2. Improving policy outcomes for Ireland’s children and young people in a complex context
This chapter provides an overview of existing policy and governance approaches to deliver for children and young people in Ireland. It discusses the most relevant developments in the policy landscape, including the adoption of Young Ireland, the Child Poverty and Well-being Work Programme 2023-25 and the National Action Plan for the European Child Guarantee. It sets the scene for the report by exploring the legal and institutional reform efforts underway to strengthen policy and governance frameworks towards a whole-of-government approach to tackling child poverty and improving outcomes for children and young people.
Over the past three decades, Ireland has demonstrated a strong commitment to addressing child poverty and enhancing outcomes for children and young people through a series of legislative, policy, and institutional reforms. This commitment is evidenced by Ireland's ratification of the United Nations Convention on the Rights of the Child in 1992. Subsequent significant developments include the elaboration of Ireland’s first National Children's Strategy (Our Children - their Lives) in 2000, the creation of Tusla, the Child and Family Agency, in 2014 under the Child and Family Agency Act 2013, the 2012 Children’s Rights Referendum, and the Children’s First Act 2015. Other notable initiatives include the renaming of the Department of Community, Equality and Gaeltacht Affairs to the Department of Children and Youth Affairs (DCYA) in 2011 – the predecessor of today’s Department of Children, Equality, Disability, Integration and Youth (DCYA). Further, developments include the adoption of the National Policy Framework for Children and Young People “Better Outcomes, Brighter Futures” (BOBF) 2014-2020 and constituent strategy “First 5” strategy on early years in 2019, the National Youth Strategy for 2015-2020, the National Strategy on Children and Young People’s Participation in Decision-making 2015-2020, and the National Action Plan (NAP) for the European Child Guarantee (ECG), among others.
In Spring 2023, Ireland recognised addressing child poverty and improving child wellbeing as key priorities with the establishment of a Child Poverty and Wellbeing Unit in the Department of the Taoiseach (Department of Taoiseach, 2023[1]) and the publication of its first Child Poverty and Well-being Work Programme 2023-25 “From Poverty to Potential” (Department of the Taoiseach, 2023[2]). The establishment of this Unit responds to the Taoiseach’s ambition to “making Ireland the best country in Europe to be a child” (Department of the Taoiseach, 2023[3]). Its establishment also aims to bring strategic focus, leadership, and enhanced accountability to action on child poverty and wellbeing by harnessing its convening power and capacity to encourage alignment of sectoral and strategic policy objectives (OECD, 2020[4]). In addition, a review of the Child Care Act 1991 led to the publication of the Heads and General Scheme of the child Care (Amendment) Bill 2023, which proposes arrangements to strengthen cross-sectoral and cross-agency coordination through, for instance, legislating for a ‘duty to cooperate’ (DCEDIY, 2023[5]).
Despite progress over the past 10 years, child poverty and social exclusion are still major concerns in Ireland. Ahead of the global financial crisis 2008-09, efforts of poverty reduction were supported by high levels of economic growth and relied mainly on income transfers. Measures implemented as a response to worsening economic and fiscal indicators in the aftermath of the global financial crisis had negative impacts on households with children and resulted in an increase in the number of children living in consistent poverty (from 6.2% in 2008 to 12.7% in 2013) and children “at risk of poverty” (from 17.8% in 2008 to 19.7% in 2014).1 Notably, the deprivation rate surged from 17.8% to 36.3% over the same period. Child poverty rates had been decreasing since 2014, but 2022 again saw an increase (see Chapter 3). Moreover, some groups of children fare consistently poorly including those in lone parent households, those with low levels of maternal education, children of migrants, minority ethnic groups, Traveller children and children with a disability (Department of the Taoiseach, 2023[6]).
