The Government's recent commitments on poverty are to be welcomed but could be improved, writes Seán Healy.
The 2002 review of the National Anti-Poverty Strategy (NAPS) contains a major breakthrough on income adequacy. For the first time ever Government has decided to benchmark the lowest social welfare rates at 30 per cent of gross average industrial earnings.
For years successive governments have been challenged to ensure every man, woman and child was taken out of income poverty and had the resources necessary to live life with dignity. To achieve this two initiatives were needed:
The lowest social welfare rates had to be set at a level that would provide sufficient income to make that possible; and
These rates had to be linked to an index that reflected the changing standard of living in the society.
To meet both of these requirements Government has been urged to benchmark the lowest social welfare rates at 30 per cent of gross average industrial wages.
The key target on income set out in the NAPS review states that the lowest rates of social welfare will reach €150 a week in 2002 terms by 2007. In 2002 the sum of €150 is equivalent to 30 per cent of Gross Average Industrial Earnings (GAIE).
In 2002 terms this means an increase from €118.80 to €150 a week for a single person on the lowest social welfare rate. This is more than 26 per cent. We in the Justice Commission of CORI (the Roman Catholic bishops' conference) see the commitment to this benchmark as significant and substantial and we welcome it. If this commitment is honoured the proportion of the population living in relative income poverty will decline substantially.
There are a number of major weaknesses in the NAPS review just published. Entitled "Building an Inclusive Society", it "sets out the overall objectives, overall targets within the key areas and the arrangements to mobilise actions".
In particular there is a lack of clarity on the status of the Framework Document published with the revised strategy. The Taoiseach's commitment, expressed at the launch of the strategy, that the specific policy initiatives outlined in the Framework Document would be implemented in the coming years is welcome. If they are not implemented the new targets to which the Government is committing itself in the revised strategy will not be achieved in the stated timeframe - between now and 2007.
Besides the benchmark on income adequacy, the target to eliminate long-term unemployment as soon as circumstances permit, but in any event not later than 2007, is also welcome. While the specific measures required to achieve this target are not included, the setting of the target is welcome as it will set the context within which Government policy on this issue will be evaluated in the coming years. Government should make every effort to meet this target by 2003 as stated in the Framework Document.
In this context the Government's rejection of the proposal to recognise the right to work of asylum-seekers is most disappointing. The Government has a stated objective of processing asylum applications in six months. The CORI Justice Commission, along with others such as the Irish Refugee Council, advocated that where government fails to meet this stated objective the right to work should be granted to asylum-seekers. Clearly, recognition of such a right would alleviate poverty among one of Ireland's most vulnerable groups.
For an anti-poverty strategy to be credible in the 21st century it needs to be moving towards a rights-based approach in tackling the major issues underpinning poverty. It is crucial that society moves beyond charity or the whim of politicians and recognises that everyone has a right to the basics required to live life with dignity.
This statement is welcome. However, there are two problems that need to be addressed. The first is that income has been excluded from the list of rights contained in the review document. Having sufficient income to live with dignity is a central issue in addressing poverty. The new benchmark on social welfare contained in the strategy recognises this fact. Having sufficient income to live with dignity should be recognised as a basic right for everyone.
The second problem is that a rights-based approach needs to go beyond equality of opportunity and move towards seeking equality of outcomes. At the end of the day many poor people may, notionally, have an opportunity but may not be in a position to avail of that opportunity due to other circumstances arising from social exclusion of one form or another.
When the NAPS review goes on to apply this statement of citizenship rights it confines it to access to services. The fact that "detailed standards in relation to access to services will be set out" is welcome. Likewise the commitment to "develop indicators to monitor these standards and to establish accessible, transparent and effective mechanisms for ensuring the implementation of and adherence to these standards" is welcome.
However, a rights-based approach needs to go much further than ensuring access to services. It needs to permeate the whole approach to addressing poverty and to ensuring that Ireland moves towards being a society where everyone has access to all that is required to live life with dignity.
The establishment of the National Office for Social Inclusion is welcome. It is very important that this office is adequately resourced to undertake the work needed to provide ongoing monitoring and evaluation of this strategy. The active involvement of the community and voluntary sector in the ongoing work of monitoring and evaluation is crucial to its success.
In conclusion, the Government's review of the National Anti-Poverty Strategy includes a major breakthrough on income adequacy but much more could have been done to tackle both the causes and the consequences of poverty.
Father Seán Healy is director of the CORI Justice Commission