Ireland country report 2019 - Caritas CARES! C - Caritas Europa
←
→
Page content transcription
If your browser does not render page correctly, please read the page content below
Caritas CARES! country report 2019 Ireland Access to services by vulnerable groups: barriers, obstacles and good practices CARES C SERIES
Authors: Chiara Crepaldi and Francesca Pepé, Istituto per la Ricerca Sociale
Contributions to this report by: Michelle Murphy, Social Justice Ireland
Coordination: Peter Verhaeghe and Shannon Pfohman, Caritas Europa
Published by Caritas Europa, September 2019.
This study has received financial support from the European Union Programme for Employment and Social Innovation “EaSI”
(2014-2020).
For further information please consult: http://ec.europa.eu/social/easi
The information contained in this publication does not necessarily reflect the official position of the European Commission.
Caritas Europa reserves the right to not be held responsible for the accuracy and completeness of the information
provided in this publication. Liability claims regarding damage caused by the use of any information provided, including any
information which is incomplete or incorrect, will therefore be rejected.Contents
What this report is about 4
About Caritas in Ireland 5
Recent publications 5
Contacts 5
Executive summary 6
1. The evolution of the socio-economic context 8
2. Characteristics of the welfare system 9
3. Access to key social rights and to services by people experiencing poverty or social exclusion 9
4. An assessment of the availability, accessibility, affordability and adequacy of key services 11
a. Vulnerable target groups do not have access to full support provided by public 12
employment services
b. Social housing solutions are increasingly unavailable 13
c. The early childhood education and care sector in Ireland is fragmented and 14
underdeveloped
d. Formal home care funded by the State in Ireland is considered low by comparison with 14
other countries
e. Ireland is the only EU health system that does not offer universal coverage of primary care 15
5. Use of the minimum income as a measure of inclusion and activation in Ireland 16
6. Progress made towards achieving EU and national social targets 17
7. The use of EU Funds 2014-2020 20
8. Social Justice Ireland promising practices 21
Conclusions 22
Recommendations 23
Caritas CARES! country report 3Caritas CARES! Ireland What this report is about Caritas Organisations are essential actors in the fight against poverty and social exclusion, and for social justice. They do so by assisting and providing services to people in need, as well as by presenting alternatives to address unfair structures, policies and measures. The Caritas CARES country reports are an important instrument in this endeavour. Caritas informs local, regional, national and European authorities and formulates recommendations, based on its daily work with people experiencing poverty. The country reports have been compiled on the basis of a questionnaire, designed in consultation with the participating member organisations. It will ensure that the voice of the weakest members of our societies is heard and it will support the advocacy efforts of Caritas at national and at European level. This report is focused on the analysis of availability, accessibility, affordability and adequacy of services addressing poverty, and the promotion of social inclusion and activation in European countries, and it attempts to identify concrete causes of non-access to services by the most vulnerable members of our society. 4
About Caritas in Ireland Social Justice Ireland (SJI) is an independent social justice think tank. The organisation works to build a just society by tackling the causes of inequality, providing independent evidence and offering credible solutions. It works to improve the quality of public policy by providing independent social analysis, influencing the public debate to ensure it focuses on the needs of people with experience of poverty as well as vulnerable groups. Its work focuses on national and international issues related to poverty, inequality, social exclusion, sustainability and the environment. It represents the interest of vulnerable groups in its dialogue with Government, the National Parliament and policy makers. To this end it prepares regular policy briefings on specific issues, an annual Socio Economic Review, a quarterly National Social Monitor, two Budget briefings, an annual Social Policy Book and also engages in bilateral meetings with the following Government Departments: the Department of Employment Affairs and Social Protection, Department of Health, Department of Housing, Department of Education and Skills, Department of Public Expenditure and Reform, Department of Finance and the Department of Jobs, Enterprise and Innovation. Social Justice Ireland publishes ‘Poverty Focus’ annually and it’s used to monitoring poverty and social exclusion. This policy briefing aims to provide an update on the latest data and trends on poverty in Ireland, updated values of the annual poverty line and to examine the nature and experience of poverty in Ireland. Each year Poverty Focus highlights one area of concern while also commenting on the general policy landscape. We also set out a series of solutions that could be adopted by Government. ‘Social Justice Matters’, our annual socio-economic review, outlines all of the key social justice issues in Ireland today as well as spelling out potential policy solutions. Poverty, income distribution and the impact of living in poverty are some of the key areas of Social Justice Matters. Social Justice Ireland’s beneficiaries are the members of the organisation (325 individual members and 86 affiliated member organisations) and the 760,000 people in Ireland who are living in poverty who we advocate on behalf of. Recent publications Recent publications by Social Justice Ireland can be downloaded at the following links: • Social Justice Matters 2019: https://www.socialjustice.ie/sites/default/files/attach/publication/5656/ socialjusticematters2019.pdf • Poverty Focus 2019: https://www.socialjustice.ie/sites/default/files/attach/publication/5763/2019-04-15- sjipovertyfocus2019final.pdf?cs=true • Ireland and the Europe 2020 Strategy 2019 Review: https://www.socialjustice.ie/sites/default/files/attach/ publication/5760/2019-03-26-irelandandtheeurope2020strategyfinal.pdf?cs=true Contact Contact person: Michelle Murphy Email: michelle.murphy@socialjustice.ie / Telephone: +353 1 213 0724 Twitter: @SocialJusticeI / Facebook: fb.me/SocialJusticeI Caritas CARES! country report 5
Caritas CARES! Ireland
Executive summary
Even though Ireland is a country much younger in Concerning the access to services:
comparison to the other EU member states, as is
the case in other Member States the population • People who are long-term unemployed are
in Ireland is rapidly ageing and it also changing generally diverted to the Job Path programme,
due to migration flows, even if the phenomenon is which may not be entirely suitable to meet their
far less prevalent here than in most of the other EU needs. Workers with a disability are diverted to
Member States. This socio-demographic evolution specific programmes designed for people with
implies new emerging needs in the near future and disabilities and they are excluded from accessing
that society and care services should be prepared some of the services associated with the main
to tackle them. unemployment service.