According to the Social Inclusion Monitor, Ireland did not meet its target of lifting 70,000 children out of consistent poverty by 2020 as initially established in BOBF, and consistent poverty rates and the “at risk of poverty” rate for children is consistently above the national average (Department of Social Protection, 2021[7]). As of 2022, the Central Statistics Office of Ireland’s Survey on Income and Living Conditions (SILC) reports that 19.9% of children under the age of 18 face deprivation, 15.2% of children are at risk of poverty, and 7.5% face consistent poverty (Central Statistics Office, 2022[8]). In addition, anxiety disorders are prevalent among children, particularly among girls, ranking second highest in the OECD with 55 per 1,000 children, and 71 per 1,000 girls being concerned in Ireland (OECD, 2022[9]).
The Children’s Rights Alliance’s Child Poverty Monitor in 2023 highlights progress on addressing child poverty, but also points to existing challenges across issues including food poverty, income adequacy, education inequality, the high cost of living and the need to emphasise the importance of child play policies (Children's Rights Alliance, 2023[10]). The report is informed by the European Commission’s Recommendation Investing in Children, which highlights the importance of tackling child poverty and social exclusion through integrated strategies encompassing not only children’s material security but also the promotion of equal opportunities (European Commission, 2013[11]).
The COVID-19 pandemic severely impacted outcomes on children and young people due to prolonged school closures, social isolation, and limited access to health and welfare services, among others. The impact of the pandemic was disproportionate, particularly on children and young people with socioeconomically disadvantaged backgrounds, including Traveller and Roma children, children with a disability, children in lone parent families, as well as sexual and gender minorities. Available evidence confirms that the pandemic led to an increase in domestic and online violence, worsening mental health, a surge in poverty, learning losses and increased school dropout rates for children and young people. More recently, global developments including Russia’s war against Ukraine and the cost-of-living crisis increased pressures on already limited public housing availability and the capacity of public services to improve social and economic outcomes (Central Statistics Office, 2022[12]), pointing to the complex context in which the Department for Children, Equality, Disability, Integration and Youth (DCEDIY) and other relevant stakeholders in the Irish child and youth sector are operating.
Towards a new governance approach to implement child and youth policy
Exposure to inequality, poverty and social exclusion during childhood can translate into worse educational, social and employment outcomes during adolescence, and later adult life. OECD evidence also demonstrates that the lack of access to or perception of poor quality of support services can have broader implications. The OECD Framework on Drivers of Trust in Public Institutions finds that government responsiveness (i.e., the capacity to provide efficient, quality, affordable, timely and citizen-centred public services) is an important determinant of citizen’s trust (OECD, 2022[13]). In Ireland, only 1 out of 5 young individuals (21%) aged 18-34 expressed trust in their government in 2021, compared to 3 out of 5 individuals (59%) aged 50 or above (OECD, 2022[13]).
Public governance plays a critical role in improving policy outcomes for children and young people as it forms the broader ecosystem of rules, procedures and practices in which stakeholders interact with each other, design and implement policy and programmes and deliver public services and support (OECD, 2020[14]). Effective coordination across government departments, agencies, service providers, and the community and voluntary sector is crucial, given that children and young people have specific needs spanning all policy and service areas such as education, employment, health, housing, justice, civic and political participation, gender equality and environment. Moreover, outcomes in different policy areas can impact each other. Breaking down silos to promote whole-of-government and whole-of-society approaches to improving policy outcomes for children and youth is therefore critical, as well as for tracking the outcomes and impact of government action and spending for this purpose.
Children and young people are not homogeneous groups, and the COVID-19 pandemic has demonstrated again that intersecting identity factors need to be considered when assessing levels of vulnerability and disadvantage (OECD, 2022[15]). Prominent examples of governance gaps in Ireland, such as the Molly case2 and the case of Jack3 (See Chapter 4) have prompted significant legal, policy and institutional reforms. However, despite these important initiatives, OECD interviews with stakeholders in the Irish child and youth sector suggest that relevant service needs are not being met. For instance, children and young people with complex mental and physical health needs continue to face challenges to access appropriate counsel and quality support due to fragmentation in the delivery of services and lack of coordination between relevant departments and agencies. Reportedly, a lack of incentives to drive policy co-ordination, siloed accountability structures, lack of age-disaggregated evidence in relevant areas and the absence of incentives rewarding cross-sectoral approaches, among others, persist as barriers to improving outcomes, in particular for disadvantaged groups.
