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I General Research Series PAPER NO. 143 I JANUARY, 1989 I I l FAMILY, ECONOMY I AND i GOVERNMENT IN IRELAND I I I Finola Kennedy I I I I I I ESRI THE ECONOMIC & SOCIAL RESEARCHINSTITUTE ! THE ECONOMIC AND SOCIAL RESEARCH INSTITUTE COUNCIL, 1988 - 1989 I *TOMAS F. ~ COFAIGH, LL.D., President of the Institute. *D. F. McALEESE, B.COMM., M.A., M.ECON.SC., PH.D., Chairman of I the Council D.J. BUCKLEY, Vice President and General Manager, Merck, Sharp and Dohme (Ireland) Ltd., Co. Tipperary. L. CONNELLAN, B.E., C.ENG., M.I.E.I., Director General, Confederation I of Irish Indusay. *SEAN CROMIEN, B.A., Secretary, Department of Finance. MICHAEL P. CUDDY, M.AGR.SC., PH.D., Professor, Department of Economics, University College, Galway I G. DEAN, M.D., F.R.C.P. MARGARET DOWNES, .B.COMM., F.C.A., Consultant, Coopers and Lybrand. I *MAURICE F. DOYLE, B.A., B.L., Governor, Central Bank of Ireland. P. W. FLANAGAN, Secretary, Department of Health. N.J. GIBSON, B.SC.(ECON.), PH.D., Pro-Vice-Chancellor, Unioersity of Ulster, Coleraine. I PATRICK A. HALL, B.E., M.S., DIP.STAT., Director of Research, Institute of Public Administration. MICHAEL F. KEEGAN, B.A., B.COMM., D.P.A~, F.I.P.M., Secretary, Department of Labour. I *KIERAN A. KENNEDY, M.ECON.SC., D.PHIL., PH.D., Director of the Institute. T. P. LINEHAN, B.E., B.SC., Director, Central Statistics Office. I P. LYNCH, M.A., M.R.I.A. *EUGENE McCARTHY, M.SC.(ECON.), D.ECON.SC., Director, Trinity ¢ Bank Limited, Dublin. JOHN J. McKAY, B.SC., D.P.A., B.COMM., M.ECON.SC., Chief I Executioe Officer, Co. Cavan Vocational Education Committee. *D. NEVIN, General Secretary, Irish Congress of Trade Unions. REV.J.R.M. NOLAN, M.A., D.D., M.A.(Cantab.), Professor, Department of Logic and Psychology, University College, Dublin. I JOYCE O’CONNOR, B.SOC.SC., M.SOC.SC., PH.D., Director, Social Research Centre, College of Humanities, National Institute for Higher Education, Limerick. I MAURICE O’GRADY, M.SC(MGMT), Director General, Irish Management Institute. D. P. O’MAHONY, M.A., PH.D., B.L., Professor, Department of Economlos, University College, Cork. I PIERCE RYAN, B.AGR., S.C., M.SC., PH.D., M.R.I.A., Director, Teagasc. S. SHEEHY, B.AGR.SC., PH.D., Professor, Department of Applied Agricultural Economics, University College, Dublin. J. SPENCER, B.SC.(ECON.), Professor, Department of Economics, The Queen’s I University, Belfast. T. C. TONER, B.COMM., M.B.A., Chairman, Arnottsple. *B. M. WALSH, B.A., M.A., PH.D., Professor, National Economics of Ireland i and Applied Economics, University College, Dublin. *REV. C. K. WARD, B.A., S.T.L., PH.D.," Professor, Department of Social Sdence, University College, Dublin. *T. K. WHITAKER, M.SC.(ECON.), D.ECON.SC., LL.D. i P. A. WHITE, B.COMM., D.P.A., Managing Director, Industrial Development Authority, Dublin. "Members of Executive Committee, I i I I ! FAMILY, ECONOMY AND I GOVERNMENT IN IRELAND I I ! i | |: I i Copies of this paper may be obtained from The Economic and Social Research Institute (Limited Company No. 18269). Registered O ffTce: Whitaker Square, Sir John Rogerson’s Quay, Dublin 2, Ireland Fa Price ~15.00 (Special rates for students 67. 50) | |, |] I I I I I Dr Finola Kennedy is an economist whose major research areas I are public fmance and social policy. The paper has been accepted for publication by The Economic and Social Research Institute, which is not responsible for either the content or the views I expressed therein. ! i I ! i il I i Reprinted 1991 I I I I FAMIL I1, ECONOMY I AND GO VERNMENT IN IRELAND I I I I I Finola Kennedy I I i I © THE ECONOMIC AND SOCIAL RESEARCH INSTITUTE I DUBLIN 1989 i ISBN 0.7070 0106 4 I |i, I I Acknowledgernents I Many people helped me on the, at times, stony path towards the completion of this study. I would like to thank, in particular, Professor Gary Becker who I not only read and commented on an earlier draft but agreed to write the Introduction. His encouragement was vital¯ Special thanks are due to all the following who read and commented on earlier drafts: I Ms Monica Barnes, T.D., on behalf of the Joint Committee of the Oireachtas on Women’s Rights; Dr John Blackwell, University College Dublin.; Ms Deirdre Carroll, Department of Social Welfare and formerly Office of the Minister for I Women’s Rights and Family Law Reform; Dr Donal Garvey, Central Statistics Office; Professor Damian Hannah, The Economic and Social Research Institute; Mr John Hynes, Department of Social Welfare; Mr Charles Lysaght, Law i Reform Commission; and Mr Noel T. O’Gorman, Department of Finance. Rev. Dr James Kavanagh, Auxiliary Bishop of Dul?lin and former Professor of Social Science in University College Dublin, and Professor Patrick Lynch, former Professor of Political Economy, University College Dublin, both read and I