses du Quebec, Montrea l Larouche, Paul, Chicoutimi Ferguson, Therese, Cap des Rosiers Fieger, Rudolf, St-Huber t Lecours, Yvan, Princeville Leditt, Art, Montreal Fillion, Claude, Arthabasca Les travailleurs sans emploi enr ., Shawinigan Fitzpatrick-Martin, Iris, Montreal L'Hirondelle, comite d'accueil inter-ethnique, Fleury, Gerard, Dolbea u Lavigne, Ghislaine, Montreal Montreal Forcier, Gaston, Drummondville Forte, Angelo, Laval-des-Rapides MacLeod, Carol, Montreal Franklin, Karina, Beaconsfield Maison des jeunes de Mont-Joli inc . Fraser, Noel C ., Montrea l Martineau, Serge, Montreal Mastercraft Leather Goods Ltd ., Montreal Fraternite nationale des charpentiers-menuisiers, forestiers et travailleurs d'usines, Montreal Mainguy, Gerard, Sept-Iles McTiernan, Cecil, Shawville 362 APPENDIX C Michaud, Renald, Loretteville Morin, Suzanne, Montreal Reseau d'action et d'information pour les femmes (RAIF), Sillery Mousseau, Jacques, Aylme r Ricard, Guy, MP, Laval Mouvement action chomage de l'Outaouais, Hull Mouvement action chomage de Montreal inc . Rinfret, Carole, Montreal Robert, Denyse, Montreal Mouvement action chomage de Quebec inc . Robitaille, Lionel, Grand'Mere Mouvement action chomage de St-Hyacinthe Roy, Constance, Granby Mouvement action chomage de Trois-Rivieres Ruel, Louise, Frelighsburg Mouvement socialiste du Quebec, Montreal St-Arneault, Marcel, Montreal Municipalite regionale du comte de Matane St-Pierre, Edith, Oka Municipalite regionale du comte de Pontiac , St-Pierre, Ronald, Mascouche Campbell's Bay Nadeau, Fernand, St-Amable Neumann, Ralph, Roxbor o Office diocesain de pastorale ouvriere et sociale, Shawinigan Office de pastorale ouvriere et sociale, diocese de Trois-Riviere s OPCAN, Montrea l Organisation populaire des droits sociaux, Montrea l Organisme d'alphabetisation "lettres vivantes", Larouche Organisme du droit d'assurance-chomage aux employes salaries musiciens et musiciennes inc ., Montrea l Pare, Danielle, Sillery Parker, Michael, Kirkland Sawyer, Jean-Claude, Montreal Shragge, Eric, Montrea l Societe de ressources communautaires Brandon, St-Gabriel de Brandon Societe d'exploitation de ressources des Basques inc ., St-Mathie u Solidarite populaire Quebec, Montreal Stanworth, John C ., Otterburn Park Syndicat de 1'emploi et de l'immigration du Canada, Levi s Syndicat de I'enseignement de Champlain, StHuber t Syndicat de 1'enseignement de la region des Milleslles, Sainte-Theres e Syndicat de l'enseignement de I'Estrie, Sherbrooke Syndicat de 1'enseignement de 1'ouest de Mont- Pavages Vaudreuil Ltee real, Lachin e Syndicat de l'enseignement de Taillon, St-Hubert Pelletier, Philippe, St-Hyacinthe Syndicat de l'enseignement du Haut-Richelieu, St- Pensioners 1985/1986, Lasalle Perreault, Albert, St-Alphonse-Rodriguez Syndicat de I'enseignement du Lac St-Jean, Alma Piney, Reg, Montrea l Syndicat des enseignants de Chateauguay-Mois- Pintal, Andre, St-Leonard Jean-sur-Richelie u sons, Beauharnoi s Poirat, Gustave, Boucherville Procycle Inc ., Ville de St-George s Syndicat des enseignants de la region de la Mitis, Provincial Association of Catholic Teachers, Syndicat des fonctionnaires provinciaux du Montrea l Railwav Association of Canada, Montreal Quebec, Quebe c Syndicat des professeurs du Quebec metropolit- Rapps, Sammy, Montrea l Regroupement des chomeurs(euses) de Val d'Or Syndicat des techniciennes et techniciens du Regroupement des sans-emplois de Victoriaville Mont-Jol i ain, Quebe c cinema du Quebec, Montrea l Regroupement des sans-emploi de la Cote-Nord, Syndicat des travailleurs des chantiers maritimes Sept-Iles Regroupement des separees, separes et divorcees, Tanguay, Marcel, Saint-Prosper divorces de 1'ouest inc ., Pierrefonds Regroupement provincial des maisons d'heberge- Tardif, Monique B ., MP, Charlesbourg Terence Pye Associates, Montrea l ment et de transition pour femmes victimes de violence, Montreal de Sorel, Tracy 3rd Dimensions and Associates (1973) Ltd ., Verdu n Todorovic, D ., La Salle LIST OF PARTICIPANTS AND SUBMISSIONS 3 6 3 Toupin, Robert, Terrebonne Kuhn, J .D ., Regin a Tour de Lire, Montrea l La Ronge Region Community College Lang, E ., Saskatoo n Tremblay, Maurice, MP, Lotbiniere Union des artistes, Montrea l Machie, Mary, Regin a Union des producteurs agricoles, Longueuil Matthew, Maureen, Saskatchewan Valiquette, Raymond, Repentigny Merrick, P .J ., Weybur n Vezina, Robert, Montreal Norwood Construction Ltd ., Saskatoon Vigneault, Jean-Charles, Montreal Olynyk, Ivan D ., Meacha m Ville de Riviere-du-Lou p Vincent, Pierre M ., MP, Trois-Rivieres Ortman, Rose, Francis Pocock, Dale, Nipawi n Vincent, Serge, Granby Visual Planning Corporation, Montreal Regina Business and Professional Women's Club Warren, Richard, Ste-Foy Riches, Graham, Regin a Weiner, Gerry, Dollard des Ormeaux Saskatchewan Action Committee on the Status of Wills, Edith Mary, Montrea l Saskatchewan Baker, Wayne and Faith, White Spruce Basiuk, Cory, Saskatoon Bauman, Gail, Regina Regina Chamber of Commerc e Women, Regin a Saskatchewan Arts Alliance, Regin a Saskatchewan Association on Human Rights, Saskatoo n Saskatchewan Chamber of Commerce, Regina Beer, James, Prince Albert Saskatchewan Community Colleges Trustees Association, Saskatoo n Bushnell, Robert, Saskatoo n Saskatchewan Employment Development Agency, Canada Employment and Immigration Union, Regin a Saskatchewan Federation of Labour, Regina Regina Canadian Congress for Learning Opportunities for Saskatchewan Health, Saskatoo n Women, Regin a Committee Against Poverty, Regina Saskatoon Region Community College, Saskatoon Community Service Employment Co-operative of Slinn, Norman K ., Regina Regin a Slaferek, Delores, Saskatoo n Spanier, Claudia, Qu'Appelle Coteau Range Community College, Moose Jaw Cuddington, Gordon 0 ., Fort Qu'Appelle Ternowetsky, Gordon, Regina Ward, W .C ., Moose jaw Cypress Hills Community College, Swift Current Watson, Susan, Laniga n Western Grain Elevator Association, Regina Davies, William G ., Regin a Davitt, Kathleen, Regina Zilke, Sam, Springsid e Doidge, W .S ., Swift Current East, Elaine, Regin a Yukon Ens, Carl M ., Saskatoon Armstrong, Irwin R ., Whitehorse Globe Theatre, Regin a Buckway, B ., Whitehors e Government of Saskatchewan, Regina Hnatyshyn, Hon . Ray, MP, Saskatoon West Government of Yukon Territory, Whitehorse Hovdebo, Stan, MP, Prince Albert Youngblut, Sharon, Whitehorse Inventronics Limited, Moose Jaw Krempien, Brian, Saskatoon Nhung, Nguyen Thi, Els a Appendix D 365 Research Studie s Arthur Anderson & Co ., "Administrative D .J . Byrne, "The Relationship and Interaction Effectiveness and Efficiency Review . " Between the Unemployment Insurance Assistance Programs ." Program and Social This study reviews the organizational structure of the Unemployment Insurance program, and The number of long-term unemployed persons comments on the efficiency and effectiveness of its with employment potential has increased signifi- management processes, as well as recommending cantly in the last five or six years . They require areas for improvement . Overall administrative both income maintenance and employment costs are compared with unemployment insurance counselling se rvices to help them to develop or schemes in the United States, and changes to policies and procedures are assessed with respect maintain job readiness and obtain long-term employment . This study examines the current to their impact on efficiency . Unemployment Insurance and social assistance programs in relation to these needs, and details B .C . Research, "Demographic Change and the problems faced by individuals who must deal Employment . " with both programs . This study considers the employment outlook to 1991 for six major demographic groups : females, The Canada East-West Centre Ltd ., "Equity and Efficiency : The Theory and Realities males, native Indians, youths, middle-aged workers and older workers . It examines the effects of Relating to Employment, Unemployment and the changing age distribution of the population on the unemployment rates of these various groups, and also identifies those industries and occupations with strong employment growth potential in the next five years . Income Security . " Economic and social policy goals must acknowledge both the equity and efficiency consequences of resource allocation and wealth distribution . This study identifies and evaluates the policy goals of core and non-core elements of the Unemploy- Gerald A . Beaudoin, "Unemployment Insurance and the Constitution : An Overview . " ment Insurance program and the relative weighting of economic and social considerations . It also This is a legal opinion regarding the constitutional suggests instances where other means than the aspects of the Unemployment Insurance Act, Unemployment Insurance program may be more addressing both the rules of interpretation and appropriate for meeting some or all of these objectives . relevant case law relating specifically to two issues : the federal-provincial division of powers and the Canadian Charter of Rights and Freedoms . J . Davidson-Palmer & Associates, "Training: Approaches to Employment . " It then addresses specifically several legal questions that may arise in the future with regard to Unemployment Insurance . Although strong evidence points to the fact that we are currently in a period of industrial restructuring, current labour market policy has been unable to rectify what appears to be a poor match between training and available jobs . This study examines a number of issues related to training 366 APPENDIX D "natural rate" of unemployment over the 1970s . It policy, considers the possible role of funding and administration of Unemployment Insurance, and also examines evidence that the 1971 revisions to identifies other mechanisms such as the tax system the Unemployment Insurance program, which which could be used to create a comprehensive increased the generosity and coverage of benefits, and coordinated approach to training . contributed to the rise in the natural rate, and considers the extent to which the tightening of the Decima Research Ltd., "Work and Income Security : A Survey . " This survey examines the attitudes of Canadians toward work, employment expectations, and income assistance - Unemployment Insurance in Unemployment Insurance program in the late 1970s may have partially reversed this earlier effect . Grady Economics & Associates Ltd ., "Full Employment. " particular . The results are analyzed by region, age, education, income and employment experience of This study considers the existence and magnitude the respondents . of constraints on the use of fiscal and monetary Pierre Dufour, "Analysis of Problematic Legal policy to pursue the objective of full employment, and discusses policy tools other than fiscal and Aspects of the Unemployment Insurance monetary policy by which it would be possible to Act. " reduce structural unemployment in the absence of This study analyzes in detail the legislation and jurisprudence of the key sections of the Unemployment Insurance Act, with an emphasis on the role renewed inflation . Reform of Unemployment Insurance is but one example of measures that might improve the functioning of labour markets . of employers in the program . It considers the view R .H . Hood Economics Inc ., "Regional Policy of employers' groups that Unemployment Insur- Problems in the Unemployment Insurance ance should function as an income replacement System . " scheme, and provides recommendations for possible changes to the Act and regulations . This study examines the use of regionally extended benefits in the Unemployment Insurance program Michael Gardner, "The Fishermen's Unem- as an instrument to achieve policy objectives . It ployment Insurance Program. " asks whether the Unemployment Insurance pro- Since the extension of Unemployment Insurance benefits to fishermen in 1956, the program has played an important role in supporting and stabilizing the incomes of fishermen . Problems in adapting coverage to the fishing industry arise because of the complexity and diversity of the industry, changes in the fishery brought about by resource and market conditions, and changes in gram should be regarded as a compulsory insurance plan, a social support scheme, or a program to promote regional development, and considers two major scenarios for Unemployment Insurance reform in light of their consequences for income redistribution and employment stability . Informetrica Ltd., "Employment Impacts of Free Trade . " fishing patterns brought about by the Unemployment Insurance program itself. This study This study estimates that net employment in addresses these issues and considers possible Canada will increase by some 150,000 jobs options and improvements to the current approach . between 1988 and 2005 under a free trade agreement, based on an examination of actual tariff Grady Economics & Associates Ltd ., "Infla- differences and estimates of non-tariff barriers . Significant gains and losses in employment are tion and Unemployment . " identified by sector and province . The study This paper examines the issue of the trade-off between inflation and unemployment, and documents the evidence of an upward shift in the considers also the (re)training and interprovincial mobility implications of free trade and the implications for the design of an Unemployment Insurance scheme . RESEARCH STUDIES 36 7 National Tax Centre, "Taxation and Capital Investment ." in workers' skills as a result of shifts in technology ; and Unemployment Insurance reforms . The widespread use of tax incentives for capital Lars Osberg, "The Incidence and Duration of investment is a relatively recent phenomenon . This Unemployment in Canada . " study identifies the major tax incentives for capital investment introduced since 1972, and examines Public perception of the social and economic costs the available economic evidence that tax incentives for capital investment are effective in produc- of unemployment is affected by our view of the two ing an increase in economic growth and/or components of unemployment - that is, whether a given unemployment rate is due to many people employment . being unemployed for a short period of time (high incidence but short duration), or to a few people National Tax Centre, "Taxation and Employ- being unemployed for a long period of time (low ment . " incidence but long duration) . This study discusses the incidence and duration of unemployment in This study addresses the issue of whether increases in taxation are accompanied by a decrease in the Canada, as well as its regional, demographic and industrial/occupational aspects . desire to work, and develops guidelines by which to judge whether certain provisions of the Income Andre Philippart, "Unemployment Insur- Tax Act encourage or discourage employment . In ance : Lessons from the European Economic particular, it examines the progressive rate Community (Benelux and FRG) . " schedule and the effect of the tax system on twoincome families as two areas likely to affect decisions either to enter the labour market or to This study discusses the role of Unemployment Insurance schemes in certain countries of the increase labour market participation . European Economic Community . Among the issues addressed are the role of the state in financ- Walter Nicholson, "Unemployment Insur- ing Unemployment Insurance, the benefit and tax ance Financing: Lessons from the United structures implications for income redistribution, States . " and administrative issues . The broader context of The United States is the only country in which Unemployment Insurance is experience rated (based on employers' layoff histories) . It is con- the discussion includes the social and economic policy environments within which the programs function, as well as the role of supporting policies such as education and training . cluded that there appears to be empirical support for the conclusion that experience rating can Craig W . Riddell, "Changing Behaviour Pat- reduce unemployment . This study considers terns and Employment. " various aspects of experience rating in the United States, and the feasibility and possible implications of introducing such a system in Canada . This study documents the demographic and behavioural patterns underlying changes in the composition of the labour force and in the nature Lars Osberg, "Economic Theory and Unem- of unemployment since the early 1970s . It then ployment : An Essay on Constraints, Choices considers the various objectives which might form and Blind Spots . " the basis of an Unemployment Insurance program and discusses their implications for Unemploy- This study reviews economic theory relating to unemployment since the 1960s, and considers four "missing links" in the literature . These are : the impact of unemployment-induced stress on individuals and on the economy ; the impact of high unemployment on the mobility and flexibility of the employed population ; the need for changes mentInsurance . 368 APPENDIX D A . Rotstein and R . Adlam, "Economic Networks and the Unemployed . " This study discusses the issue of economic activity among the unemployed and the extent of their by-issue basis . Key recommendations are identified and parliamentary responses noted . Patti Schom-Moffatt, "Social Consequences of Unemployment . " dependence on income assistance programs . Based on a survey of unemployed individuals, it This study surveys the available literature on the identifies three network categories - cash, barter, social consequences of unemployment, noting a strong consistency in the conclusions of different and one-way support networks of family and friends - and attempts to estimate the extent and value of these types of activity among the unemployed . researchers . It identifies some conditions that act as a major buffer against the adverse consequences of unemployment and considers ways in which policy could be encouraged to support the crea- A . Rotstein and C .A .M . Duncan, "Informal tion of such buffers . Economic Activity : A Survey of International Trends. " Irving R . Silver Associates, "Changing Demand Patterns and Labour Adjustment . " Informal economic activity is perceived differently in different countries . This study identifies these This study identifies by age, sex and skill level, as various attitudes and considers several policy well as by industry and occupation, those workers questions in an international context . It asks whether informal economic activity ought to be most susceptible to unemployment over the next five years . It enumerates the most likely areas for legitimated and expanded in the face of the long- inter-occupational mobility in response to job loss term unemployment that lies ahead, and examines for those groups, and illustrates the variety of the possibility of easing the burden on the current welfare system through recourse to informal approaches required from labour market policy in economic activity . Robert G . Saint-Louis and Lucie Lamarche, "Critical Review of the Organization and Administration of the Unemployment Insurance Act: The Claimant's Point of View . " facilitating adjustment . Monica Townson, "The Segmentation of Labour Markets . " This study examines the literature on labour market segmentation and its implications for the development of Unemployment Insurance . Tenta- This study evaluates the unemployment insurance system with an emphasis on the claimant in the tive conclusions are drawn for policy making, system . It considers problems arising from current labour market and the potentially limited access of eligibility criteria, regulatory complexity, its members to more stable employment oppor- administrative problems and appeal procedures, tunities in the core labour market . focussing on the higher turnover in the secondary and recommends changes where appropriate . Martin L. Weitzman, "Profit Sharing as an Robert G . Saint-Louis and William Schabas, "Analysis of Parliament's Response to the Gill Antidote for Canadian Unemployment . " Committee of Inquiry, the Cousineau Com- Weitzman's proposal for a profit-sharing economy mittee, the Comprehensive Review of 1977 recognizes explicitly that the well-being of a firm's and the Gershberg Task Force . " workers depends ultimately on the financial health of the firm itself. Workers take a portion of their This study discusses the evolution of Canada's Unemployment Insurance legislation in the light of pay as a negotiated share of profits, and companies and workers have greater incentives to keep the four major reviews between 1962 and 1981 . The interplay and synergy between the various profits, output, and employment at high levels . A reports and the legislation are treated on an issue- unemployment, a redefinition of Unemployment fully functioning share economy generates less RESEARCH STUDIES Insurance is suggested as a benefit that tem- David R . Williamson, "The Tax System and porarily replaces unexpected drops in earnings - Unemployment . " including wage loss as well as wage interruption . This study examines the Canadian corporate tax David R . Williamson, "The Economic Conse- system in relation to firms' employment and quences of Unemployment . " capital investment levels . It questions whether the tax treatment given to labour is neutral with This study examines the literature on the issue of whether future economic growth is affected by respect to the amount employed, and whether the tax treatment accorded to capital assets serves on sustained high levels of unemployment . It consid- balance to encourage firms to invest in capital ers the links between current levels of Gross assets as opposed to employing labour . National Product and future potential growth, the negative impact of a sustained high level of unem- These studies, along with transcripts of the public ployment on the labour force participation ratio hearings and copies of the briefs submitted to the and on the rate of inflation, and the relationship between prolonged periods of high unemployment Inquiry, are part of the records of the Commission which are deposited with the Public Archives . and capital investment . Inquiries may be directed to : Federal Archives Division Public Archives Canada 395 Wellington Street Ottawa, Ontari o K1A ON 3 (613) 996-8507 36 9 Appendix E 371 Projecting the Impact of Employment Policies on the Demand for Human Resource s The Commission of inquiry used a simulation Situation 1 model developed by Statistics Canada, called the The Base Case : Are We Doomed to Poverty in Socio Economic Resource Framework (SERF), to explore a number of possible policies relating to the development of Canada's human resources . The purpose of the SERF model is to estimate the impact of demographic changes on the supply and demand for labour over a period of 50 years . The model reflects the impact of the postwar baby boom on the age structure of Canada's population to the year 2031, and its implications for family formation, home building, appliance sales, consumption of health, educational and other services . Using this model and adding changes in rates of participation in the labour market, in retirement patterns, in productivity rates and other factors, it is possible to suggest what might happen to the supply of and demand for labour over the next 50 years as a result of various human resource development strategies . Old Age? The "base case" is the set of circumstances that includes projections of all relevant trends into the future without any policy changes . The results suggest that in the near and medium term Canada would have high and then slowlyfalling unemployment rates, turning into an acute labour shortage by 2031 . The profile of relative unemployment resulting from this "do nothing" situation is shown in Figure E .I . "Labour market tension" (Statistics Canada's term) is an indication of the relationship between the supply of and demand for labour, and hence indicates trends in unemployment . This index is referred to here as the "relative unemployment index ." It is similar to an unemployment rate . The negative figure in 2031, which suggests that there would be a shortage of workers, under- The SERF program does not attempt to forecast the future . What it does is explore the longterm implications of "what if" situations . What if starting from known elements (basically data on the Canadian population and labour force) the retirement age were lowered? By how much would that reduce unemployment now and later? What problems would be created later when Canada has lines the limitations of these simulation exercises . Since "negative unemployment" is inconceivable and would never be observed, something that has been assumed to remain constant in the model would change in reality, possibly in a drastic way . For example, it is likely that as Canada evolved toward a zero unemployment rate, employers would induce older workers to delay retiremen t a much higher proportion of older people? Figure G . 1 Relative Unemployment Index, Base Case, 1981-203 1 1981 Base case 1986 199 1 11 .9% 11 .9% 11 .0 % 2001 2011 2021 9 .8% 7 .9% 0 .5% 203 1 -5 .3 % Note : The relative unemployment index, which Statistics Source : Statistics Canada, special tabulations for the Canada terms "labour market tension," compares the supplyof labour to the demand for labour . It is similar to an Commission of Inquiry• on Unemployment Insurance . unemployment rate. 372 APPENDIX E and all workers to increase working time . If measured and in which technology has so far had insufficient extra labour supply came forward in these ways, immigration policy might have to be the greatest impact . These aggregate measures of productivity improvement, therefore, consider- liberalized or a guest-worker program introduced ably overstate productivity growth for the to increase the number of working-age adults in the population . economy as a whole . With the model, it was assumed that 150 goods-producing sectors would experience an Situation 2 average yearly increase in productivity of 3 .2 percent as compared to the base case set of cir- Productivity Growth : Cure or Curse? cumstances in which average yearly productivity Figure E .2 shows observed productivity growth for different periods since 1946 for commercial- increases by 1 .68 percent . The relative unemployment indices for the period 1986-2031 and the goods-producing industries . These are the indus- differential from the base case are shown in Figure tries in which productivity growth can best be E .3 . Figure E . 