An Bord Snip

An Bord Snip:

Cutting Childhood Short

July 2009

The Children’s Rights Alliance is a coalition of over 90 non-governmental organisations (NGOs) working to secure the rights and needs of children in Ireland, by campaigning for the full implementation of the UN Convention on the Rights of the Child. It aims to improve the lives of all children under 18, through securing the necessary changes in Ireland’s laws, policies and services.

Membership The Alliance was formally established in March 1995. Many of its member organisations are prominent in the children’s sector – working directly with children on a daily basis across the country. The Alliance’s policies, projects and activities are developed through ongoing collaboration and consultation with its member organisations.

Vision Ireland will be one of the best places in the world to be a child

Mission To realise the rights of children in Ireland through securing the full implementation of the UN Convention on the Rights of the Child

This is an in-house publication

For any enquiries or to obtain additional copies of this paper, please contact:

Children’s Rights Alliance 4 Upper Mount Street Dublin 2 Tel: +353.1.662 9400 Fax: +353.1.662 9355 Email: [email protected] Web: www.childrensrights.ie

The Alliance grants permission for the reproduction of quotations from this text, provided due acknowledgement of the source is made and provided such citations do not exceed 400 words in length. This publication may be reproduced in full or in part if accompanied by the following citation: An Bord Snip: Cutting Childhood Short, July 2009.

Contents

1. OVERVIEW 2

1.1 Introduction 2

1.2 Overview Analysis 3

1.3 An Bord Snip Recommendations that Breach Towards 2016 7

2. ANALYSIS BY GOVERNMENT DEPARTMENT 9

2.1 Department of Education and Science 9

2.2 Department of Health and Children 13

2.3 Health Service Executive 14

2.4 Department of Social and Family Affairs 15

2.5 Department of Justice, Equality and Law Reform 16

2.6 Department of Community, Rural and Gaeltacht Affairs 17

2.7 Department of Transport 18

2.8 Department of Arts, Sport and Tourism 18

3. APPENDICES 19

Appendix I: Direct Impact on Children 19

Appendix II: Indirect Significant Impact on Children 20

Appendix III: Alliance Member Organisations 21

Children’s Rights Alliance: An Bord Snip: Cutting Childhood Short, July 2009 1

1. OVERVIEW

1.1 Introduction

The Report of the Special Group on Public Service Numbers and Expenditure Programmes dubbed ‘An Bord Snip Nua’ was published on 16 July 2009. 1 The Special Group sat for six months and was chaired by UCD Economist, Mr. Colm McCarthy. The Group’s mandate was to examine all current Exchequer spending across all Departments and agencies, to see where expenditure and staff savings might be made, in response to the current financial crisis. 2

The Group’s report identifies potential expenditure savings of €5.3 billion, with associated staff reductions of 17,300 in public service numbers.3 The highest staff reductions are in the Department of Education and Science (6,930) and in the Department of Health and Children (6,168).4

Over the coming months, the Government and the Dáil will deliberate on what actions should be taken to address the deficit in public finances — their decisions will be informed by the Group’s recommendations. The Minister for Finance has invited the views and input of all concerned, and referred the Group’s report to the Oireachtas Committee on Finance and General Affairs for discussion prior to the Budget in December. 5

Outline of this Paper Part 1 of this paper begins with a brief analysis of how the Group’s recommendations, if implemented, will impact on children and provides commentary on the key issues as identified by the Alliance. Part 2 contains a summary of the Group’s recommendations, by governmental department and agencies, which directly impact on children. Where relevant, the paper also draws attention to proposed cuts that, whilst not directly related to children, will have a significant impact on their lives and those of their families. There are three appendices, Appendix I ‘Direct Impact on Children’ and Appendix II ‘Indirect Significant Impact on Children’ contain a listing of the cuts outlined in Part 2 and their proposed savings set out in tabular format. Appendix III contains a list of Alliance member organisations.

1 The report of the Special Group was published in two volumes and can be accessed at http://sgps.gov.ie. For brevity, this paper refers to The Report of the Special Group on Public Service Numbers and Expenditure Programmes as ‘An Bord Snip’. 2 Press Statement (16 July 2009) Report of Special Group on Public Service Numbers and Expenditure Programmes, accessible at http://sgps.gov.ie 3 Ibid. 4 Report of the Special Group on Public Service Numbers and Expenditure Programmes, Volume I, p. 3. 5 Press Statement (16 July 2009) Report of Special Group on Public Service Numbers and Expenditure Programmes, accessible at http://sgps.gov.ie

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1.2 Overview Analysis

The recommendations proposed by ‘An Bord Snip Nua’, if implemented, will cut childhoods short. An economic downturn is not an excuse to renege on our commitment to children’s rights. By ratifying the UN Convention on the Rights of the Child in 1992, Ireland committed to vindicate children’s civil, political, social, economic and cultural rights. In times of economic crisis, it is more important than ever that front- line services and supports for children and families be preserved.

The President of Ireland Mary McAleese, addressing a Children’s Rights Alliance symposium in April 2009, spoke powerfully about the impact of the recession on children and childhood. She said: We know that in these difficult economic times, the environment is changing dramatically for children as financial pressure and job losses increase the anxiety levels in their homes. They are not immune. They are not hermetically sealed off from those anxieties. They need our reassurance now more than ever and they need space in which to express what it is they know and what it is we need to hear from them so that we can best protect and vindicate their rights, their childhoods. 6

An Bord Snip had a narrow brief and its report, therefore, presents an incomplete picture. It sets out a menu of proposal cuts to reduce current Exchequer spending. It is merely a desk based economic exercise. The Government’s decision making, however, must be informed by a broader perspective; it cannot be made in a vacuum. The human, social and economic fall-out of any proposed cut must be taken into account. The Government must assess the impact of each proposed cut on children, viewed through a medium and a long term lens, and take decisions that are in children’s best interests.

