Ensuring Older Canadians Have Access to
Setting the Context
An inclusive transportation system supports equitable access to all users, including older adults. Current demographic shifts present imminent and serious implications for transportation infrastructure planning considerations across the country, especially in rural and remote communities. Older adults have a range of travel preferences, abilities, and obstacles they may foresee over the course of a journey. Not only do they use multiple modes of transportation (e.g. air, rail, and road transportation), they also use transportation for a variety of activities, including day-to-day trips (e.g. grocery shopping) and longer trips (e.g. vacations). Ensuring that older adults have access to an inclusive transportation system will enable more to better engage in different types of travel that can cater to their unique needs and preferences, which can also improve their overall wellbeing.
Travelling in automobiles remains the primary method of transportation for most older Canadians regardless of age, sex, geographic location, health or functional status.[1] This is especially true in small and rural communities where public transit is limited or non-existent. Across Canada, 93% of those aged 65 to 74, 85% of those aged 75 to 84, and 68% of those aged 85 and over have a driver’s licence.[2] Therefore, being able to drive remains an important way of staying active, independent, and socially connected with others. When older adults in Canada give up driving, it is most commonly due to a physical condition or deteriorating vision (37%), followed by no longer needing or enjoying driving (20%), and feeling it is no longer safe to do so (15%).[3] As they age, older adults do not transition to using public transit more often as their main form of transportation – with only 5% using it as their primary mode of transportation.[4] Rather, travelling as a passenger in a private vehicle becomes their main form of transportation either out of preference and/or necessity. This was found to be the case for around half of adults aged 85 and over (with or without a licence).[5],[6]
When older adults decide to or are forced to stop driving, it is imperative to ensure that various alternative and accessible transportation options are available. Therefore, programs that help older adults maintain their independence and mobility and allow them to travel wherever they want to go in the community safely, and in an accessible and affordable way, are extremely important. Without these, the burden of having to provide transportation supports is likely to fall on family members, friends or other unpaid caregivers – which is an unsustainable solution. A 2008 Statistics Canada report noted that 80% of the unpaid caregivers surveyed reported assisting the older person they provided support to with their transportation needs.[7]
In 2012, Statistics Canada published a detailed report on the transportation habits of older Canadians which identified five key findings[8]:
- The vast majority of older Canadians hold drivers’ licences up to and beyond 85 years of age. At least 3.25 million Canadians over 65 years of age, or three quarters of all older Canadians in 2009, had a driver’s licence. This number will dramatically increase over the coming decades. While older adults are in general safe drivers and are involved in fewer collisions than young drivers, as they age, they are more likely to experience cognitive or physical changes that could significantly affect how well they drive;
- On average, older Canadians reside in communities where cars remain the primary mode of transportation;
- The vast majority of older Canadians do not take public transit and express a preference for driving – 84% of men aged 64 to 75 use their own vehicle as their primary form of transportation;
- Accessible transit and taxis are considered a “last resort” for getting around up to age 85. For adults aged 64 to 75, only 1.2% used them as the main form of transportation. Even for adults age 85 or older, only 9% of women and 4% of men indicate it as their primary mode of transportation; and
- Over a quarter of individuals diagnosed with Alzheimer’s disease or some form of dementia hold a driver’s licence, and nearly three quarters of them reported driving a vehicle in the month prior.
Not only does access to transportation enable older adults to meet their essential needs (e.g. grocery shopping, attending health appointments), it also improves health and quality of life through discretionary travel for pleasure and visits to family and friends. Indeed, more accessible transportation infrastructure has been demonstrated to bring greater economic benefit by enabling tourism from older travellers, who tend to make more overnight trips and spend more money compared to younger travellers.[9] A lack of accessible transportation options negatively impacts social participation rates, which in turn negatively impacts one’s overall health outcomes (see Social Isolation Evidence Brief #1 for more information).[10] Therefore, understanding the importance of having access to transportation should also be viewed within the larger context of ensuring the health and well-being of older Canadians and the promotion and development of successful ‘ageing-in-place’ and ‘age-friendly communities’ policies.
Overall, adequately supporting the transportation needs of older adults will require accounting for reasons for travel, available travel modes, and preferences. Policy challenges identified and recommendations made should focus both on those who drive and those who use alternative and accessible transportation options. Supporting the creation of an inclusive transportation system will support more equitable access to all users and encourage a more age-friendly society.