2 Aggregate Productivity Measures for Commercial Goods-Producing Industries, 1946-8 1 (Average annual growth rates) 1946-81 1961-7 1 Output per person/hour 4 .9% 5 .4 % 1971-81 1978-79 1979-80 1980-8 1 1 .7% -0 .4%- -0 .8% 0 .7 % Source : Statistics Canada, Aggregate Producrtulty. Measures(Cat . no. 14-201), 1984 . Figure E . 3 Relative Unemployment Index under Various Situations 1986 199 1 Base case 11 .9% 11 .0 % 1996 2001 2011 9 .8% 9 .8% 7 .9% 2021 203 1 .5% -5 .3 % (1 .8% productivity growth) Alternate cas e 12 .8% 12 .8 % 12 .3% 12 .8% 11 .9% 5 .4% ni l 0 .9% 1 .8 % 2 .5% 3 .0% 4 .0% 4 .9% 5 .3 % (3 .2% productivity growth) Change from base cas e Alternate case and accelerated work-week reduction Alternate case and accelerated work-week reduction : Change from base case nil -0 .1 -0 .8 -1 .4 - .2% Change from alternate case - .9% -3 .3 -4 .4 - 1 .4 0 .1 % nil -4 .2 -4 .8 -5 .7 % Alternate case and increase in demand : Change from base case 0 .5% 0 .9% 2 .0% 2 .0% 2 .0% 1 .8% 1 .4% Change from alternate case -0 .4 - .9 % -1 .5 Note : The relative unemployment index, which Statistics Canada terms "tabour market tension," compares the supply of labour to the demand for labour. It is similar to an unemployment rate . Source : Statistics Canada, special tabulations for the Commission of Inquiry on Unemployment Insurance. -2 .1 -2 .0 -3 .1 -3 .9% PROJECTING THE IMPACT. . . 37 3 It is often suggested that unemployment that grows more rapidly in Canada than in compet- is induced by productivity growth can be solved by ing countries, our costs will fall relative to reducing work time . The base case situation theirs and our trade balance will improve incorporates some reduction of work time, reflecting the existing trends . The average work week in enough to create more jobs than are 2031 would accordingly be 30 hours . itself. "destroyed" by the growth in productivity Reducing work time is not the only way to compensate for the impact of productivity growth on employment . Productivity growth increases real incomes, and higher real incomes may lead to higher consumption . If aggregate demand for goods and services were to increase by 2 .2 percent on average per year (not unreasonable if productivity increases at 3 .2 percent per year), then most of the adverse impact of productivity growth on employment would be neutralized . International trade has a crucial role to play here for a country as dependent on trade as Canada . The faster the rate of productivity growth in Canada, the easier it will be for the country to maintain a trade surplus . It will then be relatively easy not only to offset the adverse impact of higher productivity on employment, but even to reverse that impact : unemployment would fall below what it would be with slower productivity growth . The following observations can be made : • Technological change would not increase unemployment by more than 5 to 6 percentage points over several decades . • This drop in employment could be fully compensated by a modest shortening of work time . • If such a shortening of work time were not reversible, it would only complicate the longterm labour deficit projected for the period 2021-31 . • If the benefit (in terms of real income) made possible by increased productivity is used up by increasing leisure time, less or none of it will be available to reduce the comparative cost of goods and services made in Canada with those made abroad . The deterioration of the trade balance might then reduce employment in Canada by as much as or more than productivity growth itself. • In an open economy such as Canada's, absolute productivity growth is probably less important than productivity growth relative to that in other countries . If productivity Situation 3 Education vs. Labour Market Participation In 1980, only 52 .6 percent of Canadians aged 15 to 19 and 10 .4 percent of 20 to 24 year olds were enrolled in full-time education programs . Educational enrolments (as a percent of population) show an increase for the 15 to 19 year olds from 57 .6 to 60 .5 percent (1980 as compared to 1985) ; for the 20 to 24 year olds, the rise is from 10 .4 to 14 .1 percent . Four scenarios involving an increase in educational enrolments were simulated using SERF . 1 From the low school enrolment levels of 1981 (corresponding to an enrolment rate of 53 percent), a move to 100 percent educational enrolment for this age group was simulated . (While that level is highly unlikely, it is used to show the greatest impact possible .) It would reduce the group's labour force participation rate to 30 percent . In turn, this would reduce the relative unemployment index by 0 .8 of a percentage point . 2 The second situation is based on the actual higher educational enrolment observed in 1985 . This has already reduced the labour force participation rate to 39 percent for the 15 to 19 age group, and reflects the decision by some 15 to 19 year olds to continue into post-secondary education . To achieve 100 percent high school enrolment would require a further decrease in the labour force participation rate to only 24 percent . As a result, this would reduce the relative unemployment index by 1 .8 percentage points . 3 A third situation addresses the problem of educational catch-up for adults 25 years of age or older who are presently in the labour force . In 1981, 4 percent of those aged 25 to 44 were full-time students . On the assumption that technological change requires a 50 percent increase in the full-time educational 374 APPENDIX E enrolment of this age group, a 2 percent drop Situation 4 in the labour force participation rate would result . The relative unemployment index Lifestyle Decisions would drop by 1 .5 percentage points . 4 In 1981, 31 percent of adults aged 20-24 had no high school diploma . On the assumption that 1 .5 years would be needed on average to make up the deficiency, and spreading the effort needed to bring eve ryone in Canada up Retirement Changes in retirement patterns were not simulated . The following possibilities, however, were noted . to at least the high school graduation level • For some, the possibility of retiring relatively young (before age 65) will be enhanced by the over a 10-year period, the relative unemployment index would be reduced by 2 percentage flexibility of pension plans now being con- points . Quite apart from its long-term impact on the country's competitive position and on its economic growth rate and employment potential, sidered . Such a policy could reduce the labour force participation rate below present levels . • For others, the possibility of retiring relatively late (after age 65) will also be enhanced by the greater flexibility of pension plans . Such a education could make a substantial contribution possibility will be stimulated by the increas- to reducing unemployment . The models are based ing health of older persons . Working until age on the goal of having every Canadian achieve a high school certificate or an equivalent education . 75 will become a real possibility for many as a More than 5 percentage points could be taken off our unemployment rates by the implementation of manufacturing and primary industries to services . In that case, labour force participa- that policy . tion rates would increase above present In devising a human resources policy for Canada, increased education should be considered on a par with increased leisure time (i .e ., reduced working time) as a strategy for balancing result of the shift in the workplace away from levels . • The SERF model was used to examine possible changes in labour force participation stemming from increased availability of part-tim e labour supply and demand . Figure E . 4 Change from Base Case in Relative Unemployment index due to Parental Leav e Take-up rates 1986 1991 199 6 2001 15% -0 .6 -1 .2 -1 . 1 -1 .1 -1 .1 -1 .3 -1 .3 % 25% -0 .8 -1 .8 -1 .8 -1 .8 -1 .9 Note : The relative unemployment index, which Statistics Canada terms "labour market tension," compares the supplyof labour to the demand for labour . Source: Statistics Canada, special tabulations for the Commission of Inquiryon Unemployment Insurance . 2011 2021 203 1 -2 .1 -2 .2 % PROJECTING THE IMPACT . . . 37 5 work. In 1985, 12 percent of people aged 55 to 64 and 35 percent of those aged 65 and over were working part time . But according to a su rv ey commissioned by the Department of National Health and Welfare, 40 percent of people aged 55 and over would like part-time employment .' Increasing the availability of part-time work would encourage a higher rate of participation for older people . It might also lower the . unemployment rate . The SERF The impact on labour force participation rates of such a possible retargetting and transformation of exemptions would depend on the "take-up" rate - that is, on the decision of either parent to take an, extended parental leave . Two simulations were carried out, one assuming a 15 percent "take-up" rate and the other a 25 percent rate . Figure E .4 gives the estimated impact on the relative unemployment index . Little is known about the preferences of simulation of substituting two and a quarter parents and even less about their responsiveness to part-time jobs for one full-time job showed a a change in the set of fiscal incentives confronting gradual return to the labour force participation rate experienced in the early 1970s by them . The above results are highly tentative . older workers, or an average reduction in the Blending the Situation s relative unemployment index of 1 .5 points over the 1981-2031 period . Through a combination of the four situations, a rapid and persistent decline in the relative unem- Two simulations were run to explore the impact of ployment index can be observed . Figure E .5 illustrates the different profiles over several decades . changing the income tax exemption for nonworking spouses to target benefits more precisely changes in labour force participation rates with Labour Force Participation of Wome n The combination of situations speculates on to situations where one spouse stays home tem- higher productivity assumptions, the various porarily to care for young children . The "equiva- alternative possibilities of reduced work time, and lent to married" exemption now benefitting single increased domestic and external demand . These parents with dependants was retained . present a whole menu of policy options for th e Figure E . 5 Relative Unemployment Index Resulting from a Combination of Situations, 1986-2031 1986 199 1 Base case 11 .9% 11 .0 % Combination of participation 9 .8% 1996 2001 2011 2021 203 1 9 .8% 9 .8% 7 .9% 0 .5% -5 .3 % 7 .6 % 6 .1% 5 .5% 4 .5% 1 .7% 9 .4 % 8 .6% 8 .6% With work-time reduction` 9 .9 % 7 .5 % 5 .4% 4 .1% 4 .4% With increased demandd 10 .2% 8 .5% 7.3% .0 % rate reductions' Participation rate reduction 10 .7% 8 .7% 6 .5% 5 .0 % with productivity change s without offsetb a Assumes reduced participation rates . 1 .8% .0 % 6 .5% 6 .6% 3 .5% 1 .0 % Note : The relative unemployment index, which Statistics b Assumes reduced participation rates and higher Canada terms "labour market tension," compares the productivity rates . supply of labour to the demand for labour . c Assumes only reduced working time . Source : Statistics Canada, special tabulations for the d Assumes only an increase in domestic and external Commission of Inquiryon Unemployment Insurance, demand . 