Unemployment and youth unemployment are • Ireland is in the midst of a housing crisis but the
progressively reducing, but inactive people, low work Government has not invested sufficiently in the
intensity households, people with disabilities, and housing capital budget (which was decimated
low-skilled individuals remain particularly vulnerable during the economic crisis), and policies have
groups that are still facing challenges in entering concentrated on short-term ‘housing solutions’
the labour market. provided through the private rented sector, rather
than investing in long-term capital spending on
Child poverty remains a particular concern, social housing.
with one in every ten children living in persistent
poverty; another relevant issue is related to the • The most striking feature of investment in
rising number of homeless people. In a country education in Ireland, relative to other OECD
characterised by a steady economic growth, countries, is its under-investment in early
these emerging social problems deserve specific childhood education. Due to sustained under-
attention in order to avoid enlarging the disparities investment the ECEC sector in Ireland is
between rich and poor and between those fragmented and underdeveloped.
included and those excluded from socio-economic
development. • One clear implication of the ageing population
is the additional demand for healthcare services
Due to the recession and its associated austerity and facilities. Formal home care, funded by the
measures Ireland is a very long way from its Europe State in Ireland, is considered low by comparison
2020 poverty target. with other countries.
Social Justice Ireland witnesses different groups • Ireland is the only EU health system that does not
of vulnerable people face considerable barriers offer universal coverage of primary care. There
and obstacles in accessing services, with some are barriers in accessing primary care, delays in
specifics according to the service described. The Emergency Department admissions, and long
most affected vulnerable groups are, in general, the waiting times for access to hospital care in the
long term unemployed, persons with physical and public system.
intellectual disabilities, asylum seekers and refugees,
and persons living in rural areas.
6
Caritas CARES! country report 6Recommendations At European level Recommendation 1: Make the European Pillar of Social Rights enforceable through legislative initiatives and turn it into a strategic tool to influence EU macroeconomic governance. Recommendation 2: Ensure coherence of European economic and social Policy and the European Semester by integrating the social objectives of the Europe 2020 Strategy and the European Pillar of Social Rights into the economic processes of the European Semester. At national level Recommendation 3: Fight poverty and social exclusion of people reliant on social welfare payments by implementing indexation of minimum social welfare payments. Recommendation 4: Invest in the construction of social housing and in an affordable rental and cost rental model in order to address the crisis in the cost of accommodation. Government must also take immediate steps to address homelessness and invest resources into providing long-term homes for families experiencing homelessness. Recommendation 5: Caritas recommends that Ireland accepts Article 31 of the Revised European Social Charter. Recommendation 6: Carry out in-depth social impact assessments prior to introducing budgets or implementing policies, in order to ensure that the position of people experiencing poverty and social exclusion is not worsened. Recommendation 7: Promote changes and reforms, in particular by improved targeting in the area of poverty reduction (sub-targets for specific groups), further targets related to unemployment and by ensuring meaningful input by Civil Society and Potentially Marginalised people into the framing of National Reform programmes and Social Reports. Caritas CARES! country report 7
Caritas CARES! Ireland
1. The evolution of the socio-economic context
Between 2009 and 2018 the population in Ireland and low-skilled individuals remain particularly
grew by 6.8% with an increase of 309,070 people. vulnerable groups that are still facing challenges in
In particular, the number children increased by 8% entering the labour market.
while the elderly (>65) increased by 35.1% (+173,835)
and the over 85s by 37.1%. Even if still a country much Concerning poverty, Ireland, in 2017, had a
younger in comparison to the other EU Member population at risk of poverty or social exclusion
States, as everywhere, the Irish population is rapidly rate (AROPE) of 22.7%, just above the EU average of
ageing. 22.4%.4 Child poverty remains a particular concern
with one in every ten children living in persistent
Population is also changing for reasons of poverty (in 2017, 25.2% of children in Ireland were at
migration flows, even though the phenomenon is risk of poverty or social exclusion).5 Another relevant
far less relevant in Ireland than in most of the other development relates to the rising number of
EU Member States. Whereas, at EU level, on average homeless people; a consequence of rent increases
in 2018, the presence of third country nationals and of insufficient social housing. In July 2018 the
was equal to 4.4% of the population, in Ireland they number of homeless adults was 6,024 and that
represent no more than 3.0%. It is equally true that, in of homeless children was 3,867, and what has to
the last decade in Ireland, the presence of migrants be noted in particular is that these figures have
has progressively increased, as the number of registered an annual increase of 16% and 25%
people seeking asylum in Ireland shows. While in respectively.6
2013 there were 945 applicants (the lowest level in
the decade), in 2018 this increased to 3,670,1 even if In a country characterised by a steady economic
numbers are still quite low in comparison to other EU growth, these emerging social problems deserve
countries. specific attention in order to prevent enlarging the
disparities between rich and poor and between
Unemployment is progressively reducing from those included and those excluded from socio-
the peak reached in 2012 of 15.5%, to the lowest rate economic development.
in the decade reached in 2018 of 5.8% (and to 5.4%
in the fourth quarter of 2018). The same trend is The expenditure for social protection benefits
seen for youth unemployment, that from a peak in Ireland has been increasing over the years,
of 30.8% in 2012 it decreased to 13.8% in 2018 (and and it exceeds the EU average: it increased from
to 12.5% in the fourth quarter of 2018).2 However, as €7,091 per inhabitant (at constant prices) in
emerges from the European Semester Country 2007 to €8,122 in 2016 (the latest available data),
report 2019,3 even though labour market conditions in comparison to €7,377 at EU level. In fact, the
are improving continuously, inactive people, low impact of social transfers (excluding pensions) on
work intensity households, people with disabilities, poverty reduction7 is one of the highest in the EU:
1
Eurostat, 2019, Asylum and first time asylum applicants - annual aggregated data (rounded).