What Are the Issues?
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Older Adults Face a Diversity of Transportation Obstacles
Due to the heterogeneity of abilities and preferences amongst older adults, the obstacles they may face can occur at any stage of a journey. These can include challenges in “planning a trip, travelling from home to a terminal or station, getting to transport vehicles, boarding and mobility on board, and post-trip travelling”.[11] These difficulties can arise from a range of sources such as physical abilities and preferences related to technology, to ageism and stress.
While almost 80% of adults aged 65 years and over in private households in Canada rate their health positively, ageing is associated with sensory (e.g. hearing and vision), cognitive, and physical changes (e.g. reduced dexterity, balance, and range of motion).[12] The Canadian Longitudinal Study on Aging (CLSA) found that the most common tasks that challenge older adults include standing up after sitting in a chair and standing for 15 minutes or more.[13] In addition, environmental factors such as weather, travel distances, and socioeconomic factors create obstacles that are more pronounced for older travellers.[14] Due to their increased rates of frailty, older drivers involved in a multi-vehicle collision usually suffer more severe injuries and fatality rates than their younger counterparts.[15] The heterogeneity of obstacles encountered must be taken into account in future planning of transportation infrastructure.
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Women and Those Living in Rural and Remote Communities are Particularly Challenged in Accessing Transportation
Certain groups of older Canadians are disproportionately affected when they are no longer able to drive. Older women are the most likely to have their daily activities limited by transportation challenges because they are less likely to have or maintain a driver’s licence and less likely to access public transportation as they age.[16] Indeed, amongst those aged 85 and over and living in private households, only 26% of older women, compared to 67% of older men in this cohort were found to have driver’s licences.[17] The inability to get around on one’s own makes it difficult to age at home and become socially connected. Statistics Canada reported that 14% of women aged 65 and over and 54% of women aged 90 and over reported needing assistance with transportation.[18] For women aged 85 and older, transportation problems were second only to health problems as the reason for not participating in more social, recreational or group activities.[19]
Similarly, older Canadians living in rural and remote communities have difficulties in accessing inclusive transportation alternatives. Current municipal strategies that aim to provide transportation subsidies or services for older adults are largely focused in metropolitan areas where economies of scale support the provision of subsidies and services, putting those older persons living in rural areas at further risk of social isolation. However, evidence also shows that even in areas where public transportation services are available, fewer than 1 in 10 of older Canadians use public transit.[20] The reliance on personal vehicles and inter-city buses remains high in rural communities. While a growing number of community agencies are developing subsidized community transportation programs that offer older adults rides in private cars and vans, these may be only available in communities large enough to host them, and for specific transportation needs (e.g. transportation to medical appointments). Overall, 49% of those living in rural and remote communities reported that they did not use accessible forms of transit because it was unavailable where they lived.[21]
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There Is Inadequate Federal Enforcement of Accessibility Measures and Accountability
A traveller may use infrastructure regulated and governed by any of the three orders of government: federal, provincial/territorial, and municipal. Those in the federal transportation system (i.e. air, rail, inter-city bus, and inter-provincial ferries) are governed by the Canada Transportation Act, which lays out an individual’s right to accessible transportation in Canada and empowers the Canadian Transportation Agency (CTA) to make regulations and review complaints to eliminate unnecessary barriers.[22]
The CTA has developed six codes of practice related to accessibility and can monitor compliance with the codes; however, it has no power to enforce them.[23] This issue was identified by the CTA in its 2015 formal review of the Canadian transportation system and the legal and regulatory frameworks that govern it.[24] According to the Canadian Council on Disabilities, the absence of legal enforcement abilities contributes to systemic obstacles that remain in place in the federal transportation system.[25] In addition, the term ‘disability’ is not currently defined in the Canada Transportation Act, which hinders the development of a more inclusive transportation system. [26]
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There Is a Lack of Data on Transportation Needs in Remote or Northern Communities
Significant knowledge gaps continue to limit the understanding of the evolving transportation needs of older adults in Canada. While there is data on both accessibility and obstacles related to individuals with disabilities, there is no tracking of complaints or issues frequently encountered by older travellers using the federal Canadian transportation system.[27] In particular, there is a lack of research into transportation needs and challenges of older adults in rural or remote communities including those who are Indigenous.[28] This is because research into essential and day-to-day travel habits of older adults focuses primarily on those in urban settings. However, about one-fifth of older adults live in regions outside census metropolitan areas[29], where public transit is limited or unavailable. This represents a significant gap in information.