Decisions must also reflect the reality on the ground for children. That reality includes 76,000 children living in consistent poverty, who must be protected from further impoverishment. 7 It includes one in three children in disadvantaged communities who leave school with literacy difficulties, who must be equipped with life’s most basic skills, those of reading and writing. 8

Income support and public services are critical supports for children to ensure that they reach their full potential. Decent schools, timely access to health and therapeutic services, and proper support for children with special needs are not dispensable for children; they are bread and butter issues. The devastating impact of cuts to children’s services can last a lifetime, they are not just a one-year budgetary saving. Skimp on education; skimp on a child’s wellbeing; and a generation will suffer the effects.

Ireland has a duty to uphold children’s rights, and vindicating children’s rights – through the provision of essential services and supports – makes economic sense. Time and again studies have shown that investment early to support children saves expenditure in more intensive and costly state supports. Cuts now, particularly in education and health services, will prove a false economy in the medium to long term. It does not make economic sense to roll back on valuable progress. Furthermore, the Alliance cautions that children did not cause the economic crisis and should be spared the pain.

The Alliance fully acknowledges that the country faces a very grave deficit in its public finances; and that the economic crisis presents difficult policy and budgetary choices. Furthermore, we acknowledge that our public services are in need of reform, and we welcome An Bord Snip’s positive recommendations to bring about reform and improve services.

6 Remarks by President McAleese at the Children's Rights Alliance Biennial Symposium, Dublin Castle, 2 April 2009 http://www.president.ie/index.php?section=5&speech=637&lang=eng Accessed 27 July 2009; and Children’s Rights Alliance, Are We There Yet? Are We There Yet? Are We There Yet?: Report of a Symposium on Children’s Rights in Ireland , prepared by Carmel Corrigan, p. 20. 7 This figure represents 7.4% of all children. See Central Statistics Office (2008), EU Survey on Income and Living Conditions (EU- SILC) 2007. 8 E. Eivers, G. Shiel and F. Shortt (2005), Literacy in Disadvantaged Primary Schools: Problems and Solutions, Dublin: Education Research Centre, p. 6.

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Proportion of the proposed savings that impact on children Overall An Bord Snip’s recommendations have a disproportionate impact on children. Over one sixth of all the savings proposed will directly affect children’s services. Of the more than 1 million children in Ireland, An Bord Snip would cut spending by €853.6 million (that’s €823.91 per child). This is too high a price to ask children to pay.

This is in addition to a cut of €425.7 million from disadvantaged groups, which will have a significant impact on children growing up in poorer families. Thus the total impact – directly on children and those in disadvantaged families – amounts to almost €1.28 billion, one quarter of the total proposed cuts. This is unacceptable.

Whilst some of these cuts will result in reform that will benefit children, others will have a negative, deep and life-long impact on children. Better off families will be able to cushion their children from the effects of the cuts (through purchasing good and services), other families will not. Children in poor or unemployed families, children from Traveller or migrant communities, and children with disabilities or special needs will suffer most.

Specific Areas of Concern: basic structures to support children Child Benefit The Alliance is firmly opposed to any changes in the Child Benefit payment. This payment is a clear statement by the Irish State that it values all children in Ireland equally. Particularly now, in difficult and uncertain economic times, a non-stigmatising, regular, reliable and easy to access payment to families with children is of critical importance. Cutting, taxing or means-testing Child Benefit undermines the principles of universalism, horizontal distribution and recognition of the extra costs associated with having children. A blanket cut would hit the poorest families hardest, while taxing or means-testing the payment would generate huge administrative costs, and risk triggering mass political discontent. Government would be well-advised to seriously reconsider its decision to change the nature of the Child Benefit payment. The Alliance challenges whether the costs, economic and social, will outweigh any potential savings.

Office of the Ombudsman for Children The Office of the Ombudsman for Children was established in 2004 (following a long campaign by the Children’s Rights Alliance and others dating back to 1995) with a specific remit to promote and protect the rights of children in Ireland. In 2006, the UN Committee on the Rights of the Child welcomed the establishment of the Office. 9 The UN Committee has recommended that to ensure the independence and effective functioning of an office of ombudsman for children, it should have adequate infrastructure, funding (including specifically for children’s rights, within broad-based institutions), as well as staff and premises, and be free from forms of financial control that might affect their independence. 10 In 2001 the Alliance set out the powers it felt that the Office of the Ombudsman for Children should have. 11 We believe these functions are as relevant today as they were eight years ago (even more so); and they must be maintained.

False Economies Any immediate action must also prove to be a smart use of resources in the medium to long-term. Now is not the time for quick fix solutions, which are costly to set up and administer, and may be damaging in the long run. Budgetary decisions must consider whether the costs – economic and social – will outweigh any potential savings. For example:

9 CRC/C/IRL/CO/2 29 September 2006 10 UN Committee on the Rights of the Child, General Comment No. 2 (2002) http://www.unhchr.ch/tbs/doc.nsf/(symbol)/CRC.GC.2002.2.En?OpenDocument 11 ‘Children’s Rights Alliance calls for the establishment of an Office of Ombudsman for Children without further delay’, News Release, 18 December 2001 http://www.childrensrights.ie/files/150-PR-OCOOfficeWithoutDelay181201.pdf Accessed 24 July 2009.

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Rural Schools • Is our vision for rural Ireland to close rural small primary schools and bus children (some as young as four years of age) to and from nearby towns? Is the cost of expanding medium-sized schools to cater for the additional children coming from smaller schools a smart use of money when so many schools are waiting – many for years – to be built or repaired? Would it not make more economic and social sense to explore how existing small primary schools could be better used by their communities?

School Transport • Access to good quality public services is critically important for families struggling on low incomes. An Bord Snip recommends the abolition or reduction of the state subsidy for the School Transport Scheme, including removal of free school transport to children with special needs. Huge progress has been made to ensure children with disabilities have a right to education and are supported to reach their full potential. What message does it send to their families, who already bear additional costs associated with their child’s disability, if this vital public support is withdrawn?