376 APPENDIX E This exercise is a fairly primitive attempt to future . These numbers summarize a large part of what is known about demographically induced formulate a human resource policy . Conclusions change on labour force composition, demand for should not be drawn from it . Its value is to demon- goods and services, trends in labour force participation, and productivity improvements . They are strate, however imperfectly, how a human resources development policy might be developed not forecasts . They are a set of tools to help evalu- and what kinds of issues an analytical framework ate the long-term and short-term implications of should tackle . various policy alternatives . Not e 1 Canada, Department of National Health and Welfare, Policy Research and Long Range Planning, Retirement in Canada (2 vols .) (Ottawa : The Department, 1977) . Appendix F 37 7 The Unemployment Insurance Program Objectives In general, the interruption of earnings for the with two objectives : Unemployment Insurance is a national program insured person who ceased work by reason of sickness, maternity or adoption occurs in the week • to provide income protection for workers when normal employment earnings drop below 60 suffering temporary income interruptions ; percent of normal weekly insurable earnings from an d that employment . For others, it occurs when, • to facilitate the best possible match between following separation from employment, the insured person has a period of seven days with no unemployed workers and available jobs . Coverage The program insured 11 .5 million Canadian workers in 1984 . These workers are referred to as being in insurable employment . The main exclusions from coverage are those 65 years of age and over, the self-employed (except fishermen who are covered by special arrangement), and those who work less than 15 hours per week and earn less than 20 percent of the maximum insurable earn- paid employment . The basic entrance requirement varies from 10 to 14 weeks of insurable employment in the qualifying period (which is usually the past 52 weeks), depending on the unemployment rate in the Unemployment Insurance economic region in which the claimant resides . Figure F .1 shows the variable entrance requirement . Claimants who have already received benefits ings ( 899 per week in 1986) . during the qualifying period are program repeaters . To qualify, they require an additional week of Eligibility Requirements employment for every week of benefit they collect To qualify for benefits, claimants must have in excess of the minimum entrance requirement suffered an interruption of earnings from employ- for the region, to a maximum of 6 weeks, as shown ment and accumulated a specified number of in Figure F .2 . To illustrate, for a claimant who had weeks of insurable employment . drawn 20 weeks of benefits in the previous 52 Figure F .1 Figure F.2 Variable Entrance Requirement Insurable Weeks Required by Repeat Claimants by Region Regional rate Weeks of insurable Weeks of Weeks of insurable employment at of unemployment employment required benefits regional unemployment rat e paid/payable 14 in qualifying 6%& 6 .1-7% 7 .1-8% 13 period unde r 12 8 .1-9% 11 Over 9% 10 8 .1-9% 9 .1-11 .5% Over 11 .5 % 10 & under 14 13 12 11 10 11 14 13 12 11 11 12 14 13 12 12 12 13 14 13 13 13 13 14 14 14 14 14 14 15 15 15 15 15 15 16 16 16 16 16 16 17 17 17 17 17 16 18 18 18 17 16 19 19 18 17 16 20 & over 20 19 18 17 16 18 19 378 APPENDIX F weeks in a region where the unemployment rate Benefits was less than 6 percent, the requirement would be Benefits are paid during a benefit period generally 20 weeks of insurable employment ( that is, the of up to 50 weeks after a two-week waiting period normal 14 weeks plus a penalty of 6 weeks) ; whereas in a region where the unemployment rate has been served . Employment earnings in the waiting period are deducted from the first three was between 9 and 11 .5 percent, the individual would require only 16 weeks ( the normal 10 weeks of benefits payable . Deductions made for each week in the waiting period do not exceed the weeks plus a 6-week penalty) . The repeater provi- benefit rate . Income received as sick or maternity sion does not apply in regions with unemployment leave or from any group wage-loss insurance plan rates over 11 .5 percent . Claimants who had less than a combined total during sickness or maternity is not taken into of 14 weeks of insurable employment, Unemployment Insurance benefits or other weeks prescribed by regulation in the 52-week period preceding the qualifying period ( i .e ., the previous 104 weeks) are new entrants or re-entrants to the labour force . account as earnings in the waiting period . Regular benefits are payable in three successive phases : • Initial benefits - one week of benefits for each week of insurable employment (maximum 25 weeks in the 52-week benefit period) . They are required to have 20 weeks of insurable employment in the qualifying period . • Labour force extended benefits - one week of The qualifying period of up to 52 weeks may be extended to a maximum of 104 weeks if the claimant was prevented from working because of imum 13 weeks), in accordance with Figure benefits for every two insurable weeks (maxF.3 • Regionally extended benefits - two weeks of sickness, pregnancy, imprisonment, attendance at an approved training course, or receipt of Work- benefits for every 0 .5 percent that the regional ers' Compensation for tempora ry total disability . maximum of 32 weeks, in accordance with The insurable weeks and insurable earnings are reported by the employer on the Record of Figure F .4 . unemployment rate exceeds 4 .0 percent, to a Employment, which the employee uses at the time of application for benefits . Figure F . 4 Regionally Extended Benefit s Figure F . 3 Regional rate of Maximum regionally unemployment extended benefi t Labour Force Extended Benefit s Weeks of insurable Maximum labour employment in claimant's force extended qualifying period benefit payable (weeks ) payable (weeks ) 4 .1-4 .5% 2 4 .6-5% 4 6 5 .1-5 .5 % 8 27 or 28 1 5 .6-6% 29 or 30 2 6 .1 -6 .5% 31 or 32 3 6 .6-7% 33 or 34 4 7 .1-7 .5% 35 or 36 5 7 .6-8% 37 or 38 6 8 .1-8 .5 % 18 39 or 40 7 8 .6-9% 20 41 or 42 8 9 .1-9 .5% 43 or 44 9 9 .6-10% 10 12 14 16 22 24 45or46 10 10 .1-10 .5% 47 or 48 11 10 .6-11% 26 49 or 50 12 11 .1-11 .5% 30 Over 50 13 Over 11 .5% 32 28 THE UNEMPLOYMENT INSURANCE PROGRAM 37 9 The overall maximum is 50 weeks of benefits in the 52-week benefit period . The benefit rate is 60 percent of average insurable earnings in the qualifying weeks . These For the purposes of the entrance requirements are the last 20 weeks of the qualifying period for and the payment of benefits, Canada is currently divided into 48 economic regions . those with 20 or more weeks of insurable employment or all weeks in the qualifying period in the Sickness benefits are payable to claimants who case of those with less than 20 insurable weeks . prove incapacity by way of a medical certificate The maximum weekly benefit amount in 1986 is and who have at least 20 weeks of insurable $ 297 . Unemployment Insurance benefits are employment . A maximum of 15 weeks of sickness taxable for income tax purposes . benefits are payable as part of the maximum of 25 Decisions affecting benefits may be appealed weeks of initial benefits . Maternity benefits are payable to claimants in the first instance to a Board of Referees and in who prove pregnancy by way of a medical certifi- the second instance to an Umpire of the Federal Court . Under special circumstances an appeal can cate and who have 20 weeks of insurable employment . A maximum of 15 consecutive weeks of be made to the Federal Court of Appeal and the maternity benefits are payable as part of initial Special provisions affect benefits for fisher- benefits . These must be the first 15 weeks of initial men . For example, self-employed fishermen can benefits and may commence as early as 8 weeks draw the special fishing benefit only from Novem- before the expected week of confinement for birth ber 1 to May 4, or from May 1 until November 15 . A portion of Unemployment Insurance ben- and as late as 17 weeks after birth . (Note : A pregnant woman who does not qualify for maternity benefits is not entitled to any benefits in the period starting 8 weeks before and ending 6 weeks after Supreme Court of Canada . efits may have to be repaid by some claimants . If the claimant's net income (including Unemployment Insurance) for income tax purposes exceeds the week of confinement .) When adopting a child, $38,766 in 1986, the claimant will be required to either parent may be entitled to receive up to 15 repay up to 30 percent of the Unemployment weeks of adoption benefits commencing with the Insurance benefits received in 1986 or 30 percent week of actual placement of the child . The combi- of net income over $38,766 in 1986, whichever is lower . nation of sickness and maternity benefits cannot exceed 15 weeks . A special severance benefit of three weeks is payable in lump sum to those who have attained Effect of Earnings on Benefit s the age of 65 years and have 20 insurable weeks in All earnings from employment which are in excess the qualifying period . Benefits may also be paid to of 25 percent of Unemployment Insurance benefits claimants undertaking approved training, or received during the benefit period are deducted participating in approved job creation projects or from benefits . This is known as the allowable earnings rule . All earnings received from employ- work-sharing agreements . The benefit periods and weeks of benefits payable in these cases can exceed the usual maximum of 50 weeks . ment while receiving sickness or maternity benefits are deducted from benefits . Claimants are disqualified from receiving Monies received such as vacation pay, separa- benefits for up to six weeks if they have quit a job tion pay, retirement pensions, wages in lieu of without just cause, been fired for misconduct on notice, and bonuses and gratuities are treated as the job, or refused suitable employment . Claimants who fail to prove their entitlement for reasons earnings and have the effect of reducing and/or postponing benefits . Monies received such as such as non-availability for work are not entitled to benefit for as long as such a condition exists . plan payments, or supplemental unemployment Benefits are not payable to claimants involved in benefits are not treated as earnings for benefit labour disputes . purposes and do not reduce or postpone benefits . disability pensions, relief grants, non-group sick 380 APPENDIX F Financing benefits for self-employed fishermen that is in The Unemployment Insurance program is financed excess of premiums from that employment, and on a tripartite basis through contributions from the cost of extended benefits for those undertaking employer and employee premiums and the federal approved training or participating in approved work-sharing or job creatiori pi•ojects . government . The basic employee premium rate for 1986 is $2 .35 for each $100 of weekly insurable earnings . The employer premium is 1 .4 times the employee rate ($3 .29 per $100 in 1986) . The Organization and Administration maximum weekly insurable earnings in 1986 is In general, the Minister of Employment and Immigration is responsible for the Unemployment $495 . It is increased in accordance with the rate of increase in wages and salaries averaged over the Insurance Act, and the Canada Employment and most recent eight-year period . responsible for administering the Unemployment Immigration Commission is the corporate body Premiums are tax deductible . Premium Insurance program . Special arrangements exist, revenues absorb the cost of benefits for the initial however, for the collection of premiums and the and labour force extended phases, sickness, determination of insurable employment, as well as maternity, adoption, special severance and work sharing as well as the costs of administering the the benefit repayment provision . These are the Unemployment Insurance Act, which includes the responsibility of the Minister of National Revenue and are administered by the Department of National Employment Service . National Revenue, Taxation . The federal government contribution absorbs the cost of regionally extended benefits, the cost of Appendix G 38 1 Statistical Appendix This appendix contains more detailed statistical G .7 provide information on the relationship information on who uses the current program . In between weeks worked and weeks on claim for regular claims terminating in 1984 . The informa- addition, it provides some background information on the assumptions underlying the simulation analysis of the various options discussed in Chapter 7 as well as providing more information on the impact of these options on particular individuals . tion from Figure G .2 is the basis for the histogram in Figure 2 .18 (in Chapter 2) . Figures G .3 to G .7 contain similar information by region . Figures G .8 to G .12 present information about the utilization of Unemployment Insurance, by industry, by age The Current Program group and sex, by family income and by province . Information in Figures G .1 to G .12 provides background data on the operation of the current A similar table is available by occupation (see Figure 2 .14 in Chapter 2) . Unemployment Insurance program . Figures G .1 t o Figure G . 1 Proportion of Claimants Exhausting by Weeks of Insurable Employment, 1984 Weeks of Number of insurable claimants employmen t Number of Proportion exhaustees of claimants exhaustin g 10-14 207,100 68,300 33 .0% 15-19 174,500 48,700 27 .9% 20-24 321,300 93,700 25-29 208,700 49,100 30-34 116,300 33,600 35-39 131,800 27,500 40-44 147,900 31,100 21 .0% 45-49 151,600 42,000 27 .7% 50-51 145,300 46,200 31 .8% 230,100 80,500 35 .0 % 520,700 28 .4% 52+ Total 1,834,600 Note : Data are for regular claims terminating in 1984 . Source : Calculations based on data provided by the Canada Employment and Immigration Commission. 29 .2% 23 .5% 28 .9% 20 .9% 382 APPENDIX G Figure G . 