POSITIVE AGEING

Key points

Positive Ageing Policies

The increasing older population throughout OECD nations provides a challenge for governments to develop and implement policies to prepare for the expected economic and social effects of the population change. Retirement from the paid workforce means that more time is available for leisure activities, family commitments, community involvement and volunteer work. For those who have not been employed in the paid workforce, retirement of a spouse may affect how they use their time. Educational, recreational and leisure programmes encourage older people to remain fit and healthy for as long as possible, thus reducing the demands on costly health services. Similarly, policies which allow older adults to continue in the paid workforce not only maintain the self-esteem of the individuals involved, but also help to reduce financial dependence on the State, and contribute to economic growth.

Attitudes to Ageing

Ageing is a lifelong process. The concept of positive ageing embraces a number of variables including health, financial security, independence, self-fulfillment, community attitudes, personal safety/security and physical environment. The underpinning premise is that the years of "older age" should be both viewed and experienced positively. The focus is therefore not only on the experience of older individuals, but also on younger generations' attitudes, expectations, and actions regarding ageing and older people. The ability to age positively requires an understanding of the ageing process and making adequate preparation for older age.

At the present time, images of ageing are typically negative, with older people portrayed as frail, depressed and lonely. Debate surrounding the ageing population tends to focus on the burden of the ageing population, particularly relating to the high costs of health care needed by older people. However, the OECD reports that the stereotype that closely links ageing with infirmity is unfounded and that the health characteristics of most people in their 60's and in their 70's are broadly similar to the rest of the adult population. There are enormous health variations within each older age group ranging from people with hardly any impairment to people with severe disability. Changing attitudes about ageing and older people is the first step to promoting positive and productive ageing.

The development of intergenerational programmes is a powerful strategy for changing attitudes about ageing. The geographic spread and mobility of families today means that many children do not have grandparents living nearby, and their experiences of older people are often restricted to the mainly negative images of older people portrayed in the media. Intergenerational programmes provide opportunities to dispel the negative myths about older age and to recognise the contributions older people make to their community.

In New Zealand, the 1988 Royal Commission on Social Policy noted that as a consequence of better living standards, people approaching retirement today are healthier and live longer than their predecessors and have the ability to actively participate in the labour force. The Royal Commission report concluded that retirement often brings a loss of status and loneliness; and a withdrawal from community life and social activities.

The concept of "productive ageing" recognises the life skills and experiences of older people and encourages older people to continue to contribute these to society. Retirement from the paid work force does not mean that people cease to contribute to society - it provides opportunities for participation in different ways and in a range of roles: as employees; volunteers; family members; neighbours; caregivers; committee and trust members; kaumatua; and members of communities. Continued productivity in older age has benefits for the individual concerned, the community and the State.

Australian Response

Internationally, governments are beginning to recognise that fact that older people make a significant contribution to society. A recent Australian Government document, Continuing Participation in Community Life - The Australian Government's Commitment to Older People, notes that it is Government's responsibility to assist older people to live healthy, active lives. The document states:
"This strategy involves a new approach to the development of policies for older Australians, based on a recognition of the important roles played by older people in the community - in family life, in provision of services and in promoting harmony between generations. Policies which promote people remaining active and involved members of society will also help people maintain independence and dignity."

New Zealand Strategies for Positive Ageing

The concept of positive ageing has been the primary focus of Age Concern New Zealand, a national organisation promoting older people's interests. This organisation, in particular, has been responsible for raising the issue within government agencies. Age Concern Councils throughout New Zealand are active in promoting local initiatives which demonstrate the contributions older people make to the community.

There are a number of government agencies with a particular focus on developing and implementing strategies to promote positive ageing. These include the Prime Ministerial Task Force on Positive Ageing, the Department of Social Welfare, the Senior Citizens Unit, and the Hillary Commission, and are described below. In addition, successful initiatives developed by older people's organisations in New Zealand, including the Retired Persons Association, Age Concern Hamilton, University of the Third Age, the New Zealand College for Seniors and SeniorNet, are also outlined.