In a context of limited financial resources, effective governance arrangements are also crucial for the effective use of such resources. For example, a child’s access to education can have a significant impact on future employment opportunities, ability to afford housing and health outcomes and the risk of long-term dependence on state support. Individuals with a history of unemployment in their first years after graduating are likely to face lower wages, limited job opportunities, and reduced pension benefits (OECD, 2020[14]). The OECD study on the economic costs of childhood socio-economic disadvantage highlights negative impacts of childhood disadvantage on adult health and access to employment, and points to large costs for societies, totalling the equivalent of 3.4% of GDP annually, or 3.9% in Ireland due to potential loss of income tax and social contribution revenues (OECD, 2022[16]). Reducing child poverty is therefore not only crucial to improve economic prospects and well-being at an individual level, but also for economic growth and social cohesion more broadly (OECD, 2022[16]).
To address governance gaps and improve outcomes for children and young people, the Government of Ireland has sought to establish a more effective governance framework for child and youth policy. In this context, the OECD, in cooperation with the European Commission’s DG REFORM, is supporting Ireland through an assessment of the current governance and policy frameworks in place to identify strengths and opportunities for improvement. Recent developments, such as the expansion of the Department of Children and Youth Affairs to the Department of Children, Equality, Disability, Integration and Youth (DCEDIY) in 2020, the review of governance mechanisms in DCEDIY, an ongoing reform of Tusla, proposed amendments to the Child Care Act 1991, and most notably the new Policy Framework, Young Ireland, provide an occasion to identify more effective and sustainable structures, procedures, and practices.
Beyond the various constituent policy strategies and plans operating under its lead (e.g. Young Ireland, First 5, National Action Plan for the European Child Guarantee, and others), the Departments of the Taoiseach (Child Poverty and Well-being Work Programme 2023-25), Social Protection (policies supporting families with children, such as the Child Benefits), Justice (Youth Justice Strategy 2021-2027), Health (Healthy Ireland Framework 2013-2025; and the Department of Housing, Local Government and Heritage (Youth Homelessness Strategy 2023-25), each implement important thematic strategies with a significant impact on the five national outcomes that Young Ireland identifies for children and young people (see Figure 2.1).
Source: (DCEDIY, 2023[17]).
In this complex policy landscape, inter-departmental and inter-agency coordination across the policy cycle is crucial to ensure policy coherence and the delivery of integrated support to children and young people, especially those living in vulnerable circumstances. The importance of pursuing a whole-of-government approach has been acknowledged in previous policy frameworks, notably the National Children’s Strategy 2000-2010, Our Children – Their Lives and Better Outcomes, Brighter Futures 2014-20. The adoption of Better Outcomes, Brighter Futures by the Department of Children and Youth Affairs (created in 2011 and predecessor of today’s DCEDIY) led to the development of new structures to institutionalise cooperation and collaboration and new efforts to promote a culture of shared accountability for child and youth policy outcomes. The whole-of-government ambition of Young Ireland underlines these government-wide efforts to strengthen cross-departmental cooperation, such as through the Civil Service Renewal Strategy 2030 launched by the Department of Public Expenditure and Reform in 2021 (Department of Public Expenditure and Reform, 2021[18]).