2
Eurostat, 2019, Unemployment by sex and age - annual average.
3
European Semester Country report 2019 https://ec.europa.eu/info/sites/info/files/file_import/2019-european-semester-country-report-
ireland_en.pdf.
4
Eurostat, 2019, People at risk of poverty or social exclusion by age and sex.
5
European Semester Country report 2019.
6
European Semester Country report 2019.
7
Reduction in the percentage of the at-risk-of-poverty rate, due to social transfers (calculated comparing at-risk-of poverty rates before
social transfers with those after transfers; pensions are not considered as social transfers in these calculations). The indicator is based
on the EU-SILC (statistics on income, social inclusion and living conditions).
8social expenditure reduces poverty by 52.6% while according to Eurostat data, it was able to reduce
the EU average is 34.1%. The Irish tax and benefits poverty by 61.9%.8 It must be borne in mind that
system seems quite effective in reducing poverty in Ireland the policy focus has been on income
and inequalities, but a progressive reduction of support, and access to high quality public services
its effectiveness has been evidenced, as in 2010, has been lacking in many areas.
2. Characteristics of the welfare system
The social inclusion and social protection system include Child Benefit, State Pension, Jobseekers
in Ireland is administered mainly through financial Benefit, Carer’s Benefit, Disability Allowance, One-
benefits. The social welfare system in Ireland is Parent Family Payment, and Illness Benefit.
divided into three main types of payments. These
are: There is also a range of employment schemes
and other support which encourage long-term
• Social insurance payments; unemployed people to return to work. However,
you must be habitually resident to qualify for social
• Means-tested payments; assistance payments in Ireland.
• Universal payments. Full details are available here:
With all social welfare payments, you must satisfy https://www.citizensinformation.ie/en/social_
specific personal circumstances that are set out in welfare/irish_social_welfare_system/social_
the rules for each scheme. Examples of payments welfare_system_in_ireland.html.
3. Access to key social rights and to services by people
experiencing poverty or social exclusion
The main goal of this Caritas CARES report is to most recent initiative in this context is The European
analyse if and how living in poverty, or in a condition Pillar of Social Rights (EPSR). Another highly relevant
of social exclusion, hinders the access to social instrument is the (revised) European Social Charter
rights and to services. (ESC) of the Council of Europe. Both the Pillar and the
Charter state the right to access to some specific
Several EU initiatives have been promoted in recent social rights related to equal opportunities and
years to tackle inequality, poverty and social access to the labour market, fair working conditions,
exclusion, both in general terms and for specific access to social protection and inclusion.
targets groups. The European Parliament, the
European Council and the European Commission The European Pillar of Social Rights sets out 20
have taken several policy initiatives to strengthen key principles and rights to support fair and well-
the social dimension of the European Union, and the functioning labour markets and welfare systems.
8
Impact of social transfers (excluding pensions) on poverty reduction by sex.
Caritas CARES! country report 9Caritas CARES! Ireland
They are fully described here: LINK.9 Several of the homeless; and PRINCIPLE 20 - Access to essential
rights cited by the European Pillar of Social Rights services.
specifically relate to the conditions of people in
poverty and social exclusion. This is particularly the Another highly relevant instrument is the (revised)
case of PRINCIPLE 4 - Active support to employment; European Social Charter (ESC) of the Council of
PRINCIPLE 11 - Childcare and support to children; Europe. The most relevant articles of the European
PRINCIPLE 14 - Minimum income; PRINCIPLE 16 - Health Social Charter related to access to services are
care; PRINCIPLE 19 - Housing and assistance for the listed below (Box 1).
Box 1 - Ratification and implementation of the Revised
European Social Charter (1996) related to access to services
and minimum income
Ireland has ratified the majority of Articles of the 1996 Revised European Social Charter.
The following articles could have an impact on access to services and minimum income:
• The right to vocational guidance (Article 9)
• The right to vocational training (Article 10)
• The right to protection of health (Article 11)
• The right to social and medical assistance (Article 13)
• The right to benefit from social welfare services (Article 14)
• The right of the family to social, legal and economic protection (Article 16)
• The right of elderly persons to social protection (Article 23)
• The right to protection against poverty and social exclusion (Article 30)
• The right to housing (Article 31)
Ireland has accepted the Additional Protocol providing for a System of Collective Complaints.
More information on the provisions accepted by Ireland can be found in the Country Factsheet.
Social Justice Ireland has determined, through a not fully respond to the needs of the vulnerable part
survey, that the access to some rights remains of the population living in Ireland (rated 2 out of 5).
difficult. While active support to employment and
minimum income are considered accessible to all In the following section the difficulties in accessing a
(ranked as 4 out of 5), health care, long term care selected set of services available for those in need
and housing, and assistance for the homeless do are described in detail.
9
https://ec.europa.eu/commission/priorities/deeper-and-fairer-economic-and-monetary-union/european-
pillar-social-rights/european-pillar-social-rights-20-principles_en.
104. An assessment of the availability, accessibility, affordability
and adequacy of key services
Social Justice Ireland has determined that different because they are identified as particularly relevant
groups of vulnerable people face considerable in Ireland: homecare services, that, according to
barriers and obstacles in accessing services, with Social Justice Ireland, should be resourced and
some specifics according to the service described. developed in Ireland and would make a significant
The most affected vulnerable groups are, in impact on the lives of older people and people
general, the long term unemployed, persons with with a disability. In addition, the second one
physical and intellectual disabilities, asylum seekers described is healthcare services. These services
and refugees, and persons living in rural areas. are fundamental to the wellbeing, and timely
access to appropriate healthcare services would
In this section the main strengths and weaknesses make a profound difference to the lives of people
of the access to five important services are who are vulnerable and living in poverty or social
described. Three services selected for analysis exclusion.
are common to all European countries (the public
employment service, housing policies, and early The main criteria of the evaluation of services
childhood education services), and two have are adequacy, accessibility, availability and
specifically been chosen by the national Caritas affordability:
ADEQUACY: the service is of good quality and is satisfactory: it is able to respond to the needs of the
user;
ACCESSIBILITY: the service can be reached or obtained easily, and it is easy to understand and to use;
AVAILABILITY: the service exists and it is available for those who need it;
AFFORDABILITY: the service is cheap enough for people who need it to be able to afford it.