Prime Ministerial Task Force on Positive Ageing

The Prime Ministerial Task Force on Positive Ageing was established in May 1996 in response to requests from organisations representing older people's interests which expressed the need for New Zealand to prepare for an ageing population. The Task Force's terms of reference require it to work towards Government's objective of developing public consensus on:

• "the environment necessary to ensure people move through their life cycle towards a healthy, independent, safe, secure and dignified old age in which they are able to participate in and contribute to society, to the extent of their ability and wishes, and enjoy the respect and support of their families and communities; and

• the measures that need to be taken by individuals, families, local communities, employers, voluntary organisations and Government to achieve this end."

The Task Force is chaired by Sir Ross Jansen and other members are Mr David Harrison, Professor David Richmond, Ms Sue Suckling and Mr Alan Nixon (ex officio). The Task Force is expected to:

• review existing work in the field of positive ageing, including domestic and international literature;
• identify all issues relevant to positive ageing, including the effects of current government policies;
• consult widely with the public, older people's representatives, service providers, government and non-government agencies, professionals, researchers and any other bodies or individuals with relevant knowledge;
• develop options which will ensure a favourable environment for positive ageing;
• consult widely on the options developed; and
• develop final recommendations for presentation to Government by 30 December 1997.

The Task Force produced a consultation booklet "Facing the Future" which it used as the basis for identifying relevant issues during the first phase of nationwide public consultations held in July and August 1996. The planned second stage will involve the preparation of an Options publication and another series of public consultations during January to March 1997.

It is expected that the implementation of the Task Force's recommendations, contained in its final report to Government, will involve significant policy work for the Senior Citizens Unit, other parts of the Department of Social Welfare and other government agencies.

Department of Social Welfare

Apart from the fact that the Senior Citizens Unit is part of the Department of Social Welfare, the Department itself, through Vote:Social Welfare, has a significant relationship with the older people of New Zealand. Through its role in paying New Zealand Superannuation, almost all of the older population of New Zealand are clients of the Department. In addition, the Department's role in dispensing the Community Services Card and financial assessment for targeting disability support services provides an interface with older people's access to the health sector.

The Department is working to the government outcome "that social welfare policies and practices support older people to live independently and facilitate the participation and contribution of older people in community life". In addition, Key Result Area (KRA) 3 in the Director-General's Performance Agreement with the previous Minister of Social Welfare required the Department "to develop and implement strategies across business units to ensure that Social Welfare services are prepared for growth in the size of the older New Zealand population, and that ageing is seen in a positive light by older people themselves and the wider community."

Positive Ageing Strategy

The Department is developing a Positive Ageing Strategy in conjunction with, and complementary to, the broader government-wide positive ageing strategy. The Vision for the Department's Positive Ageing Strategy is:

"That older people are encouraged and supported to remain self reliant, and that they continue to participate and contribute to the well-being of themselves, their families, and the wider New Zealand community."

Key strategies for moving toward the vision are:

• encouraging New Zealanders to plan for a positive and self reliant retirement;
• encouraging and supporting older people to stay independent for as long as they are able;
• encouraging and supporting older people to participate in and contribute to the wider community; and
• promoting positive attitudes to ageing throughout New Zealand society.

While the actions below these strategies and measurable goals have yet to be fully developed, the Department is already involved in activities that support them. These include:

Super Centres

Income Support has developed the concept of "Super Centres" to provide a specialised client-focused service for older people, who comprise over half of its client base. The establishment of 38 Super Centres over the next four years is planned and it is envisaged that Super Centres will expand beyond their income support service role to provide information on a range of issues and local services available to older people.

The Senior Citizens Unit has worked closely with Income Support in the development of the Super Centre concept and the Unit has been involved in the development of the training package for staff. Super Centre staff have developed strong community networks, enabling them to make appropriate referrals in response to client needs.

Keeping Independent Now (KIN) Programme

The Keeping Independent Now (KIN) programme was developed as a local initiative by the Sydenham/Riccarton Income Support office. The Goal of the programme is: "to assist our NZ Superannuation customers to achieve self-sufficiency and to maintain independence in the community".

