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ISSUES PAPERS for the MINISTER FOR SENIOR CITIZENS
OVERVIEW
Key points
- Issues in the portfolio of the Minister for Senior Citizens are becoming more prominent.
- The number of older people is projected to grow significantly early in the new century.
- The increasing number and changing demographic profile of older people in New Zealand will present challenges in the area of policy formation.
- It is important planning begins now across the range of government agencies to meet the challenges of an ageing population.
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Introduction
Older people are a growing proportion of the population. Under “medium” projection assumptions, the population aged 65 and over is expected to grow by 6 percent (25,250 persons) in the five years to 2001, by a further 18 percent (84,650) in the decade to 2011, and another 32 percent (174,200) in the decade to 2021. By the year 2031, the number of people aged 65 and over is expected to reach 940,000. These increases in the number and proportion of older people have significant implications for government policies, particularly those relating to retirement income support, health, and community support service provision.
It is the role of the Minister for Senior Citizens to advocate for older people at Cabinet and other government policy forums. The increasing proportion of older people means that issues within the portfolio are becoming more prominent. The scope of the portfolio is very broad, incorporating issues such as transport, income support, housing and health. The advocacy function of the Minister for Senior Citizens is complicated by the fact that the older population is a diverse group with differing needs and expectations. It is therefore essential that the advice provided to the Minister for Senior Citizens takes into account the differing views of older people across the spectrum of issues which are of interest and concern to older people.
The purpose of these papers is to provide a synopsis of the major issues relevant to the portfolio of Minister for Senior Citizens. There are fourteen papers, including this overview, which fall into the four broad categories: the structures established by Government to represent the views of older people (papers 2, 3 and 4); demographic features of the current and future older populations (paper 5); and issues of interest and concern to older people (papers 6 to 12). What follows is a brief summary of each paper.
Paper 2 - Portfolio of the Minister for Senior Citizens
This paper provides information on the establishment of the portfolio of the Minister for Senior Citizens and outlines the roles and responsibilities of the Minister. It explains the relationships between the Minister and the Senior Citizens Unit and the Advisory Council for Senior Citizens.
The paper notes the increasing profile of issues in the portfolio of the Minister for Senior Citizens and therefore the importance for the Minister to be able to receive comprehensive advice on a wide range of issues quickly. It is concluded that the small size of the Senior Citizens Unit limits its ability to maintain its expertise across the range of issues affecting older people and limits the volume of policy advice provided to the Minister.
Paper 3 - The Senior Citizens Unit
A review of the history, structure and key functions of the Senior Citizens Unit and the Vision, Mission and Statement of Purpose developed by the Unit are described in this paper. Details of the funding appropriated to Vote:Senior Citizens is provided, noting that the operating budget of the Unit has remained static since 1992/93 and that the total discretionary funding available to operate the Unit places constraints on its ability to carry out its functions. The paper also provides information on the current major areas of work of the Unit.
The paper concludes that the Unit’s placement within the Social Policy Agency of the Department of Social Welfare is mutually beneficial and notes that the Unit has gained recognition as a key advisor to Government on issues of concern and interest to older people. It reiterates concern about the ability of the Unit to maintain its effectiveness with the limited staff and funding resources currently available, particularly given the increasing prominence of issues relevant to the portfolio. The paper advocates for an increase in resources to meet the growing demands being placed on the Unit.
Paper 4 - Advisory Council for Senior Citizens
In this paper, the establishment and role of the Advisory Council are described and biographical information on current members is provided. The costs of administering the Advisory Council are detailed and the Advisory Council’s work programme over the past four years is reviewed.
In addition, the paper examines the value of the Advisory Council, confirming its importance in providing the Minister with advice from a community perspective. The paper discusses the difficulties in balancing the competing demands of the Advisory Council and the Senior Citizens Unit on a limited budget, reinforcing the view that an increase in Vote:Senior Citizens is essential.
Paper 5 - The Changing Older Population
This paper provides a demographic profile of the older population and sets the context for the papers that follow, illustrating the diversity of the older population. The paper analyses the impact that changes to the older population will have on current policies and the challenges they will present in the development of new policies.
The need to begin planning for an older population now is emphasised in the paper. It is noted that while the work of the Task Force on Private Provision for Retirement and the Prime Ministerial Task Force on Positive Ageing are significant initiatives in this direction, there is a need for research into the needs and expectations of older people to provide a sound base for future policy development. The paper describes how the Department of Social Welfare has taken a lead in preparing for the projected increase in the older population and states the importance of policy to be developed in a co-ordinated way across a range of government agencies.
Finally, the paper concludes by predicting the significant involvement of the Senior Citizens Unit in the work that is likely to arise from the recommendations of the Prime Ministerial Task Force on Positive Ageing.