Short term gain, long term pain An Bord Snip fails to explore the medium or long term-impact of its proposed cut. Making decisions solely on the basis of saving money in the here and now, with little or no regard for the future, is a dangerous strategy.

Education • A lack of investment in education will prove less effective in the long-run in promoting social skills, improving the life chances of children born in disadvantaged communities, and in reducing criminal activity. Our economic recovery is only possible with a well educated workforce. • Reducing a school’s capitation grant, making classes bigger and cutting the numbers of Special Needs Assistants may save money, but it will restrict the school’s ability to provide quality education to children and will mean that those children who need support most will not get it. Their education will suffer, and many will become reliant on the state for support in adulthood. • Language supports for non-English speaking children new to Ireland is the key to integration. If we fail these children at this point in their lives, it will dictate their chances for the future hindering their education and their ability to integrate into our communities.

Mental Health • Addressing child and adolescent mental health difficulties is not only the right thing to do but it also makes economic sense. Mental health problems do not solve themselves. A budget saving now will require expenditure ten-fold in the future – with demands on the adult mental health services, alcohol and drug addiction, unemployment due to early school leaving and involvement in criminal behaviour. There is no excuse not to invest in preventative, early intervention and treatment for children and adolescent mental health services.

Incomplete or limited analysis The Alliance is concerned by the lack of analysis accompanying some of the proposals. For example:

Youth Justice • An Bord Snip criticises the high ratio of staff in youth detention centres. No information is provided on international best practice in terms of staff ratio for such centres. The commentary ignores the particular nature of these centres, which provide 24-hour care and support to highly vulnerable children – which requires highly trained staff with a range of skills and expertise. An Bord Snip has taken a myopic look at the cost of this service, and ignored its value and necessity.

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Joined-up thinking Decisions must reflect joined up thinking – a necessary prerequisite for effective and efficient public services. For example,

Environment and Health • An Bord Snip recommends the discontinuation of Department of Transport funding for the Green Schools Initiative (SGI). Abandoning initiatives to encourage children to walk and cycle to school must be challenged on environmental and health grounds. A small saving now will come back to haunt us in future years. For example, there are currently 300,000 children in Ireland who are obese; and this figure is increasing at a rate of 10,000 per year. Obesity is a public health time bomb that already costs the Irish health service an estimated €0.4 billion each year. All trends indicate that this cost is set to increase. Failing to address this problem urgently will be regretted in years to come.

Unintended Consequences Each proposal must be reviewed to ensure that it does not create unintended negative consequences. For example:

Health Inequality • The introduction of further charges for access to health services (Drug Treatment Purchase Fund, A&E Departments and inpatient charges) may force parents on low incomes to think twice before taking a sick child to the hospital. It is a failed society that cannot ensure all its children have unfettered access to public health services.

Poverty traps Each proposal must be reviewed to ensure that it does not create further poverty or unemployment traps. For example: • An Bord Snip recommends abolishing the third qualifying band for the National Childcare Investment Programme. This means that parents on low incomes (but not on social welfare or the Family Income Supplement) will no longer qualify for financial subsidies for childcare. Yet these parents should be encouraged, not penalised for, staying at work. If implemented this recommendation will create a poverty trap, whereby being unemployed makes more financial sense than continuing in work.

Other Areas Covered by An Bord Snip This paper has attempted to keep its focus specifically on the impact on cuts to services, or agencies, supporting children. The paper draws attention to other cuts in the area of family income, supports or agencies that would impact significantly on children, especially those living in disadvantaged or socially excluded households.

Whilst not a focus of this paper, the Alliance believes that the proposed cuts for those on social welfare or low incomes and those living in disadvantaged areas will undoubtedly have a significant and real impact on children. Furthermore, the proposed cuts in the equality and gender sector and the justice system will impact on all in society, including children. For example, An Bord Snip recommends the abolition of the Law Reform Commission as a permanent body (saving 2.8m). Such an action would be short-sighted given the need for societal and professional understanding of how best to reform our legal system, including the area of child law.

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1.3 An Bord Snip Recommendations that Breach Towards 2016

Several of An Bord Snip’s recommendations breach commitments in Towards 2016, the National Social Partnership Agreement in relation to children.12

Class Sizes An Bord Snip recommends increasing the staffing schedule to 29 teachers per mainstream primary class. • T2016 commits to a staffing schedule of 27 pupils per class as of September 2008. T2016 also notes that this measure will help ensure progress towards reaching the Lisbon target of reducing early school leaving by 10% by 2010.

Special Needs Support An Bord Snip recommends a reduction in the number Special Needs Assistants (SNAs) by up to 2,000 (20%), reducing the overall number of SNAs to 8,500. • T2016 has committed to “increased provision of services for those with special educational needs”; 13 and to “development of special educational needs services in the framework of the Education for Persons with Special Educational Needs Act…”. 14

English Language Support From September 2009, following changes announced in Budget 2009, there will be 1,500 language support teachers in the education system. An Bord Snip recommends a reduction in English language support teachers to 500. • T2016 commits to an additional 550 language support teachers by 2009 (which would have brought the number of language support teachers up to approximately 2,500). T2016 also commits to lifting the limit of two language support teachers per school.

Green Schools Initiative An Bord Snip recommends the discontinuation of Department of Transport funding for the Green Schools Initiative. • T2016 commits to developing the pilot phase of the Safer Routes to School scheme with a view to rolling it out nationally. (The Safer Routes to School has been renamed the Green-Schools Travel Initiative and integrated into the Green-Schools Programme).

Family Support Agency An Bord Snip recommends that the Family Support Agency be discontinued. • T2016 commits to the “development and delivery of Family Support initiatives to further develop and strengthen child welfare and protection services as part of a national policy for child support.” 15

Youth Justice An Bord Snip recommends that staffing levels in the Irish Youth Justice Service be reduced by 20% (specifically in the ‘detention centres’) and a reduction of non-pay allocations by 10%. • Youth justice staffing levels are not directly covered in T2016 but a weakening of the Youth Justice Service would go against the spirit of the agreement and its commitments to strengthen the Service.