Evidence-Informed Policy Options
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Maintain and Prioritize Federal Commitments to the Development of Inclusive Transportation Infrastructure
Meeting the evolving transportation needs of older Canadians will not be solved simply through the provision of more public transportation services, especially when less than 10% of older Canadians currently choose to use it.[30] Therefore, supporting the provision of research and funding that can enable the development of more popular, accessible, and dignified transportation strategies for both urban and rural older adults will be integral to supporting older adults to maintain their independence in their communities.
Due to the diverse needs of older adults and personalized obstacles that can be faced at an individual level, an Expert Panel on the Transportation Needs of an Aging Population convened by the Council of Canadian Academies (CCA) suggests that solutions to address these issues may need to be broad in scope, such as the adoption of principles of ‘inclusive’ or ‘universal’ design to focus on the accessibility of infrastructure.[31] In addition, a ‘door-through-door’ approach must be taken, which involves examining obstacles from the door of one’s home to the door of their destination. This is because obstacles may arise at any point in the journey and may encompass multiple segments using different transportation modes.[32] To support the development of an age-friendly transportation system, the CCA Expert Panel recommended that the federal government tie infrastructure and other investments to projects that support inclusive, multi-modal transportation.[33] Overall, an inclusive transportation system requires a holistic approach to adaptation – one that can evolve with the shifting needs and preferences of older adults.
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Address the Governance of Accessibility in the Federal Transportation System to Increase Accountability
The federal government can play a central role in creating an inclusive transportation system through better governance. The 2015 CTA Review noted that there is a systemic lack of accountability under the current structure of the federal government’s transportation accessibility governance system.[34] Its accessibility section allows it to make recommendations related to strengthening regulations. It further advocates for the inclusion of a formal definition of ‘disability’ in the Canada Transportation Act.[35] While not all older adults have accessibility issues, defining “disability” can bring clarity to relevant transportation legislation and policy and facilitate the development of regulations and codes of practices related to improving accessibility.[36]
In addition, stronger legal mechanisms must be present to address non-compliance issues with accessibility codes of practice. The 2015 CTA Review recommends the voluntary Codes of Practice be converted to regulations which will be legally binding on transportation service providers.[37] Giving the CTA the legislative authority on accessible transportation matters and an ability to initiate investigations and broaden complaints made by users can support a more inclusive transportation system for older adults across Canada.[38]
Since the 2015 CTA Review, the federal government has introduced the Accessible Canada Act in 2019, which mandates all infrastructure in the federal transportation system to develop an accessibility plan within one year. It also assigned an Accessibility Commissioner under the Canadian Human Rights Act as an enforcement and accountability mechanism. While commendable progress has been made, implementation of these plans and their compliance to the CTA Codes of Practice remains to be monitored.
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Implement Formal Monitoring of Transportation Accessibility Measures with an Emphasis on Rural and Remote Communities
The 2015 CTA Review recommends that the CTA report on transportation accessibility measures every three years to ensure transparency of compliance rates, complaints received, and encourage best practices.[39] In particular, complaints or issues frequently encountered by older travellers using Canadian government regulated transportation should be specifically tracked to identify areas for development and improvement. Since finding and developing solutions for older adults living in rural and remote communities are more challenging, having accurate and up-to-date data will be imperative to identify targeted solutions to meet their unique transportation needs as well.