The implementation arrangements underpinning Young Ireland and the Child Poverty and Well-being Work Programme 2023-25 (in development as of February 2023) have been informed by the experiences from the implementation of BOBF 2014-20. Chapter 4 and 8 discuss these learnings and new innovative approaches to foster cross-sectoral approaches, such as the “Spotlights” initiatives, in greater detail. Notable among the extensive review of BOBF 2014-20 is the mid-term review prepared by the Children and Young People’s Advisory Council, a structure established under the now-defunct framework to convene civil society and independent experts to actively inform and support the development and implementation of policies in respect of children and young people. This review points to important initiatives, such as the convening of different government departments to address child poverty, improved child and youth participation in policymaking, and stronger engagement with the voluntary sector. It also highlights challenges to cross-government working, calling for strengthened leadership, accessible data, engagement and collaboration across all relevant departments, agencies and stakeholders (“whole-of-society and cross-government approach”), and a sharper focus for effective implementation and monitoring (Department of Children and Youth Affairs, 2017[19]).
To support the Government of Ireland in delivering more integrated and coordinated policies and services for children and young people, this Report reviews the implementation of measures to strengthen policy and governance arrangements for tackling child poverty and improving outcomes for children and young people with a focus on three dimensions: (i) strengthening evidence-informed approaches; (ii) promoting inter-departmental and inter-agency cooperation; and (iii) reinforcing accountability mechanisms and policy coherence.
Beyond insights collected from evaluations performed by the Irish government and independent stakeholders, as well as relevant studies, the assessment draws on the evidence collected from 30 interviews conducted by the OECD and DG Reform with relevant departments, agencies, and non-governmental stakeholders in Dublin and through virtual meetings between November 2022 and April 2023. The report integrates findings from child and youth outcomes notes (Chapter 3), an analysis of existing policy coordination mechanisms (Chapter 4) and a review of the types of evidence produced to monitor and evaluate the effectiveness of policies at reducing child poverty and improving outcomes of children in socio-economic disadvantage (Chapters 5 and 6). A review of existing accountability structures (Chapter 7), and the implementation of Young Ireland and constituent strategies (Chapter 8) is also included in this report. The good practices and recommendations (Chapter 1) presented in this report are informed by a comparative analysis across EU and OECD countries prepared for this project and a peer learning workshop conducted online with the participation of peers from Finland, New Zealand, and Spain on 6 November 2023.
References
[22] Cantillon, B. et al. (2017), Children of Austerity: Impact of the Great Recession on Child Poverty in Rich Countries.
[8] Central Statistics Office (2022), Survey on Income and Living Conditions, https://www.cso.ie/en/releasesandpublications/ep/p-silc/surveyonincomeandlivingconditionssilc2022/poverty/.
[12] Central Statistics Office (2022), Survey on Income and Living Conditions (SILC) 2022, https://www.cso.ie/en/releasesandpublications/ep/p-silc/surveyonincomeandlivingconditionssilc2022/poverty/ (accessed on 19 April 2023).
[10] Children’s Rights Alliance (2023), Child Poverty Monitor 2023, https://www.childrensrights.ie/sites/default/files/submissions_reports/files/Child%20Poverty%20Monitor%202023.pdf.
[5] DCEDIY (2023), Review of the Child Care Act 1991, https://www.gov.ie/en/publication/97d109-review-of-the-child-care-act-1991/#child-care-amendment-bill-2023.
[17] DCEDIY (2023), Young Ireland: the National Policy Framework for Children and Young People (0-24) 2023-2028, https://www.gov.ie/en/publication/80ac4-young-ireland-the-national-policy-framework-for-children-and-young-people-0-24-2023-2028/#:~:text=Young%20Ireland%20is%20the%20new,can%20fully%20access%20their%20rights.
[19] Department of Children and Youth Affairs (2017), Better Outcomes Brighter Futures - Mid-Term Review.
[18] Department of Public Expenditure and Reform (2021), Civil Service Renewal 2030 Strategy: ’Building on Our Strenghts’, https://www.gov.ie/pdf/?file=https://assets.gov.ie/135476/ab29dc92-f33f-47eb-bae8-2dec60454a1f.pdf#page=null.