Paper 6 - Retirement Income
New Zealand Superannuation is the only source of income for approximately 20% of superannuitants, with a further 52% receiving additional income of less than $5,000. This key point is emphasised and an analysis of the level and source of both personal and household income for older people in New Zealand is included. Income support provisions available through Income Support offices of the Department of Social Welfare are summarised, commenting on the low take-up of supplementary assistance by superannuitants. The paper suggests that this feature is likely to change with the continued development of Income Support Super Centres providing client-focused services for older people.
Comments are made on the development of a Consumers Price Index for superannuitants and on the superannuitant surcharge. Support is given by the Senior Citizens Unit for a proposed study, as part of the work for the 1997 Periodic Report, on the standard of living of superannuitants and the adequacy of their income. The information from such a study will be important in developing future retirement income policies. The Unit also considers that priority should be given to policy work on income provisions to enhance government’s objective of encouraging older people to remain in their own homes as long as possible.
Paper 7 - Positive Ageing
Older people have the skills, experience and knowledge to contribute to society and the benefits of positive and productive ageing are described. The challenges of ageing populations are analysed, noting the need for government policies across the range of sectors, including employment, health, housing and income support, to allow and encourage older people to remain active participants in the community. The significant role of Age Concern New Zealand in promoting positive ageing in the community and with government agencies is mentioned and, in addition to the work of the Prime Ministerial Task Force on Positive Ageing, developments within both government and non-government agencies which promote positive ageing are summarised.
The paper notes the initiative taken by the Department of Social Welfare in developing a Positive Ageing Strategy and suggests that the Department has the expertise, experience, commitment and existing interface with other government agencies, community organisations, the private sector and older people to take a lead in government responses to an ageing population. The position of the Senior Citizens Unit within the Department of Social Welfare lends support to this contention.
Older age is often associated with increased costs of health care. This paper reports that the significant increases in health expenditure occur in the population aged 80 and over. As the “older old” population is expected to experience significant growth in the next few decades, the impact of this growth on the health system is discussed. Current health services and related issues for older people are also described.
The focus of the paper, however, is on the importance of promoting healthy lifestyles through the life stages as the most effective strategy to minimise increases in health expenditure resulting from an ageing population. The need for a wide range of government agencies to be involved in health promotion activities is advocated, as is the development of congruent policies to support them.
While most older people live mortgage-free in their own homes, housing costs remain a significant issue for older home owners as well as for the minority of older people who rent accommodation. This paper provides housing demographic information and describes in detail the issues facing both older home owners and those who rent. Most of these issues focus on the affordability of appropriate housing for older people. Housing assistance currently available is outlined and its ability to meet the needs of older people is assessed. In addition, alternative housing options available to older people, including retirement villages, are examined and comment on these options included in the paper.
The paper notes the impact that government housing reforms have had on older people and the possible impact on future generations of older people is raised. It argues that current housing policy is not congruent with current health policy and discusses the need for policies to support older people to remain in their own homes or to move to more appropriate accommodation.
Paper 10 - Community Support Services
The main issue raised in this paper is the increasing demand for community support services for older people at a time when non-government organisations providing these services are facing increasing difficulties obtaining funding and attracting volunteers. The paper criticises the inadequacy of funding for community support services and notes that this factor is undermining Government’s objective of supporting older people to remain in their own homes for as long as possible.
It identifies the fact that there is no government agency with responsibility for funding non-health related services and recommends the establishment of a specific funding programme for this purpose by the New Zealand Community Funding Agency. It concludes that additional money from Government is required.
Adequate and appropriate transport is needed by older people to maintain their independence and to take an active part in the community. Issues relevant to older drivers, pedestrians and public transport passengers are reviewed in this paper, as is the considerable policy work relevant to older people currently being undertaken in this area. In particular, driver licensing provisions are under review and the Ministry of Transport is developing a National Land Transport Strategy which it plans to complete by July 1997.
Paper 11 notes that both the Advisory Council for Senior Citizens and the Senior Citizens Unit have been active in providing input to the development of relevant transport policies and practices. Further work on these issues is expected to arise from the recommendations of the Prime Ministerial Task Force on Positive Ageing when it reports to Government in June next year.
Paper 12 - Elder Abuse and Neglect
The final paper describes what is meant in New Zealand by the term “elder abuse and neglect” and outlines the development of six elder abuse and neglect pilot programmes by Age Concern New Zealand. An explanation is given on the involvement of officials on the National Advisory Group overseeing the development of the pilots. It gives details about the collection of data from the pilots required to assist government decisions about the funding of and policy responsibility for these services. It also provides an analysis of issues surrounding service development and other related issues.
The paper concludes by drawing attention to the report currently being prepared which will contain recommendations on a preferred model for elder abuse and neglect services in New Zealand and on funding of those services will be prepared by the National Advisory Group for the Minister for Senior Citizens and the Minister of Health in December this year.