References
[1] Raina, P., Wolfson, C., Kirkland, S. and Griffith, L. (2018). The Canadian Longitudinal Study on Aging (CLSA) Report on Health and Aging in Canada: Findings from Baseline Data Collection 2010-2015. Canadian Longitudinal Study on Aging. Available at: https://www.clsa-elcv.ca/doc/2639
[2] The Council of Canadian Academies (CCA) (2017). Older Canadians On the Move. Ottawa. Available at: https://cca-reports.ca/reports/older-canadians-on-the-move/
[3] The Council of Canadian Academies (CCA) (2017). Older Canadians On the Move. Ottawa. Available at: https://cca-reports.ca/reports/older-canadians-on-the-move/
[4] Raina, P., Wolfson, C., Kirkland, S. and Griffith, L. (2019). The Canadian Longitudinal Study on Aging (CLSA) Report on Health and Aging in Canada: Findings from Baseline Data Collection 2010-2015. Canadian Longitudinal Study on Aging. Available at: https://www.clsa-elcv.ca/doc/2639
[5] Turcotte, M. (2012). Profile of seniors’ transportation habits. Statistics Canada – Canadian Social Trends. Catalogue no. 11-008. Available at: http://starcanada.ca/wp-content/uploads/2012/07/Profile-of-Seniors-Trans-Habits-Turcotte.pdf
[6] Studies in which seniors were asked their opinions on various transportation options also raised this issue. For example, see Glasgow, Nina and Robin M. Blakely. 2000. “Older nonmetropolitan residents’ evaluations of their transportation arrangements,” The Journal of Applied Gerontology. Vol. 19, no. 1. (from stats can)
[7] Cranswick, K. & Dosman, D. (2008). Eldercare: What we know today. Statistics Canada. Available at: http://www.statcan.gc.ca/pub/11-008-x/2008002/article/10689-eng.htm
[8] Turcotte, M. (2012). Profile of seniors’ transportation habits. Statistics Canada – Canadian Social Trends. Catalogue no. 11-008. Available at: http://starcanada.ca/wp-content/uploads/2012/07/Profile-of-Seniors-Trans-Habits-Turcotte.pdf
[9] The Council of Canadian Academies (CCA) (2017). Older Canadians On the Move. Ottawa. Available at: https://cca-reports.ca/reports/older-canadians-on-the-move/
[10] Turcotte, M. (2012). Profile of seniors’ transportation habits. Statistics Canada – Canadian Social Trends. Catalogue no. 11-008. Available at: http://starcanada.ca/wp-content/uploads/2012/07/Profile-of-Seniors-Trans-Habits-Turcotte.pdf
[11] The Council of Canadian Academies (CCA) (2017). Older Canadians On the Move. Ottawa. Available at: https://cca-reports.ca/reports/older-canadians-on-the-move/
[12] The Council of Canadian Academies (CCA) (2017). Older Canadians On the Move. Ottawa. Available at: https://cca-reports.ca/reports/older-canadians-on-the-move/
[13] Raina, P., Wolfson, C., Kirkland, S. and Griffith, L. (2019). The Canadian Longitudinal Study on Aging (CLSA) Report on Health and Aging in Canada: Findings from Baseline Data Collection 2010-2015. [online] Canadian Longitudinal Study on Aging. Available at: https://www.clsa-elcv.ca/doc/2639
[14] The Council of Canadian Academies (CCA) (2017). Older Canadians On the Move. [online] Ottawa. Available at: https://cca-reports.ca/reports/older-canadians-on-the-move/
[15] Dobbs, B. M. (2008). Aging baby boomers—A blessing or challenge for driver licensing authorities. Traffic Injury Prevention, 9(4), 379-386.
[16] Turcotte, M. (2012). Profile of seniors’ transportation habits. Statistics Canada – Canadian Social Trends. Catalogue no. 11-008. Available at: http://starcanada.ca/wp-content/uploads/2012/07/Profile-of-Seniors-Trans-Habits-Turcotte.pdf
[17] Turcotte, M. (2012). Profile of seniors’ transportation habits. Statistics Canada – Canadian Social Trends. Catalogue no. 11-008. Available at: http://starcanada.ca/wp-content/uploads/2012/07/Profile-of-Seniors-Trans-Habits-Turcotte.pdf
[18] Turcotte, M. (2012). Profile of seniors’ transportation habits. Statistics Canada – Canadian Social Trends. Catalogue no. 11-008. Available at: http://starcanada.ca/wp-content/uploads/2012/07/Profile-of-Seniors-Trans-Habits-Turcotte.pdf
[19] Turcotte, M. (2012). Profile of seniors’ transportation habits. Statistics Canada – Canadian Social Trends. Catalogue no. 11-008. Available at: http://starcanada.ca/wp-content/uploads/2012/07/Profile-of-Seniors-Trans-Habits-Turcotte.pdf
[20] Turcotte, M. (2012). Profile of seniors’ transportation habits. Statistics Canada – Canadian Social Trends. Catalogue no. 11-008. Available at: http://starcanada.ca/wp-content/uploads/2012/07/Profile-of-Seniors-Trans-Habits-Turcotte.pdf
[21] Turcotte, M. (2012). Profile of seniors’ transportation habits. Statistics Canada – Canadian Social Trends. Catalogue no. 11-008. Available at: http://starcanada.ca/wp-content/uploads/2012/07/Profile-of-Seniors-Trans-Habits-Turcotte.pdf
[22] Government of Canada. (2015). Canada Transportation Act. Ottawa (ON): Government of Canada.