2 Canada : Number of Regular Claims 1984 " Weeks of Weeks of benefit received insurabl e employment 0 1-4 5-9 10-14 15-19 20-24 25-2 9 10-14 2,900 5,600 7,000 9,200 12,000 15,300 21,200 15-19 3,400 5,900 10,900 12,900 13,700 15,100 20,000 20-24 7,800 11,800 19,300 20,700 24,200 31,800 40,700 25-29 5,500 10,600 15,500 21,800 22,400 29,500 23,400 30-34 6,400 8,500 16,000 21,100 26,800 19,000 12,900 35-39 5,600 8,100 20,600 20,400 16,500 9,200 8,600 40-44 7,400 12,000 39,700 15,000 11,900 9,700 7,500 45-49 14,400 18,300 16,300 12,000 12,100 10,400 9,400 50-51 11,400 13,900 13,200 10,200 10,500 9,100 9,200 52+ 12,900 17,500 19,300 17,600 16,300 15,300 16,10 0 Total 77,700 112,200 177,800 160,900 166,400 164,400 169,00 0 Weeks of insurabl e employment Percentage distribution of claimants by duration of benefits 0 1-4 5-9 10-14 15-19 20-24 25-2 9 2 .7 4 .4 5 .8 7 .4 10 .2 10-14 1 .4 3 .4 3 .4 6 .2 7 .4 7 .9 8 .7 11 .5 15-19 1 .9 6 .0 6 .4 7 .5 9 .9 12 .7 20-24 2 .4 3 .7 5 .1 7 .4 10 .4 10 .7 14 .1 11 .2 25-29 2 .6 7 .8 5 .1 9 .6 12 .7 16 .1 11 .4 30-34 3 .8 6 .5 6 .2 15 .6 15 .5 12 .5 7 .0 35-39 4 .3 8 .1 6 .6 5 .1 40-44 5 .0 8 .1 26 .9 10 .1 7 .9 8 .0 6 .9 6 .2 45-49 9 .5 12 .1 10 .8 7 .2 6 .3 6 .3 50-51 7 .8 9 .6 9 .1 7 .0 8 .4 7 .7 7 .1 6 .7 7 .0 52+ 5 .6 7 .6 Total 4 .1 a Only regular benctficiarics who received no other types of' benefits are included . Data include all claims terminating in 1984 . Note : Few 10-19-week workers collect for 50+ as they are not eligible but a large proportion collect for 3(>-49 weeks ( more detailed data show a strong concentration at 40-44 weeks) . The longer the labour force attachment, the more prevalent are claimants with short duration . About 5% ofclaimants have 10-19 weeks of' insurable employment and col Icct for 40 or more wecks. Source : Calculations based on data provided by Canada Employment and Immigration Commission . 6 .0 9 .4 8 .5 8 .8 8 .7 9 .0 STATISTICAL APPENDIX 38 3 Tota l 30-34 35-39 40-44 33,200 40,300 49,300 26,600 22,100 15,400 38,200 31,900 29,600 15,400 16,100 17,500 11,600 10,000 10,90 0 9,400 5,800 6,800 7,900 5,900 7,000 6,800 9,600 12,300 8,200 9,100 14,20 0 12,900 12,100 23,500 45-4 9 50 + 10,400 700 207,100 21,500 7,000 174,500 25,500 39,800 321,300 19,100 208,70 0 11,900 9,800 13,300 166,300 8,700 12,000 131,700 1 1 ,000 12,800 147,800 11,400 18,500 151,500 14,600 21,800 145,400 26,200 40,300 230,000 170,200 162,900 186,500 151,000 185,30 0 30-34 35-39 40-44 16 .0 19 .5 15 .2 12 .7 11 .9 9 .9 7 .4 7 .7 7 .0 6 .0 4 .4 7 .1 5 .3 4 .0 4 .5 6 .3 5 .6 6 .3 5 .6 5 .3 9 .0 8 .6 23 .8 8 .8 9 .2 8 .4 6 .6 5 .2 4 .7 8 .1 9 .8 10 .2 9 .9 45-4 9 50+ 5 .0 0 .3 12 .3 4 .0 7 .9 12 .4 5 .7 9 .2 5 .9 8 .0 6.6 9 .1 7.4 8 .7 7.5 12 .2 10 .0 15 .0 11 .4 17 .5 8 .0 9 .8 1,884,300 Total Percent of claimants by weeks of insured employmen t 100 .0 11 .0% 100 .0 9 .3 % 100 .0 17 .1'X, 100 .0 11 .1% 100 .0 8 .8% 100 .0 7 .0X, 100 .0 7 .8% 100 .0 8 .0 % 100 .0 7 .7% 100 .0 12 .2 % 100 .0 100 .0% 384 APPENDIX G Figure G . 3 Atlantic Canada : Number of Regular Claims 1984 a Weeks of Weeks of benefit received insurable employment 0-9 10-19 Tota l 20-29 30-39 40-49 50+ 10-19 2,900 5,800 10,000 29,600 19,100 1,300 68,700 20-29 6,100 7,100 11,700 10,600 7,200 5,700 48,400 30-39 4,300 8,300 5,800 4,800 4,000 2,700 29,900 40-49 6,800 2,800 2,700 2,300 3,500 1,900 20,000 50+ 6,200 4,600 3,900 4,600 6,900 4,600 30,80 0 Total 26,300 28,600 -34,100 51,900 40,700 16,20 0 Weeks of Percentage distribution of claimants by duration of benefits insurabl e employment 0-9 10-19 20-29 30-39 40-49 50+ 197,80 0 Total Percent of claimants by weeks of insured employmen t 10-19 4 .2% 8 .4% 14 .6% 43 .1% 27 .8% 1 .9% 100 .0% 34 .7% 20-29 12 .6% 14 .7% 24 .2% 21 .9% 14 .9% 11 .8% 100 .0% 24 .5% 30-39 14 .4% 27 .8% 19 .4% 16 .1% 13 .4% 9 .0% 100 .0% 15 .1% 40-49 34 .0% 14 .0% 13 .5% 11 .5% 17 .5% 9 .5% 100 .0% 10.1% 50+ 20 .1% 14 .9% 12 .7% 14 .9% 22 .4% 14 .9% 100 .0% 15 .6 % a Only regular beneficiaries who received no other types ofbenefits are included. Data include all claims terminating in 1984 . Note : More claimants have a short labour force attachment and a longer duration than in other regions . About 10% of clai mants have 10-I 9 weeks of insurable employment and collect benefits for 40 or more weeks . Source : Calculations based on data Total 13 . 3% 14 .5% 17 .2% 26 .2% 20 .6% 8 .2% 100 .0% 100 .0 % provided by Canada Employment and Immigration Commission . Figure G . 4 Quebec : Number of Regular Claims, 1984 , Weeks of Weeks of benefit received insurabl e Total employment 0-9 10-19 20-29 30-39 40-49 50+ 10-19 13,400 17,900 29,000 42,000 37,000 3,600 142,900 20-29 22,800 31,800 48,600 38,400 30,200 28,600 200,400 30-39 23,100 31,000 14,900 11,400 9,600 7,400 97,400 40-49 34,200 15,700 12,800 8,400 10,800 10,600 92,500 50+ 28,500 14,800 15,000 13,200 25,000 22,700 119,20 0 Total 122,000 111,200 120,300 113,400 112,600 72,900 652,40 0 Weeks of Percentage distribution of claimants by duration of benefits Total Percent of insurable claimants by employment 0-9 10-19 20-29 30-39 40-49 50+ weeks of insured employmen t 10-19 9 .4% 12 .5% 20 .3% 29 .4% 25 .9% 2 .5% 100 .0% 21 .9% 20-29 11 .4% 15 .9% 24 .3% 19 .2% 15 .1% 14 .3% 100 .0% 30 .7% a Only regular beneficiaries who received no other types of benefits 30-39 23 .7% 31 .8°G, 15 .3% 11 .7% 9 .9% 7 .6% 100 .0% 14 .9% are included . Data include all claims 40-49 37 .0% 17 .0% 13 .8% 9 .1% 11 .7% 11 .5% 100 .0% 14 .2% Note : The Quebec data are very 23 .9% 12 .4% 12 .6% 11 .1% 21 .0% 19 .0% 100 .0% 18 .3 % much like the data for Canada as a whole . 50+ terminating in 1984 . Source: Calculations based on data Total 18 .7% 17 .0°ti, 18 .4% 17 .4% 17 .3% 11 .2% 100 .0% 100 .0% provided by Canada Employment and Immigration Commission . STATISTICAL APPENDIX 38 5 Figure G . 5 Ontario : Number of Regular Claims, 1984 , Tota l Weeks of Weeks of benefit received insurabl e employment 0-9 10-19 20-29 30-39 40149 50+ 10-19 10,000 10,000 14,300 17,300 9,300 1,300 62,200 20-29 20,600 23,000 28,900 20,400 18,700 7,200 118,800 30-39 18,600 22,100 12,200 7,600 11,400 6,200 78,100 40-49 32,100 14,500 8,100 7,100 11,600 7,700 81,100 50+ 26,700 15,700 12,900 10,000 22,700 16,900 105,00 0 Total 108,000 85,300 76,400 62,500 73,700 445,20 0 39,300 Weeks of Percentage distribution of claimants by duration of benefits Total Percent of insurable claimants by 20-29 30-39 40-49 50+ weeks of insure d employment 0-9 10-19 employmen t 10-19 20-29 17 .3% 19 .4% 24 .3% 17 .2% 30-39 23 .8% 28 .3% 15 .6% 9.7% 40-49 39 .6% 17 .9% 10 .0% 8.8% 50+ 14 .0% a Only regular beneFiciaries who received no other types of benefi t s 15 .7% 6 .1% 100 .0% 26 .7% arc included. Data include all claims terminating in 1984 . 14 .6% 7 .9% 100 .0% 17 .5% Note : There are fewer short-term 18 .2% attachmentclaimantsinOntario . 14 .3% 9 .5% 100 .0% They tend to have shorter durations 21 .6% 16 .1% 100 .0% 23 .6% thaninotherprovinces . 16 .1% 16 .1% 23 .0% 27.8% 15 .0% 2 .1% 100 .0% 25 .4% 15 .0% 12 .3% 9 .6% Source : Total 24 .3% 19 .2% 17 .2% 14 .0% 16 .6% 8 .8% 100 .0% 100 .0% Calculations based on dat a provided by Canada Employment and Immigration Commission . Figure G . 6 Prairies : Number of Regular Claims, 1984 , Weeks of Weeks of benefit received insurabl e employment 0-9 10-19 20-29 Tota l 30-39 40-49 50+ 10-19 3,800 6,000 6,300 6,900 6,300 200 29,500 20-29 11,900 14,600 19,200 14,700 13,800 5,100 79,300 30-39 12,500 13,700 9,900 7,300 6,000 4,200 53,600 40-49 18, 1 00 10,900 7,000 7,100 7,900 5,100 56,000 50+ 14,800 11,500 11,800 7,900 11,500 8,600 66,10 0 Total 61,100 56,700 54,200 43,800 45,500 23,200 284,50 0 Percentage distribution of claimants by duration of benefits Total Percent of Weeks of insurable claimants by weeks of insure d employment 0-9 10-19 20-29 30-39 40-49 50+ 10-19 12 .9% 20 .3% 21 .4% 23 .4% 21 .4% 0 .7% 20-29 15 .0% 18 .4% 24 .2% 18 .5% 17 .4% 6 .4% 30-39 23 .3% 25 .6% 18 .5% 13 .6% 11 .2% 7 .8% 40-49 32 .3% 19 .5% 12 .5% 12 .5% 14 .1% 9 .1% 50+ Total 22 .4°.6 17 .4% 17 .9% 12 .0°.G 17 .4% 13 .0% 21 .5% 19 .9% 19 .1% 15 .4% 16 .0% 8 .2% employment a Only regular beneficiaries who received no other types of benefit s are included. Data include aii claims 100 .0% 10 .4% terminatingin 1984 . 100 .0% 28.9% Note : Therearefewersho rt-term .8% attachment claimants (only i0%) 100 .0% 18 and they tend to have shorter dura19.7% tionsof benefits. Only about 2xof 100 .0% claimants had short attachments and 100 .0% 23.2% collected for more than 40 weeks . Source : Calculations based on data provided by Canada Employment and 100 .0% 100 .0% Immigration Commission . 386 APPENDIX G Figure G . 7 British Columbia : Number of Regular Claims, 1984 ' Weeks of Weeks of benefit received insurabl e employment 0-9 Tota l 10-19 20-29 30-39 40-49 50+ 10-19 4,890 5,600 7,300 12,300 13,200 1,300 44,600 20-29 8,300 9,800 11,700 11,700 10,600 9,500 61,600 30-39 5,900 8,800 6,000 5,700 4,600 4,600 35,600 40-49 15,200 6,700 6,700 4,400 7,300 5,900 45,200 50+ 11,800 6,900 6,000 5,700 12,400 9,200 52,000 Total 46,100 37,800 36,700 39,800 48,100 30,500 239,000 Weeks of Percentage distribution of claimants by duration of benefits Total Percent of insurable claimants by employment 0-9 10-19 20-29 30-39 40-49 50+ weeks of insure d employmen t 10-19 11 .0% 12 .6% 16 .4% 27 .6% 29 .6% 2 .9% 100 .0% 18 .7% 20-29 13 .5% 15 .9% 19 .0% 19 .0% 17 .2% 15 .4% 100 .0% 25 .8% 30-39 16 .6% 24 .7% 16 .9% 16 .0% 12 .9% 12 .9% 100 .0% 14 .9% 40-49 33 .6% 14 .8% 12 .6% 9 .7% 16 .2% 13 .1% 100 .0% 18 .9% 50+ 22 .7% 13 .3% 11 .5% 11 .0% 23 .8% 17 .7% 100 .0% 21 .8 % 19 .3% 15 .8% 15 .4% 16 .7% 20 .1% 12 .8% 100 .0% 100 .0 % Tota l a Only regular beneficiaries who Note : Compared to Canada, British Canada . received no other types of benefits are included . Data include all claims Columbia has more claimants with Source : Calculations based on data 50 or more weeks . Duration patterns provided by Canada Employment and terminating in 1984 . are very much like the averages for Immigration Commission . Figure G . 8 Unemployment Insurance Claims and Employment by Industry, 198 4 Industry Claimants Paid employment Ratio of claimant percent to employment percen t Fishing 18,000 0 .7% Construction 257,000 11 .0% Forestry 29,000 Finance 213,000 1 .2% 9 .1% Agriculture 52,000 2 .2% 14,000 0 .1% 472,000 4 .8% 2 .29 68,000 0 .7% 1 .77 607,000 5 .27 6 .2% 156,000 1 .48 1 .6% 1 .39 Manufacturing 486,000 20 .7% 1,938,000 19 .7% 1 .05 Public 171,000 7 .3% 791,000 8 .0% 0 .91 38,000 1 .6% 180,000 1 .8% 0 .88 24 .7% 3,093,000 31 .4% 0 .79 administration Mines Service Trade 580,000 323,000 13.8% 1,721,000 17 .5% Transport 112,000 4 .8% Other All industries 68,000 2,346,000 808,000 2 .9% 100 .0% - 8 .2% 0 .0% 9,848,000 100 .0% Note : Claimants are persons whose claims terminated in Source : Special tabulation based on Canadian Employ1984 . Employment is the annual average for 1984 . ment and Immigration Commission. 0 .79 0 .58 - 1 .00 STATISTICAL APPENDIX 38 7 Figure G . 9 Unemployment Insurance Claims and Employment by Age Group, 1984 Age group Number of Total Ratio of Excess of claimants regular benefits to benefits over 1984 benefits contributions' contributions ($ million) (S million ) Total employment 198 4 Under 20 834,000 107,000 20-24 1,540,000 591,000 2,013 302 3,499 1 .05 14 1 .63 1 .12 25-34 3,1 17,000 883,000 35-44 2,528,000 461,000 1,813 0 .71 45-54 1,719,000 30,000 1,187 0 .70 55-65 1,074,00 0 258,000 1,093 779 371 -73 3 -517 1 .09 87 2,602,000 9,907 1 .00 All groups 10,812,00 0 0 a The federal contribution is apportioned using the distribution of federal tax revenue . Sources : Statistics Canada, Benefit Periods Established and Terminated under the Unemployment InsuranceAct 1984 (Cat . no . 73-201 ), 1986 ; The Labor Force, Dec ember 1 9 84 ( Cat . no . 71-001 1985 ; Department of National Revenue, Tasation Statistics 1983 ( Ottawa: Minister of Supply and Se rvices Canada, 1985) . Figure G .1 0 Unemployment Insurance Claims and Employment by Age Group and Sex, 198 4 Age group Total Number employment of claimants 1984 1984 Males Females Male s Total Ratio of Excess of regular benefits to benefits over benefits contributions' contributions Females Males Females Males Females Males Females ( S million) ( 8 million) ( $ million) ( 8 million ) under20 433,000 401,000 66,000 41,000 209 93 1 .24 0 .78 40 -26 20-24 800,000 740,000 356,000 235,000 1,338 675 1 .88 1 .29 627 152 25-34 1,781,000 1,336,000 516,000 368,000 2,202 1,297 1 .10 1 .15 203 168 35-44 1,471,000 1,057,000 276,000 185,000 1,195 619 0 .70 0 .74 -521 -213 45-54 1,049,000 671,000 187,000 114,000 810 377 0 .68 0 .75 -388 -129 55-65 709,000 365,000 179,000 80,000 820 273 1 .10 1 .03 78 All groups 6,243,000 4,570,000 1,580,00 0 a The federal contribution is apportioned using the distribution of federal tax revenue . Sources : Statistics Canada, Benefit Periods Established and Terminated under the Unemployment Insurance Act 1984 (Cat . no . 73•201 ), 1986 ; Department of National Revenue, Taxation Statistics 1983 (Ottawa: Minister of Supply and Services Canada, 1985) . 