12 Department of An Taoiseach, Towards 2016: Ten Year Framework Social Partnership Agreement: 2006-2015 , Dublin: Government of Ireland. 13 Ibid., p. 31. 14 Ibid., p. 44. 15 Ibid., p. 46.

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Community and Voluntary Sector Supports An Bord Snip recommends that Government supports to Community and Voluntary sector (administered through the Department of Community, Rural and Gaeltacht affairs) be reduced by €10m annually. • Specifically , T2016 commits to increasing funding of €10m per annum to support the C&V sector, including the costs arising from contributing to evidence based policy making, over and above normal activities and programmes. T2016 also outlines Government’s commitment to “appropriately resourcing the sector into the future as part of this agreement (…) The Government also remains committed to the White Paper principle of providing multi-annual statutory funding.”

Child Benefit An Bord Snip recommends reducing Child Benefit to a standard rate of €136 per month for all children. This is a reduction of €30 per month for the first two children and €67 per month for each subsequent child. • Changes to the rate of the Child Benefit payment must not impact on the T2016 commitment to maintaining the combined value of child income support measures at 33-35% of the minimum adult social welfare rate.

National Educational Psychological Service (NEPS) An Bord Snip recommends a halt in recruitment of NEPS psychologists. • T2016 commits to providing an additional 100 posts to the NEPS and the NEWB by 2009. It is understood that this is 60 posts to NEPS and 40 posts to the NEWB. It is not clear if NEPS has to- date reached its full complement of staff, which can deliver its service to children in all schools. An Bord Snip proposed recommendation to halt NEPS recruitment must not breach the T2016 commitment.

National Education Welfare Board (NEWB) An Bord Snip recommends that the NEWB be subsumed into the Department of Education and Science. • Administrative change to the NEWB must not impact on the T2016 commitment to provide 100 new posts between the NEWB and the NEPS (40 in the NEWB).

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2. ANALYSIS BY GOVERNMENT DEPARTMENT

2.1 Department of Education and Science

The Department of Education and Science currently has a Budget of €9.5 billion. An Bord Snip recommends cuts to the value of €746 million in the Department, 7.9% of its total annual expenditure. These cuts would mean a loss of 6,930 staff across the Department and its agencies.

Administration: Educational Services National Educational Psychological Service • An Bord Snip recommends that additional recruitment to the National Education Psychological Service (NEPS) be suspended. Budget 2009 increased funding to NEPS to ensure that every school would have access to a NEPS psychologist. (Savings: €1.4m)

Department of Education and Science Inspectorate • An Bord Snip recommends that the Inspectorate’s Budget be cut by €1.2m. This would mean fewer school inspectors, though it suggests this could be addressed by changing inspection practices. (Savings: €1.2m)

First Level Education Class Sizes • An Bord Snip recommends that class sizes at primary level be increased to 29:1. Teacher allocations are decided based on a ‘staffing schedule’ (the number of pupils required to qualify for an additional teacher). The current staffing schedule in primary schools is 27:1 (one teacher for every 27 pupils). This is set to increase to 28:1 from this September based on Budget 2009. (Savings: up to €10m in year change is introduced and up to €30m each year thereafter)

Number of Primary Schools • An Bord Snip recommends that the overall number of primary schools be reduced. There are 659 schools with fewer than 50 pupils and 851 schools with 50 to 100 pupils. An Bord Snip recommends that these schools be amalgamated so that teacher numbers can be reduced and efficiencies created. (Savings: Merging schools with fewer than 50 teachers: 300 teachers or about €18m annually in salary costs; merging schools with 50-100 teachers: a further 200 teachers and €9m annually. 16 Both options would decrease costs in school maintenance. It is noted that these savings would be made in the medium rather than short term and that some costs would be off-set by additional costs from the change such as school accommodation and transport)

Capitation Grant: Money per Pupil • An Bord Snip recommends that capitation grants to primary schools are reduced by 10% in 2010 and by a further 10% in 2011, bringing capitation levels back to 2007 levels. Capitation grants are provided to schools to cover the cost of running the school. (Savings: €25m annually)

16 Total savings amount to €27 million. However, the Report (and replicated in Appendix I) cites a total figure of €25m, it is understand that this is as an estimate of total savings over a three to four year period.

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Second Level Education Class sizes • An Bord Snip recommends that class sizes at post-primary level be increased to 20:1 in September 2010. Teacher allocations are decided based on a ‘staffing schedule’ (the number of pupils required to qualify for an additional teacher). The current staffing schedule at post-primary level is 18:1 (one teacher for every 18 pupils). This is set to increase to 19:1 from this September based on Budget 2009. (Savings: €50m after two years)

Capitation Grant: Money per Pupil • An Bord Snip recommends that capitation grants at post-primary level be reduced by 10% in 2010. Capitation grants are provided to schools to cover the cost of running the school. (Savings: €10m in 2010)

Fee-paying schools • An Bord Snip recommends that, in principle, fee-paying schools should be required to meet a higher proportion of their own costs. It recommends a reduction of 25% in the state subsidy provided to fee-paying schools. (Savings: €25m annually when fully implemented. Schools themselves would have to raise their fees by approx 21% to cover the loss in subsidy)

Vocational Educational Committees (VECs) • Second Level: An Bord Snip recommends the amalgamation of City and Country VECs from a total of 33 to 22, and their alignment with the functional areas of Local Authorities. (Savings: €3m)

First and Second Level Education Special Needs Support • An Bord Snip recommends a reduction in the number of Special Needs Assistants (SNAs) by up to 2,000 (20%), reducing the overall number of SNAs to 8,500. There are about 10,500 SNAs working directly with children with special educational needs in Irish schools. (Savings: 2,000 jobs and up to €60m annually)

English Language Support • An Bord Snip recommends that the number of language support teachers is progressively further reduced by 1,000. This will leave 500 language support teachers in Irish schools by September 2010, compared with 2,200 in June 2009. (Savings: 1,000 jobs and €7m in 2010, rising to over €21m in a full year)

Support for the Teaching of Irish • An Bord Snip recommends that An Comhairle um Oideachas Gaeltachta agus Gaelscolaíochta (COGG) be abolished, and that its functions be absorbed into the Department of Education and Science. COGG provides policy advice, support services and resources to support teaching and learning of Irish in schools. (Savings: €0.3m in administration costs and €0.9 in funding for provision of texts and resources)

Staffing Efficiencies • An Bord Snip recommends a number of changes to address the high level of inefficiency which it notes exists in the primary and post-primary sector as a result of under-use of resources. It comments that many of these inefficiencies arise from working terms, conditions and practices for teachers which are restrictive when compared to norms elsewhere in the public and private sectors.