[7] Department of Social Protection (2021), Report of the Social Inclusion Forum - Implementing the Roadmap for Social Inclusion: reducing poverty and improving social inclusion, https://assets.gov.ie/199969/15112b41-a163-4e11-b3f2-16355ab5a060.pdf.
[1] Department of Taoiseach (2023), Taoiseach holds meetings with Children’s NGOs and Housing Commission, https://www.gov.ie/en/press-release/9c27f-taoiseach-holds-meetings-with-childrens-ngos-and-housing-commission/#:~:text=As%20the%20Taoiseach%20has%20said,of%20all%20children%20in%20Ireland. (accessed on 7 May 2023).
[2] Department of the Taoiseach (2023), Child Poverty and Well-being Programme Office: Programme Plan, https://www.gov.ie/en/publication/573a7-the-child-poverty-and-well-being-programme-office-programme-plan/.
[3] Department of the Taoiseach (2023), https://www.gov.ie/en/speech/1e5b4-speech-by-taoiseach-leo-varadkar-td-nomination-of-members-of-government-dail-eireann/.
[6] Department of the Taoiseach (2023), Seminar with Civil Society on implementing the European Child Guarantee.
[11] European Commission (2013), Commission Recommendation - Investing in Children: breaking the cycle of disadvantage, https://ec.europa.eu/social/main.jsp?catId=1060&langId=en.
[13] OECD (2022), Building Trust to Reinforce Democracy: Main Findings from the 2021 OECD Survey on Drivers of Trust in Public Institutions, https://doi.org/10.1787/b407f99c-en.
[15] OECD (2022), Delivering for youth: How governments can put young people at the centre of the recovery, https://www.oecd.org/coronavirus/policy-responses/delivering-for-youth-how-governments-can-put-young-people-at-the-centre-of-the-recovery-92c9d060/.
[9] OECD (2022), OECD Child Well-being Data Portal, https://www.oecd.org/els/family/child-well-being/data/.
[16] OECD (2022), OECD WISE Centre Policy Insights: What do we mean by socio-economic disadvantage in childhood?, https://doi.org/10.2907/EUSILC2004-2020V.1.
[14] OECD (2020), Governance for Youth, Trust and Intergenerational Justice: Fit for All Generations?, OECD Publishing, Paris, https://doi.org/10.1787/c3e5cb8a-en.
[4] OECD (2020), Policy Framework on Sound Public Governance: Baseline Features of Governments that Work Well, OECD Publishing, Paris, https://doi.org/10.1787/c03e01b3-en.
[21] Ombudsman for Children (2020), Jack’s* Case: How the HSE and Tusla, the Child and Family Agency, provided for and managed the care of a child with profound disabilities, https://www.oco.ie/app/uploads/2020/11/OCO-Jack-Report-25.11.pdf.
[20] Ombudsman for Children Office (2018), Molly’s* case: How Tusla and the HSE provided and coordinated supports for a child with a disability in the care of the State, https://www.oco.ie/app/uploads/2018/01/OCO-Investigation-Mollys-Case-Jan-2018.pdf.
Notes
← 1. The consistent poverty measure in Ireland is based on the number of households both at risk of poverty (as measured as living on less than 60% of the median income) and experiencing enforced deprivation (as defined as lacking two or more items from an 11 item deprivation index) (Central Statistics Office, 2022[8]; Cantillon et al., 2017[22]).
← 2. In the Molly case, a child with a disability in the care of State reportedly did not receive adequate support due to a lack of coordination between Tusla (the Child and Family Agency) and the Health Service Executive (HSE) and the application of standardised approaches in each (Ombudsman for Children Office, 2018[20]).
← 3. In the context of the absence of a duty to cooperate, in the case of Jack, a child diagnosed with an array of physical disabilities and a profound intellectual disability reportedly did not receive the support needed to improve health and well-being (Ombudsman for Children, 2020[21]).