commented on the study¯ The help of Dr Kavanagh and Professor Lynch extends way beyond the confines of this study. They have been ’valued friends for the past twenty-five years since I was first a student of’theirs. I Others who helped me in preparing this’ study are Mr Sean Cromien, Department of Finance; Rev. Dr Liam Careyl Maynooth College, who kindly invited me to give some lectures on the subject of the study, Mr Michael Littleton I of RTE who convinced me that the study might be of general interest, the Venerable Archdeacon Cathal McCarthy, P.E., who gave me a tutorial on Ne Temere, Mr Paddy McDonald of the Central Statistics Office and Professor I Jerry Sexton of The Economic and Social Research Institute. I also received very generous assistance and answers to a variety of questions from many civil servants in the Departments-of Education, Finance, the Environment, Health l and Social Welfare. A very significant contribution to the final shape and content of the study was made by the several anonymous referees. These referees forced me to think out more clearly the direction of, as well as the implements required i for, the research journey. The work would have been impossible without the unfailing help of Ms Mary Prendergast, Librarian, Institute of Public Administration -- her help to me I seems to extend back forever, Mrs Maureen Doran-O’Reilly, former Librarian, The Economic and Social Research Institute, Mrs Maura Rohan, Librarian, The Economic and Social Research Institute, and Ms Elizabeth Gleeson, Law i iv ! ! I ACKNOWLEDGEMENTS Library, Trinity College. Mrs Geraldine MacNamara typed early drafts and Mrs Maria Swords, Mrs Phil Browne, Mrs Pat Hughes and Ms Mary O’Sullivan, I typed the revised drafts. Ms Mary McElhone shepherded the manuscript through the publication process. Ms Florence O’Sullivan and Mr John Roughan gave invaluable help with a number of practical details. Mrs Anne Dunne provided i support and encouragement from start to finish. I am indebted to one and .all. Lastly I would like to thank Kieran and our family. In a special way this work I is for them. i ! ! ! g l ! ! a ! i I CONTENTS i Page I Acknowledgements iv i Introduction by Gary S. Becket xiii ! General Summary ! .Chapter 1: THE FAMILY IN A CHANGING MILIEU 4 | Introduction 4 Nature and Purpose of Study 8 g Economic Change 9 Shift from Agriculture, Emigration 11 Growth of Government 12 Changing Values 14 I Conclusions 22 I 2: CHANGE IN THE FAMILY 23 Definition 23 Family and Society 25 I ,Family and Household in Ireland 25 Marriage 27 Births, Adoption, Abortion 32 I Fertility and Family Size 36 Family Planning 41 The Elderly 42 The European Dimension 44 Conclusions 45 I ’ vii I Chapter Page I 3: WORK AND THE FAMILY 46 Marriage and Econom.ic Development 46 I Women’s Work Where do Women Workin the Work-force? 49 Explanation of Changes in Women’s Activity Rates 51 I Family-Work Models 52 From Farm Work to Urban Jobs as Economic Base of Family Formation 56 I Modern Farm and ModeFn Urban Families 59 Mothers in the Labour Force 60 Work Sharing within the Family 64 I Unemployment and the Fami~ly 65 Conclusions 67 I THE LEGAL FRAMEWORK 68 The Pledge in the Constitution 68 Constitutional Interpretation and Review 70 I Statutory Protection of Spouses and Children 73 Illegitimacy, Children’s Rights 78 Divorce and Separation 80 I Civil Nullity 82 Social Welfare Legislation 83 Agenda for Family Law Reform 84 I Conclusions 86 TAXATION, SOCIAL WELFARE AND THE FAMILY 87 I Development of State Support for the Family 87 Financial Aids for Parents with Dependent Children 89 Tax Allowances 90 i Covenants 97 Children’s Allowances 97 Horizontal and Vertical Equity: ,Taxes and Transfers I Combined 100 Child Dependant Allowances 104 Marriage and Maternity Payments 107 I State Support for Unmarried Mothers, Deserted Wives and their Children 109 Family Income Supplement 111 Pensions 111 I Conclusions 114 viii - I | ! Chapter Page 6: THE IMPACT OF PUBLIC EXPENDITURE ! PROGRAMMES ON THE FAMILY 117 Effects of State Transfers on the Family 117 Horizontal Equity 118 Family Life Cycle 118 ! Vertical Equity 122 Housing 123 Education 128 I Health 133 Conclusions 135 I A FORWARD LOOK 137 Does the Family Need to be Redefined? 139 Pressures on Public Purse due to Family Change 142 i,! State Support -- Direct or Indirect? 145 Family Affairs Unit in Department of Finance 147 Conclusion -- Family-State Partnership 150 BIBLIOGRAPHY 152 H INDEX 165 a I I I I ! ! |,~ I I I LIST OF TABLES Tab/e Page I 2.1 Private Households by Composition, 1986 26 2.2 ’Private Households containing One Family Unit with No Non-Family Members, 1986 27 2.3 Number of Marriages, Marriage Rate and Average Age at I Marriage, 1921-1987 28 2.4 Percentage Single and Ever Married, 1901-86 31 2.5
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