9 1,022,000 6,573 3,334 1 .01 0 .99 39 -39 3 88 APPENDIX G Figure G .1 1 Distribution of Unemployment Insurance Benefits by Family Income, 198 2 Family income in 1982 Total Percentage estimated distribution benefi t ( E million ) Less than $10,000 821 11 .5% E10,000-20,000 2,048 28 .7% 8 20,000-30,000 1,763 24 .7% $ 30,000-40,000 1,189 16 .7% 140,000-50,000 633 8 .9% E50,000 & over Total 681 9 .5 % 7,135 100 .0 % Note : Total does not match administrative data since the source for these data is a survey subject to undercounting . Source : Special tabulation by the Commission of Inquiry on Unemployment Insurance based on data supplied by Statistics Canada . Figure G .1 2 Unemployment Insurance Claims and Employment by Province, 1984 Province Newfoundland Prince Edward Island Total Number of Total Ratio of Excess of regular benefits to benefits over employment claimants 1984 1984 benefits contribution' contribution s ( E million) ($ million ) 176,000 111,000 494 3 .38 348 49,000 22,000 93 2 .83 337,000 106,000 . 1 .40 115 New Brunswick 248,000 10,000 480 2 .24 266 Quebec 2,722,000 74,000 403 60 Nova Scotia 2,945 1 .24 578 Ontario 4,243,000 809,000 2,649 0 .67 -1,323 Manitoba 472,000 91,000 299 0 .78 -85 Saskatchewan 439,000 68,000 235 0 .74 -83 Alberta 1,114,000 British Columbia Yukon Northwest Territories Canada 1,202,000 316,000 1,376 1 .22 N/A 4,000 19 248 1 .80 9 0 .61 . -1 0 11,002,000 2,601,000 9,905 1 .00 0 N/A a The federal contribution is appo rt ioned using the distribution of federal tax revenue . Sources : Statistics Canada, Benefit Periods Pstablished and Terminated under the Unemployment insurance Act 1984 (Cat . no . 73-201 ),1986 : The Labour Force, December 1984 ( Cat . no . 71-001 ) 1985 ; Depart ment of National Revenue, Taxation Statistics 1983 (Ottawa : Minister of Supply and Services Canada, 1985) . 0 .88 -122 217,000 897 4,000 16 STATISTICAL APPENDIX Options for Change to Unemployment Insuranc e an exact statistical cost of the various programs Estimating the likely impact of changes in Unem- comparing the likely impacts of the options . Other ployment Insurance is not an exact science . The methodologies could generate other estimates which will differ somewhat from those presented analysis is limited by the available claimant infor- operating in 1988 . Rather they are a means of the likely magnitude of changes in behaviour that here . The estimated changes in program expendi- would result from changes in the Unemployment tures included here are for regular benefits only Insurance scheme . This latter limitation is particularly acute since some of the proposals are (excluding maternity, fishing, sickness etc .) . The intended to induce such changes in behaviour . In ing in 1984 (the most recent data available on addition, the impact of policy changes depends on overall economic conditions, the local unemploy- completed claims) by region, by weeks of insurable employment and by duration of benefits . The ment rates and claimant characteristics . earnings levels have been imputed using the 1985 mation and the lack of objective information about base data used are the number of claims terminat- In considering the estimates it should be insurable earnings distribution of claimants by borne in mind that the impact of changes made in weeks of insurable employment . One should the late 1980s, the earliest possible date of implementation, will not be the same as that further note that the estimated effects of program estimated here using 1984 claimant characteristics . Not only will economic circumstances differ if other data were used ; for example, all claimants instead of regular claimants or all claims in a but the estimated impact of options such as Annu- calendar year rather than claims terminating in the alization depends on behavioural response ; we have assumed no change in behaviour . The Annual- year. ization proposal was estimated to reduce regular benefits in the current system by about 32 percent . difficulties . First, the effect of eliminating Variable The impact in years with low unemployment is because there is no information on the number of more severe ; varying from about 24 percent in 1983 (a high unemployment year) to about 38 percent in 1973 (a low unemployment year) . This people who currently fail to qualify for Unemploy- is because in periods of high unemployment a greater proportion of claimants have long labour change is likely to be small, however, since only 13 force attachments . The impacts of the One-for- ity requirement of more than 10 weeks . One option, the Macdonald Royal Commission proposal and the Enriched Current Program maximum benefit duration is difficult because option will also depend on the labour force char- there is no information on how much longer acteristics of the claimant population which, in turn, varies with the overall economic situation . exhaustees would have claimed benefits if permit- For these reasons one cannot accept the can be estimated, however, by assuming that all estimates contained here as mathematical abso- current exhaustees will continue to collect ben- lutes . No estimates based on 1984 data will yield efits to the new maximum duration (a worst case change would differ somewhat, but not materially, The simulation analysis involved several other Entrance Requirements is not estimated . This is ment Insurance but have 10 or more weeks of insurable employment . The impact of ignoring this Unemployment Insurance regions have an eligibilSecond, costing the impact of increasing ted to do so . The maximum possible cost impact 38 9 390 APPENDIX G scenario) . When Annualization and the Enriched Current Program are presented in the text an weeks of insurable employment . This was imputed using labour force survey data on job tenure . indication is made about the assumed take-up of the increased number of weeks available . The Impact of the Options on Individuals No information exists from claimant data on earnings above the maximum insurable level . Figures G-13 to G-24 indicate the impact on individuals in St . John's, Winnipeg and Toronto, of These data were imputed using information on the the proposals which are outlined in Chapter 7 earnings level of Unemployment Insurance claim- (Annualization, the One-for-One option, the ants from Taxation Statistics. To cost options such Macdonald Royal Commission proposal, and the as the Macdonald Royal Commission proposal, Enriched Current Program option) . In these data are required on claimants with more than 52 figures the actual weeks of unemployment include the waiting period . Figure G .1 3 Effect of Annualization on Individuals in St . John's (Average insured earnings E400, local unemployment rate 14 .5%, minimum weeks 10 ) Weeks of Maximum Weekly Maximum insurable weeks of benefit total employment benefit benefit Actual benefits by actual weeks of unemployment (dollars ) 10 20 30 40 50 Benefits available under present syste m 10 42 240 10,080 20 50 240 12,000 1,920 4,320 6,720 9,120 11,520 30 50 240 12,000 1,920 4,320 6,720 9,120 11,520 40 50 240 12,000 1,920 4,320 6,720 9,120 11,520 50 50 240 12,000 1,920 4,320 6,720 9,120 11,520 52 50 240 12,000 1,920 4,320 6,720 9,120 11,520 1,920 4,320 6,720 9,120 10,080 Benefits available with Annualizatio n 10 50 51 2,550 408 918 1,428 1,938 2,448 20 50 102 5,100 816 1,836 2,856 3,876 4,89 6 30 50 154 7,700 1,232 2,772 4,312 5,852 7,392 40 50 205 10,250 1,640 3,690 50 50 256 12,800 2,048 4,608 7,168 9,728 12,288 52 50 13,300 2,128 4,788 7,448 10,108 12,76 8 266 5,740 7,790 9,840 Difference from present system 10 8 -189 -7,530 -1,512 -3,402 -5,292 -7,182 -7,632 20 0 -138 -6,900 -1,104 -2,484 -3,864 -5,244 -6,62 4 30 0 -86 -4,300 -688 =1,548 -2,408 -3,?68 -4,128 40 0 -35 -1,750 -280 -630 -980 50 52 0 0 16 26 -1,330 -1,680 800 128 288 448 608 768 1,30 0 208 468 728 988 1,24 8 Percentage difference from present system 10 19 .0% -78 .8% -74 .7% -78 .8% -78 .8% -78 .8% -78 .8% -75 .7% 20 0 .0% -57 .5% -57 .5% -57 .5% -57 .5% -57 .5% -57 .5% -57 .5% 30 0 .0% -35 .8% -35 .8% -35 .8% -35 .8% -35 .8% -35 .8% -35 .8% 40 0 .0% -14 .6% -14 .6% -14 .6% -14 .6% -14 .6% -14 .6% -14 .6 % 50 0 .0% 6 .7% 6 .7% 6 .7% 6 .7% 6 .7% 6 .7% 6 .7% 52 0 .0% 10 .8% 10 .8% 10 .8% 10 .8% 10 .8% 10 .8% 10 .8% STATISTICAL APPENDIX Figure G .1 4 Effect of Annualization on Individuals in Winnipe g (Average insured earnings $400, local unemployment rate 8 .6%, minimum weeks 11 ) Weeks of Maximum Weekly Maximum Actual benefits by actual weeks insurable weeks of benefit total of unemployment (dollars) employment benefit benefit 10 20 30 40 50 0 0 Benefits available under present syste m 10 0 240 0 0 0 0 20 38 240 9,120 1,920 4,320 6,720 9,120 9,120 30 45 240 10,800 1,920 4,320 6,720 9,120 10,800 40 50 240 12,000 1,920 4,320 6,720 9,120 11,520 50 50 240 12,000 1,920 4,320 6,720 9,120 11,520 52 50 240 12,000 1,920 4,320 6,720 9,120 11,52 0 Benefits available with Annualizatio n 10 50 51 2,550 408 918 1,428 1,938 2,448 20 50 102 5,100 816 1,836 2,856 3,876 4,896 30 50 154 7,700 1,232 2,772 4,312 5,852 7,392 40 50 205 10,250 1,640 3,690 5,740 7,790 9,840 50 50 256 12,800 2,048 4,608 7,168 9,728 12,288 52 50 266 13,300 2,128 4,788 7,448 10,108 12,76 8 Difference from present system 10 50 -189 2,550 408 918 1,428 1,938 2,448 20 12 -138 -4,020 -1,104 -2,484 -3,864 -5,244 -4,224 30 5 -86 -3,100 -688 -1,548 -2,408 -3,268 -3,408 40 0 - 35 -1,750 50 52 0 0 16 26 800 -280 -630 -980 128 1,300 208 288 468 448 728 -1,330 -1,680 608 988 768 1,24 8 Percentage difference from present system 10 - - - - - - - - 20 31 .6% -57 .5% -44 .1% -57 .5% -57 .5% -57 .5% -57 .5% -46 .3% 30 11 .1% -35 .8% -28.7% -35 .8% - 35 .8% -35 .8% -35 .8% -31 .6% 40 0 .0% -14 .6% -14 .6% -14 .6°.6 -14 .6% -14 .6% -14 .6% -14 .6% 50 0 .0% 6 .7% 6 .7% 6 .7% 6 .7% 6 .7% 6 .7% 6 .7% 52 0 .0% 10 .8% 10 .8% 10 .8% 10 .8% 10 .8% 10 .8% 10 .8% 39 1 392 APPENDIX G Figure G .1 5 Effect of Annualization on Individuals in Toront o (Average insured earnings $400, local unemployment rate 5 .8%, minimum weeks 14 ) Weeks of Maximum Weekly Maximum Actual benefits by actual weeks insurable weeks of benefit total of unemployment (dollars ) benefit benefit -e employment 10 20 30 40 50 Benefits available under present syste m 10 0 240 0 0 0 0 0 0 20 28 240 6,720 1,920 4,320 6,720 6,720 6,720 30 35 240 8,500 1,920 4,320 6,720 8,400 8,400 40 40 240 9,600 1,920 4,320 6,720 9,120 9,600 50 45 240 10,800 1,920 4,320 6,720 9,120 10,800 52 46 240 11,040 1,920 4,320 6,720 9,120 11,04 0 Benefits available with Annualizatio n 10 50 51 2,550 408 918 1,428 1,938 2,448 20 50 102 5,100 816 1,836 2,856 3,876 4,896 30 50 154 7,700 1,232 2,772 4,312 5,852 7,392 40 50 205 10,250 1,640 3,690 5,740 7,790 9,840 50 50 256 12,800 2,048 4,608 7,168 9,728 12,288 52 50 266 13,300 2,128 4,788 7,448 10,108 12,76 8 Difference from present system 10 50 -189 2,550 408 918 1,428 1,938 2,448 20 22 -138 -1,620 -1,104 -2,484 -3,864 -2,844 -1,824 30 15 -86 -700 -688 -1,548 -2,408 -2,548 -1,008 40 10 -35 650 -280 -630 -980 -1,330 240 50 5 16 2,000 52 4 26 2,260 128 208 288 468 448 608 728 1,488 988 1,72 8 Percentage difference from present syste m 10 - - - - - - - - 20 78 .6% -57 .5% -24 .1% -57 .5% -57 .5% -57 .5% -42.3% -27 .1% 30 42 .9% -35 .8% -8 .3% -35 .8% -35 .8% -35 .8% -30 .3% -12 .0% 40 25 .0% -14 .6% 6 .8% -14 .6% -14 .6% -14 .6% -14 .6% 2 .5% 50 11 .1% 6 .7% 18 .5% 6 .7% 6 .7% 6 .7% 6 .7% 13 .8% 52 8 .7% 10 .8% 20 .5% 10 .8% 10 .8% 10 .8% 10 .8% 15 .7% STATISTICAL APPENDIX Figure G . 