Rationale, priorities and recommendations for Budget 2013
A Budget for Achievement
New Futures Graduation 2012
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Stuart Duffin One Family
Rationale, priorities and recommendations for Budget 2013
As in recent years, One Family’s pre-budget submission and recommendations
addresses income security and the need for a tailored income support system
that ensures that everyone, regardless of circumstance, can live with dignity in Irish
society. One Family believes in an Ireland where every family is cherished equally, and
enjoys the social, financial and legal equality to create their own positive future.
One Family is working to ensure a positive and sustainable future for all members of
one-parent families in Ireland – focusing on attitudes, services, policies and lives.
Together with one-parent families and those working with them, we are committed to
achieving equality and respect for all families. In addition to striving for fundamental
structural change, we support individual oneparent families as they parent through times of
family, work and life change. We know that every
Our Motivation:
family is unique, and so we work in a family
Addressing slow
centred way to bring about better lives for
growth and
parents and children.
continued
The ongoing fragility of Ireland’s economic
uncertainty requires
recovery demands a strong commitment to
assertive and
proactive social policy interventions that reduce
constructive action
poverty levels, tackle the growing inequality in
our society and address social exclusion.
Everyone, regardless of circumstance has a right to live with dignity and have the
opportunity to participate in the life of the country.
Ireland’s social assistance system should be based on sound social welfare policy that is
focused on long-term stability and equality. Unfortunately the Government has shown
that it does not recognise the long-term social and economic costs that its decisions are
incurring as it focuses solely on short-term fiscal concerns.
The Government must keep in mind that while the social welfare policy it is creating
may need to be aligned to Ireland’s economic and labour market policies and present
conditions, it should not be driven by or boxed in by them. Poverty reduction and
equality for all must be the stated goal of government, especially in these difficult
economic times.
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Stuart Duffin One Family
Rationale, priorities and recommendations for Budget 2013
1 in 4 families with children in Ireland is a
one-parent familyi
Over half a million people are part of a
one parent familyii
The most economically deprived families in
Ireland are one-parent familiesiii
Lone parent families were one of the
worst hit groups financially by Budget
2012iv
Access to out of school childcare services
are limited or not affordablev
It was estimated a lone parent lost 5%
of their income as a result of Budget
2011 whereas a high earning married
couple lost only 1.3%vi
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Stuart Duffin One Family
Rationale, priorities and recommendations for Budget 2013
Challenges
1. Those parenting alone are disproportionately at risk of
poverty as they struggle to run a household on only one
income
2. The gender pay gap is a significant issue for lone parents as
the majority of those parenting alone are women. Latest
figures for the gap between men and women stands at
17.1%vii
3. Ireland has one of the highest costs of childcare in the
European Union, placing those raising children alone in an
almost impossible position to gain financial independence
4. Care-giving and child-rearing roles are not recognised and
accommodated in the workplace, which places those with
children at a distinct disadvantage to others
5. Participation agreements for education, training and
employment are not flexible enough to accommodate those
who have caring responsibilities for others
Recognising and responding to the complexity of the lives of those
who need social assistance enables interventions to be effective
and achieve sustainable long-term outcomes and impacts.
i ii iii iv v vi vii
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Stuart Duffin One Family
Rationale, priorities and recommendations for Budget 2013
A Call for an Equity Approach to Social and Employment
Supports and Services
‘From each according to their ability, to each according to their need’
Equity means that people with different needs are supported in different ways to
achieve equal outcomes.viii While those in receipt of social assistance are all in need of
support, their needs, experiences and circumstances are different. If Ireland’s welfare
system is to help people back onto their feet, it must recognise these differences and
respond to them. The Government must also be mindful of the larger, structural
barriers that continue to impede people’s efforts to move off welfare and that result in
unequal access to the labour market.
The needs of parents in their roles as caregivers continue to go unrecognised and
inadequately supported in Irish society. This has resulted in a situation of “double
disadvantage” wherein parents, particularly those parenting alone, are disadvantaged in
the economy and society and become further isolated by the conservative response from
the Irish social assistance system. We have to seize on this budget as an opportunity to
build a system that addresses and responds to these barriers.ix
The current social assistance system tends not to meet the needs of families in
transition who rely on it and the economy that depends on it. It fails to provide for the
long-term well-being of families in transition and their children and can exacerbate
poverty and social exclusion. It stigmatises recipients and the persistent culture of
suspicion alienates and frustrates the very people it is meant to serve. The philosophy,
codes, and rhetoric of the system encourage negative stereotyping of recipients.