The assessment has been based on a scale healthcare, and homecare services. Public
ranging from 1 (the lowest mark meaning that the employment services are described as quite
service is completely inadequate, inaccessible, problematic, in particular regarding their
unavailable or unaffordable) to 5 which means adequacy. All the five services are moderately
that it is completely positive. affordable, while early childhood education is not
always adequate, as the details described in the
The policy/services having the lowest rate, as following sections illustrate.
the following table shows, are housing policies,
Caritas CARES! country report 11Caritas CARES! Ireland
Adequacy Accessibility Availability Affordability AVERAGE
Public employment 2 3 3 3 2.75
Housing policies 1 1 1 1 1
Early childhood education/ECEC 2 3 3 3 2.75
Homecare services 2 2 2 3 2.25
Healthcare services 2 2 2 3 2.25
AVERAGE 1.8 2.2 2.2 2.6
a. Vulnerable target groups do not have access • Also people with a disability do not have
to full support provided by public employment access to the full suite of services within the
services education and training system. They have
access to a programme called EmployAbility
Public employment services in Ireland offer job/ (designed for people with disabilities who
career counselling and link to lifelong learning. want access into the labour force) but this
programme does not have the breath of
People who are unemployed in Ireland have support and services that Intreo (education,
access to income support (jobseekers benefit employment support and training centres)
and jobseekers assistance) and education and provide.
training support via the Public Employment Service
(delivered through the Intreo offices nationally). For this reason Social Justice Ireland considers
People who are long-term unemployed are adequacy as the main problem of this service
diverted to the JobPath programme which is (ranked 2 out of 5).
provided by two private service providers. This
is a cause for concern, as those who are long- In terms of affordability, not every person who
term unemployed require a broad, holistic and wants to access the Public Employment Services
supportive approach to ensure they can access has the same services or education and training
sustainable employment in the labour market. programmes available to them. For example,
people in more rural areas will be dependent on
The most vulnerable groups affected by these access to transport to get to the nearest training
barriers/obstacles are persons with a disability, or education course which may require travelling
asylum seekers and refugees, and undocumented some distance. The service itself is provided by the
persons. State, but transport costs might be a barrier for
people who have to travel.
• Asylum seekers are not entitled to access
labour market support (income support In the last few years the service has improved.
and access to education and training) The improved employment rate has led to less
until their asylum application has been pressure on the Intreo service, and a reduction
approved. This places them in a very in waiting times to access training and/or other
vulnerable position. support.
12b. Social housing solutions are increasingly stock available in the private market to meet the
unavailable demand. This means that housing solutions are
increasingly unaffordable (despite the increased
Ireland is in the midst of a housing crisis affecting expenditure on Rent Supplement and Housing
every region in the country. According to the Assistance Payment) as rents in the private market
latest official figures, there are 71,858 households continue to increase. Due to the lack of capital
on the social housing waiting lists across the 31 investment and social housing stock there is a
Local Authorities.10 Of these, over half have been lack of availability of housing, particularly social
waiting for four or more years, and over a quarter and affordable housing. In addition, not all housing
have been waiting for seven years or more. units are accessible for people with disabilities, nor
Homelessness is also increasing at an alarming adaptable to meet the needs of older people as
rate and the latest figures show that there are they age.
10,305 people living in emergency accommodation
(6,484 adults and 3,821 children). This is the highest In the last few years the access to these services
number of people in emergency accommodation has worsened: homelessness has increased
ever in the country. Government housing policies by over 350% since 2014 and there are 71,858
since the 1980s have seen a move away from households on the waiting list for social housing.
construction of social housing to a more cost- Rents in Ireland today are higher than they were
effective outsourcing to the private market and at the peak of the boom in 2007 and are on an
the subsidisation of private landlords through Rent upward trajectory. The most recent Country Report
Supplement, the Rent Accommodation Scheme, for Ireland from the European Commission points
and Housing Assistance Payment (HAP). In the to housing as one of the key challenges facing the
years following the bank bailout, Government country and it affects both women and men.
decimated the housing budget, particularly in
the area of capital expenditure. While the Budget A testimony describes the situation:
allocation to housing has increased since 2014,
policy in this area has concentrated on short-term
‘housing solutions’ provided through the private “Hannah (aged 8), cried and told us that the
rental sector, rather than investing in long-term Hub was ‘like a children’s jail’. She expressed
capital spending on social housing. This shift in extreme worry and fear for her younger
policy prioritised those with property portfolios over brother Niall (aged 5) who had tried to run
those without homes. away from the Hub on several occasions.
She told us that when her mother was having
Not only particularly vulnerable groups are a shower she would sit on a chair in front
affected by barriers in accessing adequate and of the door so her brother could not run
affordable housing, as it is also the case for people away. Niall had sneaked out of the Hub once
of working age, families with children and young already and threatened to throw himself out
people.
of a bedroom window.”
According to Social Justice Ireland housing Testimony of a young person living in a
services are completely inadequate, unavailable Family Hub (emergency accommodation for
and unaffordable (rated as 1 out of 5). Due to a homeless families) taken from the “No Place
lack of capital investment and a decades old Like Home. Children’s views and experiences
policy of reliance on the private rental sector,
of living in Family Hubs”, a report by the
Government does not have the social housing
Ombudsman for Children. Link
stock available to meet the demand. Neither is the
10
https://www.housing.gov.ie/sites/default/files/publications/files/summary_of_social_housing_assessments_2018_-_key_findings.pdf.