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o Increase total statutory working time to provide for activities such as school planning, supervision, in-service and parent/teacher meetings. o Reform existing practices relating to: supervision and substitution cover, sick leave arrangements, in-service provision, teaching hours, management allowances and summer courses (Savings: Substitution arrangements: minimum of €100m annually (or one third of existing cost). Management allowances: €50m annually. Substitution cover to replace teachers absent on sick leave and other approved absences, such as career development and official school business: €300m annually)

Third Level Sector Teacher Training Colleges • An Bord Snip recommends that the figure of 1,900 teachers who graduate annually from five teacher training colleges be reduced, based on predictions of pupil numbers in 2010, 2011 and 2012. It recommends that the allocation of funding to teacher training colleges should be reduced by €5m in 2010. (Savings: €5m annually)

Other Services School Transport • An Bord Snip recommends that a greater contribution should be made by parents to the School Transport Scheme. It recommends that 50% of the cost of providing the service (approximately €500) be paid per annum per child. Social welfare recipients would be entitled to exemptions. An Bord Snip also recommends that this fee apply to pupils with special needs, who currently qualify for free school transport. Finally, it recommends that a means test be considered for pupils that may be able to cover the whole cost, rather than 50%, of school transport. The School Transport Scheme is a major transport operation which brings 135,000 pupils to and from primary and post- primary schools every day. Providing this service costs between €1,000 and €1,450 per year per pupil, and it is subsidised by the State. Primary pupils travel free and post-primary pupils pay a €300 annual fee. (Savings: approximately €29m annually, or €25m if a maximum charge per family were introduced)

Teacher Training and Education Centres • An Bord Snip recommends the closure of part-time Teacher Training and Education Centres and/or the amalgamation of centres. This programme was allocated €30m for 2009, to cover in-career development for teachers and the running of 21 full-time and 9 part-time Education Centres. (Savings: €12m annually)

National Education Welfare Board • An Bord Snip recommends that the work of the National Education Welfare Board (NEWB) be absorbed into the Department of Education and Science, as its work is central to the Department. The NEWB is the national body responsible for school attendance. (Savings: €0.5m on board membership fees, professional fees and support costs).

National Council for Special Education • An Bord Snip recommends that National Council for Special Education (NCSE), be merged into the Department of Education and Science, and coordinate its work more closely with the National Educational Psychological Service (NEPS). The NCSE aims to provide improved education services to students with special educational needs. (Savings: €0.3m annually)

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National Council for Curriculum and Assessment • An Bord Snip recommends cuts in expenditure in research, publication costs and staff development at the National Council for Curriculum and Assessment (NCCA). The NCCA advises the Minister on matters relating to early childhood and school curriculums. (Savings: €0.8m overall)

Specific focus on communities experiencing severe drugs misuse; will have a significant impact on children in those communities:

Local Drugs Task Force Projects • An Bord Snip recommends a reduction in the allocation of funding to certain Local Drugs Task Force (LDTF) Projects. (Savings: €1.0m)

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2.2 Department of Health and Children

An Bord Snip identifies potential annual savings in the Department of Health and Children of €1,229.5 million and proposes that staffing numbers be reduced by 6,168 positions. An Bord Snip makes a number of recommendations to enhance the efficiency of health care administration. In particular, it recommends that the staffing complement of the Department of Health be reduced by 10% a year for the next three years. The Department’s budget includes the Office of the Minister for Children and Youth Affairs (OMCYA). Most of the cuts and staff reductions in the Department of Health and Children are identified within the Health Service Executive (HSE) (See Section 2.3).

Agency rationalisation Office of the Ombudsman for Children • An Bord Snip recommends the merging of the Office of the Ombudsman for Children, the Office of the Data Protection Commissioner and the Office of the Commission for Public Service Appointments with the Office of the Ombudsman/Information Commissioner, in a newly- constituted Ombudsman Commission. (Savings: €0.3m in relation to the budget of the Office of the Ombudsman for Children.)

• In addition, the Group identifies scope to cut 6 staff members as a result of a merger of the Office of the Commission for Public Service Appointments with the Office of the Ombudsman. • Staff grading at the Ombudsman Office to be re-visited and investigative functions undertaken at lower grading levels.

National Childcare Investment Programme (NCIP) • An Bord Snip recommends the abolition of the transitional provisions and the third qualifying band for the National Childcare Investment Programme (NCIP). If the third band were removed, families on low incomes (but not on social welfare or in receipt of Family Income Supplement) will no longer qualify for NCIP. (Savings: €7m)

City and County Childcare Committees • An Bord Snip recommends that City and County Childcare Committee be merged into a single local authority level organisation. In order to reduce overheads, the 33 City and County Childcare Committees are at present the first point of contact for the public in applying for grant assistance under the NCIP and offer a wide variety of services, including advice on setting up a childcare business, training courses for those considering a career in childcare and advice and support on applying for a grant under the National Childcare Investment Programme (NCIP). (Savings: €3m)

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2.3 Health Service Executive

The Health Service Executive (HSE) is the national body responsible for actual provision and delivery of health and personal social services. The HSE accounts for €15,010 million of expenditure by the Department of Health and Children. An Bord Snip recommends cuts to the value of €1,188.3 million to the HSE, along with staffing reductions of 6,000.