While it is recognised that the system is faced with an extraordinary demand for its
supports, failure to move to a more engaged and enabling service will lose the
opportunity to help people avoid falling into long-term dependency. The cumulative
effects of the cuts of Budget 2012 on the social protection system only worsened the
lives of those already struggling to survive the unprecedented economic crisis.
A top priority for Budget 2013 must be to maintain income support programmes and
avoid repeating the mistakes of Budget 2012.x Rushing to reduce the deficit by making
severe cuts to social spending is short sighted, both economically and socially. It will
cause severe hardship for vulnerable people, unnecessarily prolonging the recovery and
create social and political deficits that will take decades to eliminate. To continue to take
from those most in need will serve only to worsen their prospects for the future and
those of the country. The best way forward is to set the foundation for a sustained
recovery through strategic investments in our social safety net.
One Family proposes that the Government adopt an equity approach to Budget 2013.
Such an approach would begin by seeking to better understand the population of people
that are using or may need to use the social welfare system. This will require a better
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Stuart Duffin One Family
Rationale, priorities and recommendations for Budget 2013
collection of data and a greater consideration of such evidence in the formulation of
policies. Adopting an equity approach is to use this understanding to design the
system– and the supports and services it offers – in ways that not only provide better
quality employment-related supports, but also respond to the specific barriers faced by
families in transition and in particular those parenting alone.
Ireland’s social assistance programmes must incorporate an explicit objective to move
people out of poverty, by offering meaningful support opportunities for those who can
work and ensuring that those who cannot are able to live with dignity.
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Stuart Duffin One Family
Rationale, priorities and recommendations for Budget 2013
Summary of One Family’s Priorities & Recommendations for
Budget 2013
A. WORK-LIFE BALANCE
Recommendation 1:
Initiate flexibilities in the social assistance and support system to reflect and respond to
family circumstances.
Recommendation 2:
Commit to support to the further development and provision of accessible, affordable
and quality childcare, recognising its role in achieving economic and social prosperity
for all.
B. FURTHER EDUCATION AND TRAINING
Recommendation 3:
Provide mechanisms for accessible specialised bridging/skill development programmes
for families in transition, particularly those parenting alone and that reflects and
responds to complex needs of families.
Recommendation 4:
Build and deliver a responsive Labour Market Agreement Plan that creates a bridging
link between training and future employment for those parenting alone.
C. ASSURED HOUSING
Recommendation 5:
Commit to a gradual repurposing of the €500 million lost to private landlords annually
for the establishment of a sustainable social housing stock, beginning with an initial
assessment of the suitability of NAMA assets.
D. INCOME SECURITY
Recommendation 6:
Promote and deliver in-work (tax) credits, in-work assistance and tackle the backlog of
FIS to ensure that ‘work pays and assistance works’.
Recommendation 7:
Acknowledge that consistent and persistent child poverty is a serious concern for
Ireland’s future and prioritise poverty-proofing of forthcoming budget adjustments that
will protect those most vulnerable
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Stuart Duffin One Family
Rationale, priorities and recommendations for Budget 2013
One Family’s Recommendations for Budget 2013
A. WORK-LIFE BALANCE
Flexibilities
For those parenting alone, whose primary
responsibility and duty of care is to their
children, labour activation policies need to
facilitate and encourage those parents in their
employment efforts, by acknowledging and
responding to the needs and supports around
childcare and personal and career
development.xi
Recommendation 1:
Initiate flexibilities in the
social assistance and
support system to reflect
and respond to family
circumstances
If Government is to provide meaningful engagement and tailored support for those
moving back into the labour market, they must recognise the needs of and demands
upon those parenting alone. The caring responsibilities of lone parents necessitate
flexible conditionalities; safeguards that ensure parenting responsibilities are not
compromised by welfare-to-work obligations which are designed specifically for people
without a duty of care to others.xii
It is vital that employers are encouraged to support flexibilities to enable parents to
participate successfully in the workplace. Engagement with employers is pivotal for the
delivery of sustainable flexible work opportunities for lone parents who need help
balancing their professional and parenting responsibilities.