Caritas CARES! country report 13Caritas CARES! Ireland
c. The early childhood education and care sector to better integrate the educational experience
in Ireland is fragmented and underdeveloped of young children. This was expanded to two
years in 2018, meaning children from age three
The most striking feature of investment in until they start primary school can access 3.5
education in Ireland, compared to other OECD hours of ECCE, five days a week, for 38 weeks and
countries, is its under-investment in early for two consecutive years.
childhood education. In consecutive studies,
Ireland has spent just 0.1% of GDP on pre- d. Formal home care funded by the State in
primary education compared to an OECD Ireland is considered low by comparison with
average which has increased from 0.5% to 0.8%. other countries
Even when using the Gross National Income
(GNI) (as Ireland’s GDP is distorted by the effects Although Ireland’s population is young in
of multinational company activities) Ireland still comparison to other European countries,
falls far short, spending just 0.3% of GNI on early it is ageing. In fact, Ireland’s rate of ageing
childhood education. Ireland would have to continues to be considerably higher than the
more than double its current investment just to average for EU countries.12 The group of people
reach the OECD average. As a result of ongoing aged 85+ in particular is growing considerably.
under-investment in this area the availability of Some important facts about Ireland’s ageing
accessible and high quality ECECs is an issue in population:13
Ireland.
• There were approximately 639,000 people
According to Social Justice Ireland’s assessment aged 65 and over in 2017 and there will be
the main problem is adequacy (ranked 2), while 1,115,000 by 2037 (an almost 75% increase);
the services are considered affordable (ranked
as 3). • There were 69,000 people aged 85 or over in
2017, and there will be some 159,000 by 2037
Due to sustained under-investment the (about an 130% increase);
ECEC sector in Ireland is fragmented and
underdeveloped. Ireland does not have a well- • The old age dependency ratio (the ratio of
developed system of public provision of early those aged 65 years and over to those aged
education and it has one of the highest rates of 15-64) was 21.1 in 2017, and it is projected to rise
all the OECD countries of children attending pre- to 33.9 by 2037.
primary education in private, non-government
dependent, institutions.11 The introduction of the One clear implication is additional demand for
Early Childhood Care and Education Scheme healthcare services and facilities. Home care
(ECCE) in 2010 represented a positive first step in packages are projected to show the greatest
addressing this. However, sustained resourcing is increase in demand - of 66% - reflecting a
required if Ireland is to bring its investment up to high level of unmet need. Support for people
the OECD average. to remain in their own homes is a key and
appropriate policy objective and coincides
In the last few years the access to these with the wishes of most older people. A well-
services has improved: a positive first step in developed, co-ordinated and integrated
addressing this is known as the ‘free pre-school’ approach to the management of older people’s
package, designed as an educational measure needs reduces referrals to long-term residential
11
OECD, 2018.
12
Department of Health, 2019, https://health.gov.ie/publications-research/statistics/statistics-by-topic/demographics/.
13
Department of Health, 2019.
14care. However, the availability of formal that is not the whole story. There are barriers in
home care funded by the State in Ireland is access to primary care, delays in Emergency
considered low by comparison with other Department admissions, and long waiting
countries. times for access to hospital care in the public
system.
According to the Caritas assessment these
services are regarded as quite affordable International experts note that Ireland has
(ranked 3) but not very adequate, accessible the only health system in the EU that does
and available (rated 2). not offer universal coverage of primary
care and that, despite increased investment
The most vulnerable groups affected by during the previous decade, when the financial
these barriers/obstacles are persons with a crisis occurred in 2008 Ireland still had poorly
disability. developed primary and community care
services.14 Accessing our complex system
In the last few years the availability of the depends on whether one has a medical card, a
service has worsened. The number of people GP visit card, private health insurance, private
receiving home care and the hours allocated resources to spend on health services, where
to this reduced from 2008 and especially after one lives, and what type of service one is trying
2010. Notwithstanding increases in recent years, to access; it is also those who are the poorest,
there were still fewer people in receipt of home sickest and those with disabilities who find it
care support in 2017 than there had been in 2008 hardest to pay charges, to negotiate access,
– by more than 8,000 people (or -15%), and there and who must wait longer for care.
still were some 2.25 million fewer hours delivered
(approximately -18%). Since 2008, the number of Those who are poor and sick without medical
people in receipt of Home Care Packages (HCPs) cards fare worst in terms of coverage and
has grown but the funding for this scheme has access. In 2017, 32.3% of households, where
remained largely static for many years and the at least one person had had a medical
average value of each package has fallen. Over examination or treatment in the previous 12
60% of older people’s budgets goes to long-term months, reported that the costs were a financial
residential care while only approximately 4% of burden. For households with children the
the over 65 population live in residential care corresponding rate was higher (35.3%). As well
settings. as lengthy waiting times to access treatment,
problems with overcrowding in emergency
Social Justice Ireland had advocated for departments are also a regular feature of the
a statutory right to homecare for the past Irish system.
number of years. This is a service that should be
resourced and developed in Ireland as it would According to the Caritas assessment, the
make a significant impact on the quality of lives healthcare services are regarded as reasonably
of older people and people with a disability. affordable (ranked 3), followed by a lower level
of adequacy, accessibility and availability
e. Ireland is the only EU health system that does (ranked 2 out of 5).
not offer universal coverage of primary care
One of the most obvious concerns about
Problems with the Irish healthcare system are the Irish Healthcare system has to do with
often apparent through difficulties of access but accessibility.
10
Health Consumer Powerhouse, 2019, https://healthpowerhouse.com/media/EHCI-2018/EHCI-2018-report.pdf.
Caritas CARES! country report 15Caritas CARES! Ireland
Ireland’s health system ranked 22nd out waiting for both a first appointment with a
of 35 countries in 201815 (Health Consumer specialist and also for treatment.