The Alliance welcomes the recommendation by An Bord Snip that the HSE’s ‘Children and Families’ should not be cut. This programme comprises the HSE’s child protection system, supports for children and families at risk, and services for children in care. It comments that: The opportunity costs of not responding appropriately could be significantly higher over the medium/long term (through possible legal action and through societal costs). This Programme accounts for total gross expenditure of €582m in 2009 but it would be a false economy to seek savings in an area where the financial requirements stem from legal obligations that the courts can impose. 17

It is particularly important that this budget is protected (and increased) to enable the full implementation of the recommendations from the ‘Ryan Report’, as set out in the Office of the Minister for Children and Youth Affair’s Implementation Plan , published in July 2009. 18

Specific focus on health, disability and mental health services; will have a significant impact on children:

Disability and Mental Health • An Bord Snip recommends the introduction of measures to achieve greater efficiencies in the non- government agencies and organisations in receipt of State funding for disability and mental health. The Group recommends greater use of shared services, improved administrative efficiency and sharing of professional and clinical staffing resources by such voluntary bodies. It is unclear from the Report how the group envisages these savings working in practice. (Savings: €50m)

Medical Card Scheme • An Bord Snip recommends revising the income guidelines to the basic rate of social welfare (Jobseekers Allowance), so that all existing non-medical allowances and HSE discretion are removed and replaced with a variable allowance based on medical needs. (Savings: 100m)

Other Primary Care • An Bord Snip recommends that an increase to €125 be added to the monthly threshold for the Drugs Payment Scheme and a system of co-payments of €5 be introduced for each prescription under the Medical Card and Long-Term Illness Scheme. (Savings: €107m)

Hospital Charges • An Bord Snip recommends that the standard charge for those presenting at A&E Departments without a letter from their General Practitioner be increased to €125 for non-medical card holders. This was already increased from €66 to €100 in Budget 2009. Furthermore, An Bord Snip recommends that public hospital inpatient charges be increased by 20%. This was already increased from €66 to €75 per night in Budget 2009. (Savings: €6m)

17 Report of the Special Group on Public Service Numbers and Expenditure Programmes, Volume II: Detailed Papers , page 136. 18 Office of the Minister for Children and Youth Affairs (2009) Report of the Commission to Inquire into Child Abuse, 2009: Implementation Plan. Available at http://www.omc.gov.ie/viewdoc.asp?DocID=120

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2.4 Department of Social and Family Affairs

The Department of Social and Family Affairs currently has a Budget of €21.27 billion, €10.32 billion of which is charged to the Social Insurance fund. Of this budget, €3.38 billion is spent on ‘Children and Families’. An Bord Snip recommends cuts to the value of €1.85 billion to the Department; and specifically cuts of €563 million to ‘Children and Families’.

Children and Families Child Benefit • An Bord Snip recommends reducing the Child Benefit payment to a standard rate of €136 per month for all children. This is a reduction of €30 per month for the first two children and €67 per month for each subsequent child. Child Benefit is a regular payment targeted at children and paid to parents. It is paid at €166 per month for the first and second child and €203 per month for third and additional children. This amounted to €2.5 billion, 12% of all social welfare spending in 2009. (Savings: €513m annually)

Family Income Supplement • An Bord Snip recommends that claimants receiving a primary social welfare payment (listed below) should not also be entitled to Family Income Supplement (FIS). FIS is a weekly payment for parents at work on low pay. It aims to encourage parents to work when they may be only marginally better off than if they were receiving Social Welfare. FIS may be claimed by parents who also receive the One Parent Family Payment, Deserted Wife’s Benefit, Widow or Widower’s Contributory Pension, and the Disability Allowance or Blind pension. (Savings: €20m annually)

Family Support Agency • An Bord Snip recommends that the Family Support Agency (FSA) and most of its programme be discontinued. The FSA provides a Family Mediation Service; it also supports the Family and Community Resource Centre Programme, voluntary organisations and individuals involved in counseling, and undertakes research on family issues. An Bord Snip questions the effectiveness of the FSA. It does recommend, however, that a proportion of community and voluntary funding should be retained and unified with other state funded community and voluntary programmes to provide more effective targeting and coherent administration. The report does not state what proportion of funding should be retained. (Savings: €30m annually)

Focus on poverty; will have a significant impact on children:

Rent Supplement Payment • An Bord Snip recommends further work to introduce greater differentials in the Rent Supplement payment on a regional basis; it also recommends that a six month limit be introduced for eligibility for the payment. After six months, claimants should be moved onto the Rental Accommodation Scheme (RAS). The Rent Supplement is a short term income support to assist those eligible with the cost of private rented accommodation. The Supplementary Budget 2009 introduced changes to the Rent Supplement, which significantly reduced its value. (Savings: €35m annually)

Exceptional Needs Payments • An Bord Snip recommends that the Exceptional Needs Payment should not be made for furnishing local authority homes, as local authorities should be responsible for this. Exceptional Needs Payments are single payments to help meet essential, once-off expenditure, which a person could not reasonably be expected to make from their weekly income. (Savings: €18m annually )

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2.5 Department of Justice, Equality and Law Reform

The Department of Justice currently has a Budget of €2,576 million; this accounts for the Department, An Garda Síochána, Prisons, Courts and the Property Registration Authority. An Bord Snip identifies savings of at least €136 million in a full year in the Department of Justice, and recommends cutting 540 of the 10,000 staff that are spread across the Department and its associated agencies.