A Childcare Framework
Government are charged to commit to protecting childcare spaces in both the short and
long term, for families in transition and particularly for those parenting alone. The lack
of access to quality and affordable childcare is a fundamental challenge to participation
in the labour market and one that needs to be addressed.xiii
Recommendation 2:
Commit to support to
the further development
and provision of
accessible, affordable
and quality childcare,
recognising its role in
achieving economic and
social prosperity for all
Wrap around childcare includes before school
starts and after school care. Childcare needs to be
local, so that parents can access it. One value for
money solution to providing the necessary funding
for childcare, is to realign the Community
Employment Scheme, so that CE workers help to
deliver such a service. The attendant service and
skill development would support best practice and
provide an in work accredited career pathway for
participants, which will assist in the provision of
locally accessible child and afterschool care.
Engagement of the Department of Education &
Skills is critical for successful delivery.xiv
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Rationale, priorities and recommendations for Budget 2013
B. FURTHER EDUCATION AND TRAINING
Personal & Professional Development
Jurisdictions such as Norway, Sweden, Denmark and the Netherlands have recognised
the long-term benefits of a model of social assistance that invests in skills development
and adequate supports to take people out of poverty.xv This human capital development
approach links investments to longer-term benefits for individuals and the community
as a whole. To join the growing ranks of jurisdictions undertaking this positive change,
Ireland’s culture of intrusive monitoring and punitive rules needs to be replaced with a
focus on personalised assessment, collaborative planning and flexible supports.
Government must engage with the mandate to
initiate outcome-based budgeting to improve the
access of families in transition and in particular
lone parents to sustainable careers and education
opportunities. This approach is an effective interdepartmental investment that will allow lone
parents to improve their educational and career
competences, which will result in one-parent
families lifting themselves out of poverty.
Recommendation 3:
Provide mechanisms for
accessible specialised
bridging/skill
development
programmes for families
in transition, particularly
those parenting alone
that reflect and respond
to complex needs of
families
The labour market continues to undergo
developments with higher educational
achievement becoming a prerequisite for work.xvi
Budget 2013 is the opportune vehicle to help
reconnect recipients with effective
education/training and employment supports in
order to respond to this trend. This could be accomplished through:

Personalised assessment and high quality vocational and career counselling
with flexible support options.

Strength-based case management: realistic goal setting with manageable steps
and supports.

Individual holistic solutions that define success as improving employability
even if there is no immediate job outcome.

Adequate collateral supports for training and employment (childcare,
transportation, etc.)

Industry-specific and sectoral strategies that provide strong connections to
employers and improved career advancement prospects for those parenting
alone, particularly in STEM focused jobs and careers.
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Stuart Duffin One Family
Rationale, priorities and recommendations for Budget 2013
Recommendation 4:
Build and deliver a
responsive Labour
Market Agreement Plan
that creates a bridging
link between training
and future employment
for those parenting
alone
Establish a Labour Market
Agreement Action Plan
There is a gap between training, skill development
and securing employment. The action plan tactic
will particularly bridge the gap between labourmarket entry and further career enhancement. It
must be designed to specifically address and target
recipients of the One Parent Family payment and
families in transition who are at a higher risk of
deprivation than other families. This approach
requires effective inter-ministerial cooperation to
reach these target groups providing an opportunity to create meaningful skills training,
education and employment supports. Joint funding through the mechanics of outcomebased budgeting combined with an integrated product of income support will create a
wrap-around employment / skills development programme. In turn, this addresses
social exclusion and stigma concerns and creates the potential for building a strong
planning and support system for people on welfare particularly those families in
transition.xvii
C. ASSURED HOUSING
Sustainable Housing Tactics
Recent housing figures show that Ireland has a
surplus of housing stock and a vacancy rate of
14.5%.xviii
Recommendation 5:
Commit to a gradual
repurposing of the €500
million lost to private
landlords annually for
the establishment of a
sustainable social
housing stock,
beginning with an
initial assessment of the
viability of NAMA
assets
Housing is fundamental in shaping a child's life.