1 6 Effect of One-for-One Option on Individuals in St . John' s (Average insured earnings 8400, local unemployment rate 14 .5%, minimum weeks 10 ) Weeks of Maximum Weekly Maximum Actual benefits by actual weeks insurable weeks of benefit total of unemployment (dollars) employment benefit benefit 10 20 30 40 50 Benefits available under present syste m 10 42 240 10,080 1,920 4 .320 6,720 9,120 10,080 20 50 240 12,000 1,920 4,320 6,720 9,120 11,520 30 50 240 12,000 1,920 4,320 6,720 9,120 11,520 40 50 240 12,000 1,920 4,320 6,720 9,120 11,520 50 50 240 12,000 1,920 4,320 6,720 9,120 11,520 52 50 240 12,000 1,920 4,320 6,720 9,120 11,52 0 Benefits available with One-for-On e 10 10 240 2,400 1,920 2,400 2,400 2,400 2,400 20 20 240 4,800 1,920 4,320 4,800 4,800 4,800 30 28 240 6,720 1,920 4,320 6,720 6,720 6,720 40 28 240 6,720 1,920 4,320 6,720 6,720 6,720 50 28 240 6,720 1,920 4,320 6,720 6,720 6,720 52 28 240 6,720 1,920 4,320 6,720 6,720 6,72 0 Difference from present syste m 10 - 32 0 -7,680 0 -1,920 -4,320 -6,720 -7,780 20 -30 0 -7,200 0 0 -1,920 -4,320 -6,720 30 -22 0 -5,280 40 -22 0 -5,280 0 0 0 -2,400 -4,800 50 -22 0 -5,280 0 0 0 -2,400 -4,800 52 -22 0 0 -5,280 0 0 0 0 -2,400 0 --4,800 -2,400 -4,80 0 Percentage difference from present syste m 10 -72 .2% 0 -76 .2% 0 .0% -44 .4% -64 .3% -73 .7% -76 .2% 20 -60 .0% 0 -60 .0% 0 .0% 0 .0% -28 .6% -47 .4% -58 .3% 30 -44 .0% 0 -44 .0% 0 .0% 0 .0% 0 .0% -26 .3% -41 .7% 40 . -44 .0% 0 -44 .0% 0 .0% 0 .0% 0 .0% -26 .3% -41 .7% 50 -44 .0% 0 -44 .0% 0 .0% 0 .0% 0 .0% -26 .3% -41 .7% 52 -44 .0% 0 -44 .0% 0 .0% 0 .0% 0 .0% -26 .3% -41 .7% 39 3 394 APPENDIX G Figure G .1 7 Effect of One-for-One Option on individuals in Winnipe g (Average insured earnings $400, local unemployment rate 8 .6%, minimum weeks 11 ) Weeks of Maximum insurable weeks of employment be nefit Weekly Maximum Actual be nefits by actual weeks be nefit total of unemployment ( dollars) be nefit 10 20 ' 30 40 50 Benefits available under present syste m 10 0 240 0 0 0 0 0 0 20 38 240 9,120 1,920 4,320 6,720 9,120 9,120 30 45 240 10,800 1,920 4,320 6,720 9,120 10,800 40 50 240 12,000 1,920 4,320 6,720 9,120 11,520 50 50 240 12,000 1,920 4,320 6,720 9,120 11,520 52 50 240 12,000 1,920 4,320 6,720 9,120 11,52 0 Benefits available with One-for-On e 10 10 240 2,400 1,920 2,400 2,400 2,400 2,400 20 20 240 4,800 1,920 4,320 4,800 4,800 4,800 30 28 240 6,720 1,920 4,320 6,720 6,720 6,720 40 28 240 6,720 1,920 4,320 6,720 6,720 6,720 50 28 240 6,720 1,920 4,320 6,720 6,720 6,720 52 28 240 6,720 1,920 4,320 6,720 6,720 6,720 Difference from present syste m 10 10 0 2,400 1,920 2,400 2,400 2,400 2,400 20 -18 0 -4,320 0 0 -1,920 -4,320 -4,320 30 -17 0 -4,080 0 0 0 -2,400 -4,080 40 -22 0 -5,280 0 0 0 -2,400 -4,800 50 -22 0 -5,280 0 0 0 -2,400 -4,800 52 -22 0 -5,280 0 0 0 -2,400 -4,80 0 Percentage difference from present system 10 20 -47 .4% - - - 0 -47 .4X - - - 0 .0% 0 .0`X, -28 .6% - - -47 .4X, -47 .4 % 30 -37 .8'X, 0 -37 .8% 0 .0% 0 .0% 0 .0% -26 .3% -37 .8% 40 -44 .0% 0 -44 .0 % 0 .0% 0 .0% 0 .05(, -26 .3% -41 .7% 50 -44 .0% 0 -44 .0% 0 .0% 0 .0% 0 .0% -26 .3% -41 .7% 52 -44 .0% 0 -44 .0% 0 .0% 0 .0% 0 .0% -26 .3`X, -41 .7% STATISTICAL APPENDIX Figure G .1 8 Effect of One-for-One Option on Individuals in Toront o (Average insured earnings E400, local unemployment rate 5 .8%, minimum weeks 14 ) Weeks of Maximum Weekly Maximum Actual benefits by actual weeks insurable weeks of benefit total of unemployment ( dollars) employment be nefit benefit 10 20 30 40 50 Benefits available under present syste m 10 0 240 0 0 0 0 0 0 20 28 240 6,720 1,920 4,320 6,720 6,720 6,720 30 35 240 8,400 1,920 4,320 6,720 8,400 8,400 40 40 240 9,600 1,920 4,320 6,720 9,120 9,600 50 45 240 10,800 1,920 4,320 6,720 9,120 10,800 52 46 240 11,040 1,920 4,320 6,720 9,120 11,04 0 Benefits available with One-for-On e 10 10 240 2,400 1,920 2,400 2,400 2,400 2,400 20 20 240 4,800 1,920 4,320 4,800 4,800 4,800 30 28 240 6,720 1,920 4,320 6,720 6,720 6,720 40 28 240 6,720 1,920 4,320 6,720 6,720 6,720 50 28 240 6,720 1,920 4,320 6,720 6,720 6,720 52 28 240 6,720 1,920 4,320 6,720 6,720 6,72 0 Difference from present system 10 10 0 2,400 1,920 2,400 2,400 2,400 2,400 20 -8 0 - 1,920 0 0 - 1,920 -1,920 -1,920 30 - 40 -12 7 0 -1,680 50 -17 0 -4,080 0 0 0 -2,400 -4080 52 -18 0 -4,320 0 0 0 -2,400 -4,32 0 0 0 -2,880 0 0 0 0 -1,680 0 - -2,400 1,680 -2,880 Percentage difference from present syste m 10 - - - - - - - - 20 -28 .6% 0 -28,6% 0 .0% 0 .0% -28 .6% -28 .6% -28 .6% 30 -20 .0% 0 -20 .0% 0 .0% 0 .0% 0 .0% -20 .0% -20 .0% 40 -30 .0% 0 -30 .0% 0 .0% 0 .0% 0 .0% -26 .3% -30 .0% 50 -37.8% 0 -37 .8% 0 .0% 0 .0% 0 .0% -26 .3% -37 .8% 52 -39 .1% 0 -39 .1% 0 .0% 0 .0% 0 .0% -26 .3% -39 .1% 39 5 396 APPENDIX G Figure G .1 9 Effect of Macdonald Royal Commission Proposal on Individuals in St . John's (Average insured earnings 8400, local unemployment rate 14 .5%, minimum weeks 10 ) Maximum Actual benefits by actual weeks Weeks of Maximum Weekly insurable weeks of benefit total of unemployment ( dollars ) employment benefit benefit 10 20 30 40 50 Benefits available under present syste m 10 42 240 10,800 1,920 4,320 6,720 9,120 10,080 20 50 240 12,000 1,920 4,320 6,720 9,120 11,520 30 50 240 12,000 1,920 4,320 6,720 9,120 11,520 40 50 240 12,000 1,920 4,320 6,720 9,120 11,520 50 50 240 12,000 1,920 4,320 6,720 9,120 11,520 52 50 240 12,000 1,920 4,320 6,720 9,120 11,52 0 Benefits available with Macdonald Royal Commission proposa l 10 0 200 0 0 0 0 0 0 20 0 200 0 0 0 0 0 0 30 15 200 3,000 1,600 3,000 3,000 3,000 3,000 40 20 200 4,000 1,600 3,600 4,000 4,000 4,000 50 25 200 5,000 1,600 3,600 5,000 5,000 5,000 52 26 200 5,200 1,600 3,600 5,200 5,200 5,20 0 Difference from present syste m 10 -42 -40 -10,080 -1,920 -4,320 -6,720 -9,120 -10,080 20 -50 -40 -12,000 -1,920 -4,320 -6,720 -9,120 -11,520 30 -35 -40 -9,000 -320 -1,320 -3,720 -6,120 -8,520 40 - 30 -40 -8,000 -320 -720 -2,720 -5,120 -7,520 50 -25 -40 -7,000 -320 -720 -1,720 -4,120 -6,520 52 -24 -40 -6,800 -320 -720 -1,520 -3,920 -6,32 0 Percentage difference from present syste m 10 -100 .0% -16 .7% -100.0 ;4 -100 .0% -100 .0% -100 .0X, -100 .09G -100 .0X, 20 -100 .0% -16 .7% -100 .0% -100 .0% -100 .0% -100 .0% -100 .0% -100 .0% 30 -70 .0% -16 .7% -75 .0% -16 .7% -30 .6% -55 .4% -67 .1% -74 .0% 40 -60 .0% -16 .7% -66 .7% -16 .7% -16 .7% -40 .5% -56 .1X, -65 .3% 50 -50 .0% -16 .7% -58 .3% -16 .7% -16 .7% -25 .6% -45 .2% -56 .651 52 -48 .0% -16 .7% -56 .7% -16 .7% -16 .7% -22 .6% -43 .0% -54 .9% I STATISTICAL APPENDIX Figure G .2 0 Effect of Macdonald Royal Commission Proposal on Individuals in Winnipeg (Average insured earnings $400, local unemployment rate 8 .6%, minimum weeks l i ) Weeks of Maximum Weekly Maximum Actual benefits by actual weeks insurable weeks of benefit total of unemployment (dollars) employment benefit benefit 10 20 30 40 50 Benefits available under present system 0 240 0 0 0 0 0 10 0 20 38 240 9,120 1,920 4,320 6,720 9,120 9,12 0 30 45 240 10,800 1,920 4,320 6,720 9,120 10,800 40 50 240 12,000 1,920 4,320 6,720 9,120 11,520 50 50 240 12,000 1,920 4,320 6,720 9,120 11,520 52 50 240 12,000 1,920 4,320 6,720 9,120 11,52 0 Benefits available with Macdonald Royal Commission proposa l 10 0 200 0 0 0 0 0 0 20 0 200 0 0 0 0 0 0 30 15 200 3,000 1,600 3,000 3,000 3,000 3,000 40 20 200 4,000 1,600 3,600 4,000 4,000 4,000 50 25 200 5,000 1,600 3,600 5,000 5,000 5,000 52 26 200 5,200 1,600 3,600 5,200 5,200 5,200 Difference from present syste m 10 0 -40 0 0 0 0 0 0 20 -38 -40 -9,120 -1,920 -4,320 -6,720 -9,120 -9,120 30 - 30 -40 -7,800 -320 -1,320 -3,720 -6,120 -7,800 40 -30 -40 -8,000 -320 -720 -2,720 -5,120 -7,520 50 -25 -40 -7,000 -320 -720 -1,720 -4,120 -6,520 52 -24 -40 -6,800 -320 -720 -1,520 -3,920 -6,32 0 Percentage difference from present syste m 10 - - - - - - - 20 -100 .0% -16 .7% -100 .0% -100 .0% -100 .0% -100 .0% -100 .0% -100 .0 % 30 -66 .7% -16.7% -72 .2% -16 .7% -30 .6% -55 .4% -67 .1% -72 .2% 40 -60 .0% -16 .7% -66 .7% -16 .7% -16 .7% -40 .5% -56 .1% -65 .3% 50 -50 .0% -16 .7% -58 .3% -16 .7% -16 .7% -25 .6% -45 .2% -56 .6% 52 -48 .0% -16 .7% -56 .7% -16 .7% -16 .7% -22 .6% -43 .0% -54 .9% 39 7 398 APPENDIX G Figure G .2 1 Effect of Macdonald Royal Commission Proposal on Individuals in Toronto (Average insured earnings $400, local unemployment rate 5 .8%, minimum weeks 14 ) Weeks of Maximum Weekly Maximum Actual benefits by actual weeks insurable weeks of benefit total of unemployment ( dollars) employment benefit be nefit 10 20 30 40 50 Benefits available under present syste m 10 0 240 0 0 0 0 0 0 20 28 240 6,720 1,920 4,320 6,720 6,720 6,720 30 35 240 8,400 1,920 4,320 6,720 8,400 8,400 40 40 240 9,600 1,920 4,320 6,720 9,120 9,600 50 45 240 10,800 1,920 4,320 6,720 9,120 10,800 52 46 240 11,040 1,920 4,320 6,720 9,120 11,04 0 Benefits available with Macdonald Royal Commission proposa l 10 0 200 0 0 0 0 0 0 20 0 200 0 0 0 0 0 0 30 15 200 3,000 1,600 3,000 3,000 3,000 3,000 40 20 200 4,000 1,600 3,600 4,000 4,000 4,000 50 25 200 5,000 1,600 3,600 5,000 5,000 5,000 52 26 200 5,200 1,600 3,600 5,200 5,200 5,20 0 Difference from present system 10 0 -40 0 0 0 0 0 0 20 -28 -40 -6,720 -1,920 -4,320 -6,720 -6,720 -6,720 30 - 20 - 40 -5,400 -320 -1,320 -3,720 -5,400 -5,400 40 -20 -40 -5,600 -320 -720 -2,720 -5,120 -5,600 50 -20 -40 -5,800 -320 -720 -1,720 -4,120 -5,800 52 - 20 -40 -5,840 -320 -720 -1,520 -3,920 -5,84 0 Percentage difference from present syste m 10 - - - - - - - - 20 -100 .0% -16 .7% -100 .0% -100 .0% -100 .0% -100 .0% -100 .0% -100 .0% 30 -57 .1% -16 .7% -64 .3% -16 .7% -30 .6% -55 .4% -64 .3% -64 .3% 40 -50 .0% -16 .7% -58 .3% -16 .7% -16 .7% -40 .5% -56 .1% -58 .3% 50 -44 .4% -16 .7% -53 .7% -16 .7% -16 .7% -25 .6% -45 .2% -53 .7% 52 -43 .5% -16 .7% -52 .9% -16 .7% -16 .7% -22 .6% -43 .0% -52 .9% STATISTICAL APPENDIX 39 9 Figure G .2 2 Effect of Enriched Current Program on Individuals in St . John's (Average insured earnings 8400, local unemployment rate 14 .5%, minimum weeks 10 ) Weeks of Maximum Weekly Maximum . Actual benefits by actual weeks of unemployment ( dollars) insurable weeks of bene fi t tota l employment benefit benefit 10 20 30 40 50 60 70 72 Benefits available under present system 10 42 240 10,080 1,920 4,320 6,720 9,120 10,080 10,080 10,080 10,080 20 50 240 12,000 1,920 4,320 6,720 9,120 11,520 12,000 12,000 12,000 30 50 240 12,000 1,920 4,320 6,720 9,120 11,520 12,000 12,000 12,000 40 50 240 12,000 1,920 4,320 6,720 9,120 11,520 12,000 12,000 12,000 50 50 240 12,000 1,920 4,320 6,720 9,120 11,520 12,000 12,000 12,000 52 50 240 12,000 1,920 4,320 6,720 9,120 11,520 12,000 12,000 12,00 0 Benefits available with Enriched Current Progra m 10 42 266 11,172 2,394 5,054 7,714 10,374 11,172 11,172 11,172 11,172 20 52 266 13,832 2,394 5,054 7,714 10,374 13,034 13,832 13,832 13,832 30 62 266 16,492 2,394 5,054 7,714 10,374 13,034 15,694 16,492 16,492 40 71 266 18,886 2,394 5,054 7,714 10,374 13,034 15,694 18,354 18,886 50 71 266 18,886 2,394 5,054 7,714 10,374 13,034 15,694 18,354 18,886 52 71 266 18,886 2,394 5,054 7,714 10,374 13,034 15,694 18,354 18,88 6 Difference from present syste m 10 0 26 1,092 474 734 994 1,254 1,092 1,092 1,092 1,092 20 2 26 1,832 474 734 994 1,254 1,514 1,832 1,832 1,832 30 12 26 4,492 474 734 994 1,254 1,514 3,694 4,492 4,492 40 21 26 6,886 474 734 994 1,254 1,514 3,694 6,354 6,886 50 21 26 6,886 474 734 994 1,254 1,514 3,694 6,354 6,886 52 21 26 6,886 474 734 994 1,254 1,514 3,694 6,354 6,88 6 Percentage difference from present system 10 0 .0% 10 .8% 10 .8% 24 .7% 17 .0% 14 .8% 13 .8% 10 .8% 10 .8% 10 .8% 10 .8% 20 4 .0% 10 .8% 15 .3% 24 .7% 17 .0% 14 .8% 13 .8% 13 .1% 15 .3% 15 .3% 15 .3% 30 24 .0% 10 .8% 37 .4% 24 .7% 17 .0% 14 .8% 13 .8% 13 .1% 30 .8% 37 .4% 37 .4% 40 42 .0% 10 .8% 57 .4% 24 .7% 17 .0% 14 .8% 13 .8% 13 .1% 30 .8% 53 .0% 57 .4% 50 42 .0% 10 .8% 57 .4% 24 .7% 17 .0% 14 .8% 13 .8% 13 .1% 30 .8% 53 .0% 57 .4% 52 42 .0% 10 .8% 57 .4% 24 .7% 17 .0% 14 .8% 13 .8% 13 .1% 30 .8% 53 .0% 57 .4% 400 APPENDIX G Figure G .2 3 Effect of Enriched Current Program on Individuals in Winnipeg (Average insured earnings $400, local unemployment rate 8 .6%, minimum weeks 11 ) Weeks of Maximum Weekly insurable weeks of benefit employment benefit Maximum Actual benefits by actual weeks of unemployment ( dollars) tota l benefit 10 20 30 40 50 60 70 72 Benefits available under present syste m 10 0 0 0 0 0 0 0 0 0 0 240 20 38 240 9,120 1,920 4,320 6,720 9,120 9,120 9,120 9,120 9,120 30 45 240 10,800 1,920 4,320 6,720 9,120 10,800 10,800 10,800 10,800 40 50 240 12,000 1,920 4,320 6,720 9,120 11,520 12,000 12,000 12,000 50 50 240 12,000 1,920 4,320 6,720 9,120 11,520 12,000 12,000 12,000 52 50 240 12,000 1,920 4,320 6,720 9,120 11,520 12,000 12,000 12,00 0 Benefits available with Enriched Current Program 10 28 266 7,448 2,394 5,054 7,448 7,448 7,448 7,448 7,448 7,448 20 38 266 10,108 2,394 5,054 7,714 10,108 10,108 10,108 10,108 10,108 30 48 266 12,768 2,394 5,054 7,714 10,374 12,768 12,768 12,768 12,768 40 57 266 15,162 2,394 5,054 7,714 10,374 13,034 15,162 15,162 15,162 50 57 266 15,162 2,394 5,054 7,714 10,374 13,034 15,162 15,162 15,162 52 57 266 15,162 2,394 5,054 7,714 10,374 13,034 15,162 15,162 15,16 2 Difference from present system 10 28 26 7,448 2,394 5,054 7,448 7,448 7,448 7,448 7,448 7,448 20 0 26 988 474 734 994 988 988 988 988 988 30 3 26 1,968 474 734 994 1,254 1,968 1,968 1,968 1,968 40 7 26 3,162 474 734 994 1,254 1,514 3,162 3,162 3,162 50 7 26 3,162 474 734 994 1,254 1,514 3,162 3,162 3,162 52 7 26 3,162 474 734 994 1,254 1,514 3,162 3,162 3,16 2 Percentage difference from present syste m 10 - - - - - - - - - - - 20 0 .0% 10 .8% 10.8% 24 .7% 17 .0% 14 .8% 10 .8% 10 .8% 10 .8% 10 .8% 10 .8% 30 6 .7% 10 .8% 18.2% 24 .7% 17 .0% 14 .8% 13.8% 18 .2% 18 .2% 18 .2% 18 .2% 40 14 .0% 10 .8% 26 .4% 24 .7% 17 .0% 14 .8% 13 .8% 13 .1% 26 .4% 26 .4% 26 .4% 50 14 .0% 10 .8% 26 .4% 24 .7% 17 .0% 14 .8% 13 .8% 13 .1% 26 .4% 26 .4% 26 .4% 52 14 .0% 10 .8% 26 .4% 24 .7% 17 .0% 14 .8% 13 .8% 13 .1% 26 .4% 26 .4% 26 .4% STATISTICAL APPENDIX 40 1 Figure G .2 4 Effect of Enriched Current Program on Individuals in Toronto (Average insured earnings $400, local unemployment rate 5 .8%, minimum weeks 14 ) Maximum Actual benefits by actual weeks of unemployment ( dollars) Weekly Weeks of Maximum insurable weeks of benefit tota l 30 40 50 60 employment benefit benefit 10 20 70 72 Benefits available under present syste m 10 0 240 0 0 0 0 0 0 0 0 0 20 28 240 6,720 1,920 4,320 6,720 6,720 6,720 6,720 6,720 6,720 30 35 240 8,400 1,920 4,320 6,720 8,400 8,400 8,400 8,400 8,400 40 40 240 9,600 1,920 4,320 6,720 9,120 9,600 9,600 9,600 9,600 240 10,800 1,920 4,320 6,720 9,120 10,800 10,800 10,800 10,800 50 45 52 46 240 11,040 1,920 4,320 6,720 9,120 11,040 11,040 11,040 11,04 0 Benefits available with Enriched Current Progra m 10 18 266 4,788 2,394 4,788 4,788 4,788 4,788 4,788 4,788 4,788 5,054 7,448 7,448 