Youth Justice Service • An Bord Snip recommends that staffing be reduced by 20% (60 staff) across the entire Irish Youth Justice Service, and specifically in the ‘detention centres’.19 – reducing the staff/child ratio significantly within these centres – and a reduction of non-pay allocations by 10%. (Savings: €6.1m)

Specific focus on integration, equality and disability; will have a significant impact on children:

Office of the Minister for Integration • An Bord Snip recommends the abolition of the Office of the Minister for Integration. It is envisaged instead that each individual Department would report on its own promotion of cultural integration efforts. (Savings: €1.5m)

Equality Organisations and Projects • An Bord Snip recommends cuts in the areas of national women’s organisations, equality proofing, Cosc (The National Office for the Prevention of Domestic, Sexual and Gender-based Violence) and equality monitoring and associated consultative committees. (Savings: €1m)

Disability Functions • An Bord Snip recommends transferring the disability functions of the Department of Justice to the Office for Mental Health & Disability under the aegis of the Department of Health & Children. (Savings: €2.6m)

19 The report refers to ‘youth detention centres’ we presume this is a reference to the four Children Detention Schools.

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2.6 Department of Community, Rural and Gaeltacht Affairs

Specific focus on disadvantage, local and community issues; will have a significant impact on children:

The Department of Community, Rural and Gaeltacht Affairs currently has a Budget of €476.2 million. An Bord Snip recommends that the Department be closed and its functions distributed to other areas. As part of this process it recommends cuts to the value of €151.1 million to the Department.

RAPID Programme • An Bord Snip recommends that RAPID (Revitalising Areas by Planning Investment and Development Scheme) be discontinued, commenting that it considered its interventions to be minor. RAPID is an initiative targeted at the 51 most disadvantaged areas in the country. (Savings: €7.5m)

Community and Voluntary Sector Supports • An Bord Snip recommends that allocations to this programme to support to the Community and Voluntary sector be reduced by €10m annually. These include contracts for the National Community and Voluntary Organisations and Supports for Volunteering; and are administered by the Department of Community, Rural and Gaeltacht Affairs. (Savings: €10m annually)

Local and Community Development Programmes • An Bord Snip recommends that Partnerships and Volunteer Centres structures be merged with County Childcare Committees. These include the Local Development Social Inclusion Programme and the Community Development Programme. An Bord Snip is of the view that there is little evidence of positive outcomes for these initiatives and that their structure is unsuitable. (Savings: €44m as a result of savings from re-structuring and reduction in number of funded products)

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2.7 Department of Transport

The Department of Transport has a budget of €3,103 million for 2009. An Bord Snip recommends cuts in the Department to the value of €127.1 million in a full year, or 18% of gross expenditure. The report notes that this is a conservative estimate, as it is not possible at this point to cost some of the recommended actions.

Green Schools Initiative • An Bord Snip recommends the discontinuation of the Green Schools Initiative; and commented that alternative, cheaper ways to achieve the outcome sought should be pursued. The Green-Schools Travel Initiative, previously known as the Safer Routes to Schools scheme, is part of the GSI. (Savings: €2m per annum)

Specific focus on rural transport; will have a significant impact on children:

Rural Transport Programme • An Bord Snip recommends that the Rural Transport Programme be discontinued. (Savings: €11m)

2.8 Department of Arts, Sport and Tourism

The Department of Arts, Sports and Tourism has a budget of €540 million for 2009. The Department is responsible for the continued development of the tourism sector; for overseeing sports capital investment and formulating sports policy, and for enabling the national cultural institutions to preserve, present and protect Ireland’s heritage and cultural assets. An Bord Snip recommends cuts of €104.8 million for 2010, which will yield annual savings of €85.5 million, or 21.1% of the Department’s budget. An Bord Snip also recommends reducing staff numbers by at least 170 across the Department and its agencies. The report also suggests that consideration be given to discontinuation of the Department in its own right, and the transfer of its responsibilities to other Departments.

Specific focus on arts, sports and tourism; will have a significant impact on children:

• An Bord Snip recommends a reduction in grants in the area of sports and the arts, including a proposed reduction in grants to the Sports Council (17.7m), as well as a reduction of allocation for the Arts Council (6.1m) and the discontinuation of Culture Projects (5.3m) and Culture Ireland (4.6m). (Savings: €33.7m)

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3. APPENDICES

Appendix I: Direct Impact on Children Depart. Cut Recommended Estimated Savings Staff in Millions (Euro) 20 Cuts DES First Level: In crease staffing schedule from 28 :1 to 29:1 30.0 21 DES First Level: Merge schools with fewer than 100 pupils to achieve pupil 25 .0 22 500 teacher ratio of schools with 100-200 pupils DES First Level: Reduction in numbers of Special Needs Assistants (SNAs) 60.0 2,000 DES First Level: Reduction in numbers of English language support teachers 21.0 1,000 DES First Level: Reduction of capitation grant by 10% in 2010 and 10% in 2011 25.0 DES Second Level: Amalgamation of City and C ountry VECs from 33 to 22 and 3.0 aligned with functional areas of Local Authorities DES Second Level: Increase staffing schedule of non fee-paying schools 50.0 23 DES Second Level: Reduce state s upport for fee -paying schools 25.0 24 DES Levy school transport scheme by mean s test and at 50% of cost for those 29.0 25 with special needs DES Suspend National Education Psychological Service (NEPS) recruitment 1.4 DES Reduce allocation to Inspectorat e 1.2 DES Absorb National Educati on Welfare Board (NEWB) into Department 0.5 DES Absorb National Council for Sp ecial Education (NCSE) into Department 0.3 DES Reduce spend of National Council for Curriculum and Assessment (NCCA) 0.8 on research, publications and staff development DHC Merge Ombudsman for Children Office with office of the Ombudsman 0.3 DHC Abolish the transitional provisions for the National Childcare Investment 2.0 Programme (NCIP) DHC Abolish third qualifying band for NCIP for low income families 5.0 DHC Merge City and County Childcare Committees into a single local authority 3.0 level to reduce overheads structures DSFA Child Benefit reduction of €30 per month for first two children and €67 513.0 per month for each subsequent child DSFA Discontinue Family Support Agency. Retain and unify a proportion of 30.0 community and voluntary funding for more effective targeting of resources DSFA Reduce Family Income Supplement el igibility for primary social welfare 20.0 payment recipients DJE&LR Reduce staffing levels in Irish Youth Justice Service, specifically in youth 2.5 60 detention centres, by 20% DJE&LR Reduce non -pay allocations by 10% within the Irish Youth Justice Service 3.6 DT Discontinue the Green Schools Initiative 2.0 Total 853.6 3,560 Total per child = €823.91 (if proposed cuts were implemented, total children in Ireland: 1,036,034.)