Lone parent families all share the same
constraint - that there is only one potential
“breadwinner” and one carer to share the load
of family responsibilities. Those parenting
alone and their children often experience
overcrowded accommodation and/or have been
forced, due to rent support systems, into more insecure, expensive and poor quality
privately rented housing. For those parenting alone the interaction between housing
and other social assistances can limit how much better off lone parents are as they move
into work.
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Stuart Duffin One Family
Rationale, priorities and recommendations for Budget 2013
There is a growing recognition that a comprehensive approach to lone parent families,
which includes addressing their housing needs as a key component, could have
significant economic and social benefits.xix The provision of good quality assured
housing addresses a number of key messages for housing policy makers and influencers
- both local and national, which can be summarised as: Lone parents have the same
housing aspirations as all families with children – a good quality, affordable family
home, with a garden and near to local amenities including safe children's play areas.
Since the end of 2007, the Government has spent €1,970 million on rent supplement
which has gone directly to the private sectorxx. There is a clear potential to gradually
redirect that figure into a long-term investment in social housing which would not only
hold the possibility for a long-term cost neutral solution, but would provide secure
housing for low to middle income families. There is a potential first step in assessing the
viability of NAMA assets and repurposing those suitable for social housing.
This entails Ireland developing a comprehensive housing strategy based on a voluntary
housing and assured tenancies model that over time,xxi can achieve affordable quality
housing across the State. The range of clients would expand beyond the current groups
to include:
 General needs housing for affordable rent
 Housing for people in extreme housing needs
 Shared equity housing for sale
 Mid-rent housing
Our proposal for Mid-Market Rent (MMR)xxii housing is designed to assist households
that are unlikely to be successfully housed by the local authority due to the pressures on
housing supply. It can support households who have incomes generally in excess of that
normal for social housing but less than that applicable for market/private rent housing
or for securing a mortgage.
In general, we propose that applicants could be considered subject to meeting a
combination of the following criteria:
 They are current tenants in the private sector.
 Applicants have independent means enabling them to pay rent without
immediate recourse to supports.
 Applicants are normally economically active.
 Applicants with net disposable incomes restricted as a consequence of
unavoidable deductions - where these can be defined.
In the allocation of Mid-Market Rent properties, preference could be given to:
 Those living in private rented housing.
 Those living with family, friends or relatives.
 Those lacking security of tenure in their current home.
 Owners of properties where a change of circumstances (e.g. health or
relationship breakdown) is forcing or requiring a move.
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Rationale, priorities and recommendations for Budget 2013

Those either currently occupying or holding positions on waiting lists in respect
of a local authority property.
In this way, such an initiative will help to resolve some of the long-standing issues
around low-income and those caught by the current rent assistance poverty trap, to
secure quality assured housing for those in need and in particular those parenting
alone.
D. FAMILY INCOME SECURITY
In-Work Benefits
Lone parents transitioning from social assistance to waged work should not be
penalised and should gain financial benefit from this move. The “work incentives”
currently in place as well as the continuing erosion of income disregards do not support
parents entering the labour market.xxiii
Government must initiate and commit to supports for low-income families to
ensure they receive (tax) credits and assistance aimed at improving incomes, for
example the Family Income Supplement. The current backlog, reported by the Minister
of Social Protection as being over four months, has a detrimental effect on the
sustainability of the employment, but also on the
well-being of the households involved.xxiv Inwork assistance initiatives and supports improve
Recommendation 6:
the incomes of low-income families (and in
Promote and deliver inparticular those parenting alone). They are vital
work (tax) credits, intools in engineering financial independence and
work assistance and
mitigating the impact of the increasing costs of
tackle the backlog of
taking up employment. Government must
Family Income
ensure that it pays to work and to make this the
cornerstone of the Government’s welfare to work
Supplement to ensure
strategy.
that ‘work pays and
assistance works’
Budget 2013 must review and take
affirmative action on the operation of the
income disregard by considering its
conversion to a tax credit and the effective and efficient use of the tax system to make
work pay. Work must pay in order for activation to work successfully.xxv If income
support is provided through an integrated tax system we can ensure that low-income
families and in particular lone parents are given the support they require to effectively
benefit from their implementation. Budget 2013 should actively promote income
security, widely publicising the various supports and assistance available to low-income
families, families in transition and in particular those parenting alone.