Powerhouse, 2019), but on the issue of
accessibility, Ireland ranked last. That report In the last few years access has worsened.
notes that even if the Irish waiting-list target of 18 National Treatment Purchase Fund figures
months was reached, it would still be the worst suggest that 72,000 people were waiting for
waiting time situation in Europe. Irish hospitals treatment as an in-patient or day patient at
are working near full capacity. The occupancy the end of October 2018, a situation that had
rate for acute care beds is among the highest worsened since December 2014 (when it was
in the OECD countries, and while having a high just above 63,000). Furthermore, those waiting 18
utilisation rate of hospital beds can be a sign months or more showed a tenfold increase in
of hospital efficiency, it can also mean that too the same period. When we look at those waiting
many patients are treated at the secondary for outpatient appointments, the overall figures
care level. are even more alarming – over 516,000 people
were waiting in October 2018 and this was a very
The complex Irish two-tier system for access large increase over the figure for the end of 2014
to public hospital care means that private (when it had been nearly 386,000). Those waiting
patients have speedier access to both for 18+ months numbered 86,633 in 2018, a figure
diagnostics and treatment, while those in that was over four times larger than that for
the public system can spend lengthy periods December 2014.
5. Use of the minimum income as a measure of inclusion and
activation in Ireland
Principle 14 of the European Pillar of Social schemes have to be viewed through the
Rights states that: perspective of the active inclusion approach:
they are expected to be universal and to provide
“Everyone lacking sufficient resources has the integrated support in the form of adequate
right to adequate minimum income benefits cash benefits, effective access to enabling
ensuring a life in dignity at all stages of life, and goods and services, and to include an activation
effective access to enabling goods and services. component for beneficiaries.
For those who can work, minimum income
benefits should be combined with incentives to Minimum income in Ireland is a financial support
(re)integrate into the labour market.” in line with this active inclusion approach. It
seems to be able to make a partial contribution
According to the approach put forward by the to the social inclusion of vulnerable people.
EU initiatives (in particular the Recommendation
on the active inclusion of people excluded The main positive aspect of the activation
from the labour market, promoted in 2008 by approach is to reduce long term dependency
the European Commission16) minimum income on economic benefits, but at the same time it
15
Health Consumer Powerhouse, 2019, https://healthpowerhouse.com/media/EHCI-2018/EHCI-2018-report.pdf.
Commission Recommendation of 3 October 2008 on the active inclusion of people excluded from the labour market, https://eur-lex.
16
europa.eu/legal-content/EN/ALL/?uri=CELEX%3A32008H0867.
16risks excluding those who can’t work. by an active inclusion approach and a life
cycle approach, an integrated and person-
Although Ireland’s Social Protection system and centred approach to employment support and
National Anti-Poverty Strategy are underpinned activation is still lacking.
6. Progress made towards achieving EU and national social
targets
The Europe 2020 strategy sets out the EU’s behind. Amongst the issues of concern are high
agenda for growth and jobs for the current levels of underemployment, a high incidence
decade, having as its main objective the of State income support amongst employees,
promotion of smart, sustainable and inclusive an increased number of discouraged workers
growth as a way of overcoming the structural leaving the labour force, low pay in the labour
weaknesses in Europe’s economy and tackling force, precarious employment, and a significant
the main European inequalities. The Strategy number of workers earning less than a living
sets out EU TARGETS to give an overall view of wage.17
where the EU should be by 2020, based on key
socio-economic parameters. The EU targets Concerning POVERTY AND SOCIAL EXCLUSION,
are then translated into national targets so the EU target foresees a reduction of at least 20
that each EU Member State can check its million people in or at risk of poverty or social
own progress towards each goal. The ones exclusion.
particularly relevant for this study are those
referring to employment, and poverty and social In 2009 in Ireland, the number of people at risk
exclusion. of poverty or social exclusion was 1,150,000.
The target set to be reached by 2020 is a
In relation to EMPLOYMENT, the target set at reduction of 200,000 persons in condition of
EU level is that, by 2020, 75% of people aged poverty (either consistent poverty, at risk of
20–64 are expected to be in work. For Ireland poverty or basic deprivation) but according to
this indicator has been set between 69% and Eurostat, in 2017, there was a slight increase of
71%. In 2017 it was already at 73%, so above the 38,000 persons (but it has to be said that the
target, but it has to be noted that this figure is indicator chosen by Ireland is a bit wider than
decreasing, as in 2008 it was at 73.5%. Ireland’s the Eurostat indicator, so the information here
employment target is expected to be realised is only indicative of a general trend). Ireland is
through the greater participation of young a long way away from its Europe 2020 poverty
people, older workers and low-skilled workers, target, and indeed from its newer sub-target
and the better integration of legal migrants. Job relating to childhood poverty; and while trends
growth in recent times has been most welcome. have improved, there remains a lot of ground to
However, Social Justice Ireland is concerned be made up to in order to reverse the damage
about several of the ways in which the labour following the 2008 crisis. The reality is that
market is developing. Headline employment the recession and its associated austerity
numbers are useful but tell us little about who measures have pushed Ireland away from
is benefitting, and which groups are being left reaching its targets.
17
More details are explained here: https://www.socialjustice.ie/content/publications/irelandand-europe-2020-strategy-2019-review.
Caritas CARES! country report 17Caritas CARES! Ireland
Ireland’s new National Action Plan for Social tackling poverty is the provision of sufficient
Inclusion was published in May 2019 and Social income to enable people to live a life in
Justice Ireland also welcomes the increased dignity.
attention given to the issue of poverty and
exclusion by inclusion of a target in the Europe • Within this framework the evolution of the
2020 Strategy. High rates of poverty and income socio-economic context in Member States is
inequality require greater attention than they described each year within the Commission
currently receive. Tackling these problems Staff Working Document European Semester
requires a multifaceted approach with action Country Report. In 2019 the Irish country
on many fronts, including on healthcare and report18 identified a positive trend in terms of
education, accommodation and employment. the reduction of poverty and social exclusion
However, the most important requirement in but with some concerns:
• The population at risk of poverty or social exclusion continues to fall. The decline from 24.2% in 2016 to
22.7% in 2017 was driven by improvements, but child poverty remains a challenge.
• The population aged under 60 and living in households with very low work intensity has fallen steadily
since 2013, while severe material deprivation rates have continued to decline to 5.2%, representing
about half of the peak experienced in the wake of the crisis (9.9% in 2013).