20 Per annum, unless otherwise indicated. 21 €10m in the year the change is introduced and an annual saving of up to €30m after that. 22 This figure of €25m would appear to be an estimate to be saved over a 3 to 4 year period (see also section 2.1). 23 The time period indicated for this saving is two years. 24 Phased over several years. 25 Levying of school transport charges could reduce the Exchequer subsidy by up to €29m annually. However, if a new maximum family charge were to apply, this level could reduce to about €25m.

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Appendix II: Indirect Significant Impact on Children

Cuts in these areas may not directly affect all children but would have a significant impact on those children in families or situations who are already disadvantaged or vulnerable:

Depart . Cut Recommended Estimated Savings in Millions (Euro) DES Reduce allocation to certain Local Drugs Task Force (LDTF) Projects 1.0 HSE Medical Card Scheme: Revise income guidelines to basic rate of social welfare 100.0 (Jobseekers Allowance), so all existing non-medical allowances and HSE discretion is removed. Replace with variable allowance based on medical needs HSE Intr oduce greater efficiencies in non -government agencies and organisations in 50.0 receipt of funding in the arena of disability and mental health HSE Increase to €125 the threshold for Drugs Payment Scheme and introduce a 107.0 system of co-payments of €5 for prescriptions under Medical Card and Long- Term Illness Scheme HSE Increasing Hospital Charges to A&E without a GP letter to €125 and increase 6.0 public hospital inpatient charges by 20% DSFA Re -examine rent supplement level and reduce the time on ren t supplement 35.0 DSFA Legislate for and reduce the eligibility for Exceptional Needs Payments 18.0 DCR&GA Discontinue Revitalising Areas by Planning Investment and Development (RAPID) 7.5 (targets disadvantaged areas through minor interventions) DCR&G A Decrease allocations for community and voluntary supports 10.0 DCR&GA Decrease allocations to Local & Community Development Programmes . Merge 44.0 partnership and volunteer centre structures with County Childcare Committees DJE&LR Abolish the Office of the Minister for Integration 1.5 DJE&LR Reduce funding to equality organisations and projects, including national 1.0 women’s organisations, equality proofing and monitoring and gender-based violence DAS&T Reduction in grants to Sports Council (17.7m), Arts Council (6.1m), 33.7 discontinuation of Culture Projects (5.3m) and Culture Ireland (4.6m). DT Discontinue Rural Transport Programme 11.0 Total 42 5.7 Total per child = €410.89 (if proposed cuts were implemented, total children in Ireland: 1,036,034.)

Total Direct and Indirect Significant Impact on Children = €1.2793 billion Total per child = €1,234.81

Table: Key to Government Departments Acronym Fu ll Department Name DES Department of Education and Science DHC Department of Health and Children (including the Office of the Minister for Children and Youth Affairs DSFA Department of Social and Family Affairs DJE&LR Department of Justice, Equality an d Law Reform DCR&GA Department of Community, Rural and Gaeltacht Affairs DAS&T Department of Arts, Sport and Tourism DT Department of Transport

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Appendix III: Alliance Member Organisations

Member Organisations 2009

Amnesty International Irish National Teachers Organisation Ana Liffey Irish Penal Reform Trust Children’s Project The Ark, a cultural centre for children Irish Refugee Council Assoc. for Criminal Justice Research & Development Irish Traveller Movement Association of Secondary Teachers Ireland Irish Youth Foundation ATD Fourth World Irish Society for the Prevention of Cruelty to Children Barnardos (ISPCC) Barretstown Jack & Jill Children’s Foundation Belongto Jesuit Centre for Faith & Justice Border Counties Childcare Network Junglebox FDYS Kids’ Own Publishing Partnership CARI Kilbarrack Youth Project Catholic Guides of Ireland La Leche League of Ireland Catholic Youth Care Lifestart National Office Childminding Ireland Mary Immaculate College Children in Hospital Ireland Matt Talbot Community Trust City of Dublin YMCA Miss Carr’s Children’s Home CityArts Mothers’ Union Crosscare Aftercare Unit Mounttown Neighbourhood Youth Project Crosscare Drug Awareness Programme National Association for Parent Support DIT –School of Social Sciences & Legal Studies National Children’s Nurseries Association Dublin Rape Crisis Centre National Parents Council (Post-Primary) Dun Laoghaire Refugee Project National Parents Council (Primary) Educate Together National Youth Council of Ireland Education Department UCD National Organisation for the Treatment of Abusers Enable Ireland (NOTA) Focus Ireland OPEN Forbairt Naíonraí Teo One Family Foróige One in Four Gay and Lesbian Equality Network (GLEN) Parentline Headstrong Pavee Point Home Start National Office Ireland Peter McVerry Trust Irish Assoc. of Young People in Care (IAYPIC) PLANET Inclusion Ireland Psychological Society of Ireland Integrating Ireland Saoirse Housing Association International Adoption Association SAOL Project – SAOL Beag Children’s Centre IPPA, the Early Childhood Organisation Society of St. Vincent de Paul Irish Autism Action SPARK (Support Project for Adolescent Refugee Kids) Irish Association of Hospital Play Staff St. Nicholas Montessori College Irish Association of Social Care Workers St. Nicholas Montessori Society Irish Association of Social Workers Step by Step Child & Family Project Irish Association of Suicidology Sugradh Irish Centre for Human Rights, NUIG Teen Counselling Irish Congress of Trade Unions Treoir Irish Council for Civil Liberties UNICEF Ireland Irish Foster Care Association Youth Initiative in Partnership Irish Girl Guides Youth Work Ireland Irish National Organisation of the Unemployed

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