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Rationale, priorities and recommendations for Budget 2013
Supporting Children
Government must ensure that changes to child benefit are equitable.xxvi
Steps must be taken in Budget 2013 towards achieving an equitable provision of support
for all families with children, particularly those parenting alone. Recognising that the
financial resources of families are different, we recommend a two-tier approach to child
benefit:
i. The first tier would be an unconditional income payable for each child as a
right.
ii. The second tier would exist to address the income differences present between
households. It would be seen as a taxable income.
Consideration must be given to exempting child
support payments from lone parent income
assessments in full or in part. The objective of child
Recommendation 7:
support payments is to ensure that a child’s standard
Acknowledge that
of living is not negatively impacted by partnership
consistent and
breakdown. The Department of Social Protection
persistent child poverty
tends to continue to deduct child support euro-foreuro from the benefits of the parent who receives
is a serious concern for
them, particularly if in receipt of secondary welfare
Ireland’s future and
payments (e.g. rent supplement). This practice runs
prioritise povertydirectly counter to the Government’s poverty
proofing of forthcoming
reduction agenda, guaranteeing that children will
budget adjustments that
continue to live in poverty by capping a lone parent’s
will protect those most
income. Reducing or eliminating child benefit
deductions allows families in transition and in
vulnerable
particular those parenting alone to better provide for
their children and thus increase their quality of life
both now and into the future. This policy change would also increase the incentive for
the non-custodial parent to pay child support, as well as that of the custodial parent to
pursue child support.
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Reflections for policy-makers on Budget 2013
Our current social assistance policy does not match the commitment to poverty
reduction. Choices that have to be made must promote a significant investment in
childcare and early learning, showing that even in difficult economic times Ireland is
committed to protecting its most vulnerable. Unfortunately to date, there continues to
be dissonance between poverty reduction, current social assistance policy and activation
tactics. Linking social assistance with the vision of poverty reduction will mean finding
ways to move away from a punitive programme that blames individuals for their
poverty, to one that recognises that poverty is a societal problem that can only be
addressed through public policy.
Social assistance needs to be re-imagined as a system or set of systems that lift people
out of poverty. Poverty reduction and building personal capacity for fuller participation
in the community and the labour market should be explicit objectives of the system.
Social assistance should be seen as an opportunity to identify and support people who
are at risk of persistent poverty. A long-term programme for families in transition and
in particular those parenting alone, who are unable to achieve financial independence
through work and who are often marginalised in other ways because of their family
circumstances.
Our Advocacy
One Family advocates a number of concrete steps that government can take to ease the
burden of the recession and continued slow growth, and to help Ireland’s families in
transition to prepare for a return to better times.
Not only is an investment in in-work and or education/training benefits socially
responsible, it is also the economically prudent thing to do. Putting money into the
hands of low-income families and in particular lone parents puts it back into local
economies and communities who most need it. Increases to incomes will go directly to
the purchase of food, clothing and other household necessities, benefiting not only lowincome families but also our national economy.
Toward an integrated social assistance system that reduces
poverty
Social assistance has the potential to create the kind of economy that will better support
families in transition grappling with change. But this long-term thinking must be
accompanied by short-term action – the kind that can assist with both short-term and
long-term income support needs. The current fragile state of economic recovery
demands that we take steps to improve social assistance programmes in the interim.
Our recommendations for Budget 2013 are therefore aimed at ensuring that better
supports are provided for families in transition on social assistance. These changes will
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Stuart Duffin One Family
Rationale, priorities and recommendations for Budget 2013
have the associated benefit of responding to continuing challenges in Ireland’s
economy, helping families, particularly those parenting alone who are struggling to
make ends meet. Helping people to better participate in and benefit from inclusion in
the economy and community will both encourage economic activity over the short term
and provide a strong foundation for longer-term economic growth.