[23] The Council of Canadian Academies (CCA) (2017). Older Canadians On the Move. [online] Ottawa. Available at: https://cca-reports.ca/reports/older-canadians-on-the-move/
[24] Emerson, D. (2015). Pathways: Connecting Canada’s Transportation System to the World. Canada Transportation Act Review. Available at: https://www.tc.gc.ca/eng/ctareview2014/canada-transportation-act-review.html
[25] CCD (Council of Canadians with Disabilities). (2014). Building an Inclusive and Accessible Canadian Transportation System. CCD Submission to Canada Transportation Act Review. Winnipeg (MB): CCD.
[26] Government of Canada. (2015). Canada Transportation Act. Ottawa (ON): Government of Canada.
[27] The Council of Canadian Academies (CCA) (2017). Older Canadians On the Move. Ottawa. Available at: https://cca-reports.ca/reports/older-canadians-on-the-move/
[28] The Council of Canadian Academies (CCA) (2017). Older Canadians On the Move. Ottawa. Available at: https://cca-reports.ca/reports/older-canadians-on-the-move/
[29] Turcotte, M. (2012). Profile of seniors’ transportation habits. Statistics Canada – Canadian Social Trends. Catalogue no. 11-008. Available at: http://starcanada.ca/wp-content/uploads/2012/07/Profile-of-Seniors-Trans-Habits-Turcotte.pdf
[30] Raina, P., Wolfson, C., Kirkland, S. and Griffith, L. (2019). The Canadian Longitudinal Study on Aging (CLSA) Report on Health and Aging in Canada: Findings from Baseline Data Collection 2010-2015. Canadian Longitudinal Study on Aging. Available at: https://www.clsa-elcv.ca/doc/2639
[31] The Council of Canadian Academies (CCA) (2017). Older Canadians On the Move. Ottawa. Available at: https://cca-reports.ca/reports/older-canadians-on-the-move/
[32] The Council of Canadian Academies (CCA) (2017). Older Canadians On the Move. Ottawa. Available at: https://cca-reports.ca/reports/older-canadians-on-the-move/
[33] The Council of Canadian Academies (CCA) (2017). Older Canadians On the Move. Ottawa. Available at: https://cca-reports.ca/reports/older-canadians-on-the-move/
[34] Emerson, D. (2015). Pathways: Connecting Canada’s Transportation System to the World. Canada Transportation Act Review. Available at: https://www.tc.gc.ca/eng/ctareview2014/canada-transportation-act-review.html
[35] Emerson, D. (2015). Pathways: Connecting Canada’s Transportation System to the World. Canada Transportation Act Review. Available at: https://www.tc.gc.ca/eng/ctareview2014/canada-transportation-act-review.html
[36] Emerson, D. (2015). Pathways: Connecting Canada’s Transportation System to the World. Canada Transportation Act Review. Available at: https://www.tc.gc.ca/eng/ctareview2014/canada-transportation-act-review.html
[37] Emerson, D. (2015). Pathways: Connecting Canada’s Transportation System to the World. Canada Transportation Act Review. Available at: https://www.tc.gc.ca/eng/ctareview2014/canada-transportation-act-review.html
[38] Emerson, D. (2015). Pathways: Connecting Canada’s Transportation System to the World. Canada Transportation Act Review. Available at: https://www.tc.gc.ca/eng/ctareview2014/canada-transportation-act-review.html
[39] Emerson, D. (2015). Pathways: Connecting Canada’s Transportation System to the World. Canada Transportation Act Review. Available at: https://www.tc.gc.ca/eng/ctareview2014/canada-transportation-act-review.html