• Severe shortages in housing supply and social housing have created a very challenging situation, in
particular for women, and it further exacerbates homelessness.
• Homelessness remains on a worryingly fast upward trend.
• Ireland’s income inequality is comparatively low, but concerns related to the opportunities for those
from a disadvantaged background remain.
• The availability of medical cards for the unemployed and inactive significantly reduces health
inequalities for the poorest households.
• In May each year the European Commission jobs and growth, while maintaining sound
assesses the progress made and issues public finances. The recommendations
COUNTRY SPECIFIC RECOMMENDATIONS 19
focus on what can realistically be achieved
(CSRs) to propose new actions. The over the next 12-18 months. In 2018 the
recommendations provide policy guidance Recommendations issued for Ireland relating
tailored to each EU country on how to boost to social inclusion were the following:
18
https://ec.europa.eu/info/sites/info/files/file_import/2019-european-semester-country-report-ireland_en.pdf.
Here you can download the most recent available recommendations, https://ec.europa.eu/info/publications/2018-european-semester-
19
country-specific-recommendations-commission-recommendations_en.
182. Ensure the timely and effective implementation of the National Development Plan, including in terms
of clean energy, transport, housing, water services, and affordable quality childcare. Prioritise the
upskilling of the adult working-age population, with a focus on digital skills.
3. (…) Promote faster and durable reductions in long-term arrears, building on initiatives for vulnerable
households and encouraging write-offs of non-recoverable exposures.
The 2019 recommendations include a distant from the labour market and that they are
suggestion to address the expected increase supported in terms of training, access to quality
in age-related expenditure by making the employment opportunities and with appropriate
healthcare system more cost-effective and income support. This support must be flexible
by fully implementing pension reform plans. to meet the needs of vulnerable groups, people
A second recommendation calls on the with disabilities, ethnic minorities and people
authorities to provide personalised active living in low work intensity households.
integration support and facilitate upskilling, in
particular for vulnerable groups and people • Within the NATIONAL REFORM PROGRAMME
living in households with low work intensity. A each country describes the reforms foreseen
third recommendation urges increased access to reach the targets set at EU level. The
to affordable and quality childcare. The fourth reforms foreseen in 2018 to tackle main
recommendation is to focus investment-related social inclusion, social protection and health
economic policy on affordable housing and challenges were the following:
social housing (among others).
- Housing and Spatial Planning: The
Social Justice Ireland welcomes continued Government, through Rebuilding Ireland –
focus on broadening the tax base in CSR Action Plan for Housing and Homelessness
1, an issue that Social Justice Ireland has prioritised measures to stimulate housing
consistently raised with the Commission and supply at more affordable prices and rents.
with Government. We would argue that windfall
gains should be used on once-off infrastructure - Labour Market Activation and Participation:
expenditure to address some of the many One of the priorities in the Action Plan for Jobs
deficits Ireland has, particularly in the area of 2018 was to increase labour market activation
social and affordable housing, retrofitting to and participation and to ensure that existing
address energy poverty, digital infrastructure and future skills needs are met. Pathways
and water infrastructure. to Work is the main Government initiative
encouraging access to the labour market
In terms of health expenditure we advocate the and increased participation in employment.
move to primary care and community based It is complemented by the Action Plan for
care, an increase in the provision of home Jobless Households, the National Disability
care and a move towards a statutory right to Inclusion Strategy, and the Comprehensive
home care, and the full implementation of the Employment Strategy for People with
Sláintecare Plan. Disabilities.
In terms of CSR 2, we welcome the focus on the - Healthcare reform: The Sláintecare Report,
active inclusion approach, and personalised published in May 2017, sets out a ten-year
integration of and access to services and vision for the future of the Health Service.
support that people need to upskill. It is vital The Government is committed to the
that this meets the needs of those who are most implementation of a programme of reform
Caritas CARES! country report 19Caritas CARES! Ireland
arising from the Sláintecare Report. in Ireland in the last 2 years and having a
positive impact on the reduction of poverty and
According to Social Justice Ireland, the COUNTRY social exclusion and promoting access to social
REPORT outlines many of the challenges Ireland rights is related to income support/minimum
faces in terms of poverty and social exclusion. income. Budget 2019 delivered a welcome
It is unfortunate that these are not reflected increase to the minimum social welfare
in the Country Specific Recommendations. payment. From March 2019 onwards it increased
In particular, the Country Specific by €5 per week (to €203) complementing
Recommendations for Ireland do not have a similar increases in Budgets of 2017 and 2018.
specific focus on poverty or social exclusion. The Budget 2017 increase was the first increase
Reforms foreseen in the NATIONAL REFORM to these payments since 2011. A lesson from
PROGRAMME are considered not fully adequate past experiences of economic recovery and
and implementable (both ranked 3 out of 5). growth is that the weakest in our society get
While affordable and quality childcare, and the left behind unless welfare increases keep pace
upskilling of the adult working-age population with increases elsewhere in the economy.
are welcome, these two issues will not address Benchmarking minimum rates of social welfare
the challenge Ireland faces in terms of poverty payments to movements in average earnings is
and social exclusion. therefore an important policy priority.
According to Social Justice Ireland the most There aren’t any reforms in the last 2 years that,
relevant policy reform related to the social according to Social Justice Ireland, have had a
inclusion/social protection system implemented mostly negative impact.
7. The use of EU Funds 2014-2020
In the multiannual financial framework of 2014- inclusion, education, and youth employment.