One Family looks forward to working with the government and other stakeholders in
this transformation of Ireland’s antiquated social assistance system. As the
transformation begins, it is crucial that existing programmes and allowances be kept in
place. New supports and programmes must be fully implemented before cuts or
reductions in current benefits are made. Incomes for people on social assistance are so
marginal that every Euro counts.
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Endnotes
i
CSO. (2012). This is Ireland: Highlights from Census 2011, Part 1. Dublin: Stationary Office.
ii
Ibid.
iii
CSO. (2012). Survey on Income and Living Conditions. Dublin: Stationary Office.
TASC. (2011). Roadmap to Greater Inequality: TASC’s Response to Budget 2012. Retrieved from
Tascnet.ie: http://www.tascnet.ie/upload/file/Roadmap%20to%20Greater%20Inequality_final.pdf
iv
vBarry,
U., and Sherlock, L., (2008), Provision of Childcare Services in Ireland UCD School of Social
Justice Working Papers Series Number 8(1):1-31
TASC. (2011). Winners and Losers?... Equality Lessons for Budget 2012. Retrieved from Tascnet.ie:
http://www.tascnet.ie/upload/file/Winners%20and%20Losers%20141111%20final.pdf
vi
EU Commission (2011) Tackling the Gender Pay Gap in the European Union. Luxembourg:
Publications Office
vii
Professor Sir Michael Marmot (2007)Achieving health equity: from root causes to fair outcomes
(2007) on behalf of the Commission on Social Determinants of Health, in The Lancet, Volume 370, Issue
9593
viii
Murphy, M., (2010), ‘What future lies ahead for the Irish welfare state?’, Irish Journal of Public Policy,
A peer-reviewed journal providing an electronic open-access forum for politics, political science,
government, public policy and public administration
ix
TASC. (2011). Roadmap to Greater Inequality: TASC’s Response to Budget 2012. Retrieved from
Tascnet.ie: http://www.tascnet.ie/upload/file/Roadmap%20to%20Greater%20Inequality_final.pdf
x
Gingerbread UK (May, 2012), It’s off to work we go? Moving from income support to jobseeker’s
allowance for single parents
xi
Lister, M.R.A.,(2002), ''The dilemmas of pendulum politics: balancing paid work, care and
citizenship'', Economy and Society, 31(4), 2002, 520-532, ISSN 0308 5417.
xii
EuroChild, (2012), Overall assessment of the SPC advisory report to the EC on “Tackling and
preventing child poverty, promoting child well-being” & suggestions for future actions
xiii
xiv
One Family, (2012), A Platform For Progression
xv
EuroChild/OneFamily, (2010), Family & Parenting Support Study Tour to Sweden and Denmark
National Skills Bulletin, July 2012, EGFSN
xvi
xvii
The Economist, (2006), Denmark's labour market Flexicurity: A model that works
xviii
CSO. (2012). This is Ireland – Highlights from Census 2011, Part 1. Dublin: Stationary Office
Bradshaw, P., and Wasoff, F., (2008) ‘growing up in Scotland, Sweep 2 Overview Report’, Scottish
Government
xix
Dept. of Social Protection. (2012). Statistical Information on Social Welfare Services 2011. Retrieved
from welfare.ie
http://www.welfare.ie/EN/Policy/ResearchSurveysAndStatistics/Documents/2011stats.pdf
xx
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Stuart Duffin One Family
Rationale, priorities and recommendations for Budget 2013
xxi
http://www.scotland.gov.uk/Topics/Built-Environment/Housing/supply-demand/nht
xxii
JRF-Housing Market Taskforce,( 2010), Increasing supply within the social rented sector
xxiii
ESRI,(2012), Budget Perspectives, Tax, Welfare and Work Incentives
Minister of Social Protection’s response to question on Family Income Supplement on 22 nd March
2012. Retrieved from oireachtas.ie http://debates.oireachtas.ie/dail/2012/03/22/00102.asp
xxiv
Office of Family Assistance, (2012), TANF Research and Evaluation, US Department of Health and
Human Services
xxv
Callan, T., (2009), Tax on Child Benefit Fairest for Low-Income Families, ESRI Series
Newspaper/Magazine Articles 200902, Irish Times, 27th October 2009
xxvi
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