7,448 7,448 7,448 7,448 20 28 266 7,448 2,394 30 38 266 10,108 2,394 5,054 7,714 10,108 10,108 10,108 10,108 10,108 40 47 266 12,502 2,394 5,054 7,714 10,374 12,502 12,502 12,502 12,502 2,394 5,054 7,714 10,374 12,502 12,502 12,502 12,502 52 47 266 12,502 2,394 5,054 7,714 10,374 12,502 12,502 12,502 12,50 2 50 47 266 12,502 Difference from present syste m 10 18 26 4,788 2,394 4,788 4,788 4,788 4,788 4,788 4,788 4,788 20 0 26 728 474 734 728 728 728 728 728 728 30 3 26 1,708 474 734 994 1,708 1,708 1,708 1,708 1,708 40 7 26 2,902 474 734 994 1,254 2,902 2,902 2,902 2,902 50 2 26 1,702 474 734 994 1,254 1,702 1,702 1,702 1,702 1,462 474 734 994 1,254 1,462 1,462 1,462 1,46 2 52 1 26 Percentage difference from present syste m 10 - - - - .8% 10 .8% 10 .8% .8% 10 .8% 10 .8% 10 .7% 17 .0% 10 20 0 .0% 10 .8% 10 .8% 24 .3% 20 .3% 20 .3% .8% 20 .3% 20 .3% 20 30 8 .6% 10 .8% 20 .3% 24 .7% 17 .0% 14 .2% 30 .2% 30.2% 40 17 .5% 10 .8% 30 .2% 24 .7% 17 .0% 14 .8% 13 .8% 30 .2% 30 .8% 15 .8% .8% 15 .8% 15 50 4 .4% 10 .8% 15 .8% 24 .7% 17 .0% 14 .8% 13 .8% 15 .8% 13 .2% 13 .2% 13 .2% 13 .2% 52 2 .2% 10 .8% 13 .2% 24 .7% 17 .0% 14 .8% 13 Biographies of Commissioner s 40 3 Claude E . Forget, Chairman Guylaine Saucier, Commissione r Claude Forget is an economic consultant, partner in the firm SECOR in Montreal, and vice-president Guylaine Saucier is the president and chief executive officer of Le Groupe Gerard Saucier Ltee ., one of the C .D . Howe Institute . He has been professor of the largest forestry products firms in Quebec . of economics at l'Universite de Montreal, McGill University, and 1'Universite du Quebec a Montreal . Before becoming president she was company He was a member of the Quebec National for legal affairs and negotiations with public and Assembly from 1973 to 1981 and served as Minis- private sectors . She serves on the boards of several ter of Social Affairs for the first three of those years . Before that he was in the public service as Assist- academic, forestry industry and business organizations . Ms . Saucier is a chartered accountant and a ant Deputy Minister of Social Affairs in Quebec graduate of le College Marguerite-Bourgeois and from 1971 to 1973, consultant to the Federal 1'Ecole des Hautes Etudes Commerciales, of the Commission on Taxation from 1963 to 1966, and Universite de Montreal . consultant to the Quebec Commission of Inquiry on Health and Welfare from 1968 to 1970 . Mr . Forget studied law at 1'Universite de Montreal, and economics at the London School of Economics and at Johns Hopkins University in Maryland . He is a member of the Quebec Bar . comptroller for four years and had responsibility 404 Al 9MM9 Moses 0 . Morgan, Commissione r Jack Munro, Commissione r Moses Morgan is a distinguished Canadian scholar Jack Munro has been president of Regional Council in the social sciences . He taught at King's Collegi- No . 1 of International Woodworkers of America since 1973, and is an associate officer of the IWA ate School and Dalhousie University, and was president of Memorial University of Newfoundland from 1973 to 1981 . He has also served as International Executive Board . He is also general president of the Association of Universities and and serves on the boards of the Asia Pacific Foun- Colleges of Canada and as council member of the Association of Commonwealth Universities . He dation, the Canadian Forestry Advisory Council, and the Vancouver Port Corporation . Mr . Munro was appointed a Commissioner to inquire into the began work as an apprentice machinist with the closing of the mines in Labrador and a member of Canadian Pacific Railway in 1948 . In 1959 he was the Royal Commission on the Ocean Ranger laid off after 11 years with CPR and went to work Marine Disaster . Mr . Morgan is a graduate of as a welder at Kootenay Forest Products in Nelson, vice-president of the Canadian Labour Congress Dalhousie and of Oxford University which he British Columbia . He was awarded an honorary attended as a Rhodes Scholar, and has been doctorate by the University of British Columbia in awarded seven honorary degrees from universities in Nova Scotia, New Brunswick and Ontario . He is 1985 . a Companion of the Order of Canada . 40 5 Roy F . Bennett, Commissioner Frances J . Soboda, Commissioner Roy Bennett is president of his own management Frances Soboda is a vice-president of the Canadian consulting and investment firm, Bennecon Ltd . He Labour Congress and a member of the CLC Pension Committee . She is president of Local 4253 of the formed the company after retiring from the Ford Motor Company of Canada Ltd . where he was United Steelworkers of America, vice-president of president and chief executive officer from 1971 to the Nova Scotia Federation of Labour, and co- 1981 . He is a member of the Business Council on chairperson of the NSFL's Human Rights Commit- National Issues and sits on the boards of several tee . She served on the advisory committee for the public and private organizations . He has been an advisor to the Premier of Ontario and to the Economic Summit Conference in 1985 and was an employee representative on the Board of Referees federal Minister of Industry, and has served as of Unemployment Insurance for ten years . Ms . chairman of the Better Business Bureau of Canada Soboda is particularly involved in labour educa- and chairman of the Motor Vehicles Manufacturers tion . She has taught courses and coordinated Association . Mr . Bennett is a chartered accountant and a Fellow of the Institute of Chartered Account- seminars and workshops for workers and unem- ants of Ontario . an educational television program on microeco- ployed persons, and co-hosted and co-produced nomic matters . Ms . Soboda is a graduate of the Labour College of Canada . She is among the workers recently laid off by Hawker Siddeley Canada Inc .'s Nova Scotia plant . Commission Staff and Consultant s Executive Directo r Elizabeth Dowdeswel l (August 1985-September 1986 ) Nola K . Seymoa r (September 1986-December 1986 ) Director of Consultations Nola K . Seymoa r Director of Research Donald J . MacDonald Director o f Finance and Administration Gary Paradi s Executive Assistant to the Chairma n Marie Bourbonniere Executive Assistant to the Executive Director Ginette Dean Consultation s Consultation Officers Martine Gow-Cooper (Associate Director) Jacques Berard Lynn Berthiaume Denis Coupland Jan Knowles Brian Hugh Mackenzie Batool Siddiqui Wendy Young Logistics Officers Robert Doucette Audrey Schreyer Gisele Farnswort h Researc h Research Coordinators Emmanuel Feuerwerker (Associate Director) Kerry Johnston Claude Majo r Peter Ros s Statisticia n E . Richard Shillington Research Associate s Jack Hal l Michele L . Veilleux Maureen Woodro w Research Assistant s Sharon Angel Richard Herold Anne Hooper Joyce Martin Anthony Peluso Publication Production Manager John McHal e Assistant Ghyslaine Ouellet 407 408 Administrative Office r Senior Editors (English ) (French ) Editors (English ) (French ) Proofreading (English ) (French ) Gisele Farnswort h Ruth Crow (April-October 1986) Ann C . McCoomb (October-November 1986 ) Verena Ossent (May-September 1986) Georges Royer (September-November 1986 ) Valerie de Montigny (and writer ) Therese Aquin Michele Baril Michele Bourbeau Danielle Chapu t Ian Mackenzie Cecily Haydon Robert Haydon Ruth Goldstee n Gilles Grondin Henri Le Galleu Michelle Martin Paul Morissett e Finance and Administratio n Financ e Barbara Springer Marian Jame s Administration and Secretaria l Jose Beaumier Paul Bonin Yvonne Boyte l Therese Choquette-Aubin Franqoise Guilbaul t Iris Henderson Louise Kwan Danyelle Labonte Brenda Paquette-Gagne Gisele Poisso n June Samso n Consultants Arthur Andersen & Co . ASI Consulting Group BC Research Chromascan Robert Baldwin Gerald Beaudoin Diane Bellemare Ray Brillinger Desmond John Byrne Canada East-West Ltd . Ted Carmichae l Cohen, Couture & Associates Thomas Courchene Jean-Michel Cousineau 40 9 Dalcor Innoventures Ltd . J . Davidson-Palmer & Associates Guy Dauncey jean Davi d Decima Research Ltd . Daniel Deni s Paul Dickinson Pierre Dufour Eiko Emori Bernard Forti n Gardner Pinfold Consulting Economists Ltd . Ginsberg, Gingras & Associes Gowling & Henderso n Grady Economics & Associates Christopher Gree n Herb Grubel Morley Gunderson John Halliwel l R .D . Hood Economics Inc . Informetrica Ltd . Institut de Sciences Mathematiques et Economiques Appliquees (ISMEA ) A .W . Johnson Gil Johnson Patricia Johnston-Lavigueur Stephen F . Kalisk i Karyo Communications Inc . Daniel Latouche Fred Laza r William M . Mercer Limited The National Tax Centre Walter Nicholson O'Malley Communications Lars Osber g Leslie Pal TimothyJ . Parker Robert Priebe Samuel Re a W . Craig Riddell David Ross Abraham Rotstei n Saga Communication Ltd . Saint-Louis & Associes Irving R. Silver Associates Anne-Marie Sylvestre Monica Townson & Associates Richard Van Loo n Martin Weitzman David Williamson & Co . Tony Wohlfart h We wish to acknowledge the assistance of the staff of Employment and Immigration Canada and in particular Marcelle Filiatrault and Pierre-Andre Laporte, Roger Laporte, the Regional Directors General, Len Jodoin and Gale Brady . Secretary of State : Helene Brisson, Richard Houde, Gerald jalbert and their translators . Statistics Canada : Michael Wolfson, Goeff Rowe and the Social and Economic Statistics Division, Kirk Hamilton . Supply and Services : Terry Denovan, Keith Sutherland, Gilles Quirouette . Part V Supplementary Statements Content s 413 Supplementary Statements Supplementary Statement by Commissioners M .O. Morgan an d C .E . Forget 41 7 Supplementary Statement by Commissioner Roy F . Bennett 42 1 Supplementary Statement by Commissioner Guylaine Saucier 42 5 Supplementary Statement by Commissioners F. J. Soboda an d J. J. Munro Executive 427 Summary 427 Disastrous Consequences 427 Misleading and Deceptive 427 A Report Based on Myths 427 Submissions Ignored 428 A Progressive Minority Report 428 Proposals for Improving ui 429 Choosing Between Them 42 9 Chapter 1 Introduction 431 A Flawed Process and a Flawed Conclusion 431 The Report and the Hearings 431 The Commission of Inquiry on Unemployment Insurance in Context 433 The Philosophy Behind the Forget Report 43 4 Chapter 2 The Forget Proposal - A Critique 435 The Forget Proposal : Benefit Annualization 43 5 The Number Tells the Story 435 How Annualization Would Work 43 5 The Rationale for Annualization 436 Assumptions about Behaviour 437 Equity- A Narrow Definition 438 The Attack on Regionally Extended Benefits 4 39 ui Myths and the Forget Report 44 4 Implications of Annualization 455 Devastating Benefit Cuts 455 Women Particularly Hard Hit 455 Regional Impact of Annualization 457 Annualization and the Present System : A Summary 458 Provincial Welfare Costs Up 459 Working Poor Pushed Further into Poverty 459 414 The Impossible Achieved : A Program as Complex as Today's ui 460 Work Incentives 460 Part-Time Work : A Half Measure 46 1 The Treatment of Older Workers, Severance Pay, Pensions and th e Cumulative Employment Account 461 An Inadequate Report 46 3 Chapter 3 An Alternative Proposal -Meeting the Needs of People 465 If It Ain't Broke, Don't Fix It 465 ui Program Fundamentally Sound 466 ui Basics 46 7 Chapter 4 Our Proposals for Reform 469 Our Objectives 469 The Core ui Program 470 A Uniform 10-Week Entrance 470 A Simplified Benefit Period 470 Waiting Period 471 A New Formula for the Insurable Maximum 472 A 66 z/3% Benefit Rate 472 Pensions, Severance and Vacation Pay 472 Retirement and ui 474 Parental Benefits 475 Part-Time Workers 476 ui and Labour Disputes 477 Work While on Claim and Labour Force Separation 47 8 Earnings While on Claim 478 Short-Term Work While on Claim 479 Periods Outside the Labour Force 480 Farm Workers 480 Self-Employment 481 Fishermen's Benefits 48 1 Chapter 5 Financing 485 Government's Role in Unemployment Insurance Financing 486 Premium Allocation Between Employees and Employers 486 Premium Rate Setting 486 Financing of the Alternative 48 7 Revenue 487 Costing of Our Proposals 48 7 Chapter 6 Administration -A New Approach 489 Administration Issues 489 The Roots of the Problem 490 Program Complexity 491 Treatment of Claimants 49 1 Onus of Proof 492 Accessibility of ui Services 492 Coordination ofui and Employment Services 493 41 5 Other Administrative Issues 493 Late Applications 493 Just Cause 493 Procedural Disqualifications 494 Centralization/Decentralization of Services 494 The Appeals System 494 Governance of ui 49 5 Chapter 7 Helping People Adjust to Rapid Change 497 Complementary Labour Adjustment Programs 497 Training and Job Creation 497 Older Workers 500 Full Employment 500 Human Face of Unemployment 50 1 Chapter 8 Conclusion and Recommendations 50 3 Appendix A The Forget Report's Perspective on Unemployment 50 5 Appendix B A Description of the 1986 ui Program 507 Coverage and Eligibility 507 Benefit Rate 508 Duration of Benefits 509 Financing 510 Appeals 510 Organization and Administration 51 0 Recommendations 511
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