2020, within the Europe 2020 strategy, the fight The Mid-Term Review (Link) noted that the
against poverty and social exclusion has been programme had undergone changes in its scope
considered to be on an equal footing with the and coverage, extensive change and reform in
other EU targets and objectives. In the regulations its implementing bodies, delays in establishing
adopted for this new period, more efforts have necessary data and reporting systems, and
been put in place to ensure that the challenges very recent commencement of some strands of
around social inclusion are addressed: 20% of activity. The review concludes that the programme
the European Social Fund (ESF) should have been is meeting its activation targets, which can be
dedicated to policies and measures aimed at seen in Ireland’s increasing employment figures.
promoting social inclusion, and a specific fund It is important that the new reporting system
has been implemented to support Member States accurately captures the data on education and
in the fight against poverty and social exclusion, training, adult literacy, and engaging in lifelong
namely, the Fund for European Aid to the Most learning in order to inform policy in this area.
Deprived (FEAD).
Social Justice Ireland is not involved in either the
The ESF resources in Ireland fund the Programme implementation of the ESF or in the implementation
for Employability, Inclusion and Learning 2014- of FEAD. It considers ESF resources to have been
2020. This is administered by the Department of used quite adequately to fight poverty and social
Education and Skills. It is focused on activation exclusion (ranked 3), and the same can be said for
of the unemployed, social and labour market FEAD resources (rated 4).
208. Social Justice Ireland promising practices
Two good and innovative practices, that have advocated that social welfare payments be
proved to be particularly successful, have been benchmarked in parallel with rises in average
recently implemented by Social Justice Ireland. incomes. While this was not done to the extent
One is the Social Justice Ireland Budget Project and that SJI proposed in budgets 2017, 2018 and 2019,
the second one is the Public Participation Networks. welfare increases are coming closer to that
target, which is to be welcomed.
• Social Justice Ireland Budget Project. This
project consists of annual publications, including The focus is specifically on the working poor,
policy briefings Budget Choices, Fairness in older people, people living below the poverty
Changing Income Taxes, and, Budget Analysis line, children, and people living in rural areas.20
and Critique. Social Justice Ireland engages
with Oireachtas Committees during the annual • The second programme is the Public
budget process and contributes to discussions Participation Network (PPN). This programme
in the National Economic Dialogue, and the is designed to ensure groups participate fully in
Department of Employment and Social Affairs local decision-making processes and the local
Pre-Budget Forum. policymaking process. PPNs are networks of
volunteer-led, community-based organisations,
The focus of this project is to present fully which were set up by Government in each
costed alternative policy proposals to Local Authority in Ireland. Social Justice Ireland
Government in advance of the budgetary has been deeply involved in supporting these
process focussed on addressing the policy networks as key to local democracy and
challenges Ireland faces. Addressing poverty bringing decision making closer to the people
and social exclusion is one such challenge. who are effected by those decisions. SJI has
held 10 regional networking meetings with PPNs
The outcomes of this project are manifest in and delivered 15 training sessions involving over
decisions made by the Government during 350 attendees. This programme is designed to
the annual budgetary process. In 2018, Social increase the capacity of local organisations in
Justice Ireland recommended that all social the community and voluntary (NGO) and civil
welfare payments be increased by €6.50 per society sectors to engage in policymaking and
week. Calculations were made by comparing decision making at local level. The Government
social welfare payments to movements in has committed to increasing representation
average earnings and applying the benchmark from civil society on decision making at local
agreed in Budget 2007. This implied a shortfall level and this programme aims to ensure those
of €6.50 per week between current social organisations and individuals have the skills,
welfare rates and the benchmark. In Budget information and support needed to fully engage
2019 the Government increased social welfare in this process. The webpage to the initiative is
rates by €5 per week. As part of our Budget at the link below: https://www.socialjustice.ie/
Project, Social Justice Ireland has consistently content/civil-society-policy-home.
20
More information about the project: https://www.socialjustice.ie/content/publications/budget-2019-analysis-response.
Caritas CARES! country report 21Caritas CARES! Ireland
Conclusions
The population in Ireland is rapidly ageing and it also changing due to migration flows, even though the
phenomenon is far less prevalent than in most of the other EU Member States. This socio-demographic
evolution will imply new emerging needs in the near future and the society and care services should be
prepared to tackle them.
Unemployment and youth unemployment are progressively reducing, but inactive people, low work
intensity households, people with disabilities, and low-skilled individuals remain particularly vulnerable
target groups that are still facing challenges in entering the labour market.
Child poverty remains a particular concern with one in every ten children living in persistent poverty; and
another relevant issue is related to the rising number of homeless people.
The impact of social transfers (excluding pensions) on poverty reduction21 is one of the highest in the EU:
social expenditure reduces poverty by 52.6% while the EU average is 34.1%, but in a country characterised
by a steady economic growth these emerging social problems deserve specific attention in order to avoid
enlarging the disparities between rich and poor and between those included and those excluded from the
country’s socio-economic development.
Ireland is a very long way away from its Europe 2020 poverty target. The recession and its associated
austerity measures pushed Ireland away from reaching its targets.
Social Justice Ireland asserts that different groups of vulnerable people face considerable barriers and
obstacles in accessing needed services, with some specifics according to the service described. The most
affected vulnerable groups are, in general, the long term unemployed, persons with a disability, asylum
seekers and refugees, and persons living in rural areas.
Concerning the access to services:
• People who are long-term unemployed and workers with a disability are diverted to specific
programmes that do not result in access to the main unemployment programme. This is a cause for
concern, as those who are long-term unemployed require a broad, holistic and supportive approach
to ensure they can access sustainable employment in the labour market, while the programme for
disabled workers, called EmployAbility does not have the breath of support and services that Intreo
(education, employment support and training centres) provide.
• Ireland is in the midst of a housing crisis affecting every region in the country. Government has
decimated the housing budget, particularly in the area of capital expenditure. While the Budget
21
The reduction in the percentage of the at-risk-of-poverty rate, due to social transfers (calculated comparing at-risk-of-poverty rates
before social transfers with those after transfers; pensions are not considered as social transfers in these calculations). The indicator
is based on the EU-SILC (statistics on income, social inclusion and living conditions).before social transfers with those after transfers;
pensions are not considered as social transfers in these calculations). The indicator is based on the EU-SILC (statistics on income, social
inclusion and living conditions).
22
22You can also read