The programme is a partnership between Income Support, Age Concern, and the RHA-funded provider of home support services. Seminar sessions for older people provide information about the services and income support provisions available to assist them to remain in their own homes. Income Support customers aged 75 years and over, or those less than 75 years in receipt of a Disability Allowance, are sent personal invitations to attend the seminar, and transport is provided if necessary. Local community and interest groups are also invited to the seminars to and widen the information available to customers and to increase promotion of the concept.

An evaluation of the programme found that KIN highlighted the need for superannuitant customers to be fully informed about the services and support provisions available in both the health and income support areas. Older people reported that the seminars gave them a clear understanding of those services and, as a result, a number of adjustments have been made to some people's support provisions to further assist their ability to remain living independently. Due to the success of the Sydenham/Riccarton pilot, KIN is now being promoted and extended to other Income Support offices.

Senior Citizens Unit Initiatives

The concepts of "positive ageing" and "productive ageing" permeate throughout much of the work undertaken by the Senior Citizens Unit. The Unit has developed a number of specific initiatives, with Age Concern New Zealand and other agencies, to promote positive attitudes to ageing by:
• celebrating the diversity of older people;
• encouraging the development of intergenerational activities between older and younger people;
• promoting well-being in older age; and
• promoting full participation of older people in community life.

Examples of these initiatives include:

International Year of Older Persons 1999

1999 has been designated the United Nations International Year of Older Persons and it is expected that New Zealand will join with other nations in celebrating this significant time. In order to assist government decisions on how the Year will be celebrated in New Zealand, the Senior Citizens Unit has undertaken preliminary planning and is preparing a report for Cabinet consideration. It is anticipated that the Unit will play a major role in the overall co-ordination of the New Zealand Government's response to this international year.

International Day of Older Persons

1 October each year is the United Nations International Day of Older Persons. The Unit works with older people's organisations to promote activities on the Day which demonstrate the value of older people in the community. It is expected that celebrations of International Day of Older Persons each year will gradually build up towards the national celebration of International Year of Older Persons in 1999.

Greats and Grands Month

The Unit promotes each October as "Greats and Grands Month" to highlight the role of grandparents and other older people who have a significant role in family life. Schools throughout New Zealand are contacted and encouraged to organise intergenerational activities. The Unit offers information to assist schools to develop and organise local events.

Guidelines for Intergenerational Programmes

The Senior Citizens Unit is working with Age Concern New Zealand, the Ministry of Youth Affairs and other interested parties on the development of guidelines for intergenerational programmes. The guidelines will be based on those developed for Police Volunteers and will provide advice and information on recruitment, safety, training and management issues.

Police Volunteers Guidelines

The New Zealand Police, in conjunction with the Senior Citizens Unit and Age Concern New Zealand have developed guidelines for police stations wanting to utilise the skills and expertise of older people. These guidelines have now been incorporated into Police national procedures.

Information Service for Older People

The Senior Citizens Unit is working with the New Zealand Community Funding Agency and Income Support to examine options for a nationwide information and referral service for older people. This project stems from the 1992 national "Age Wise" conference, held to look at strategies for providing information to older people and promoting life-long learning. The conference recommended the establishment of a national co-ordination centre to provide information on educational, recreational and cultural opportunities for older people. Two feasibility studies commissioned by the Department of Social Welfare have subsequently confirmed the value of such a service for older people. It is proposed that the service be based around an information database and a free-phone service.

Information to Publications

The availability of accurate and relevant information to older people is recognised as an important factor contributing to their well-being. The Senior Citizens Unit provides articles on policies and initiatives relevant to older people and their carers to the quarterly publications of Age Concern New Zealand and Grey Power New Zealand.

Hillary Commission

The Hillary Commission for Sport, Fitness and Leisure is a government sector organisation with the aim of: "Improving quality of life by enabling all New Zealanders to participate and achieve in sport, fitness and leisure." The Commission co-ordinates an "Active-in-Age" programme which encourages people over the age of 50 years to be more physically active. The Commission funds seventeen Regional Sports Trusts which include Active-in-Age Co-ordinators whose role is to promote local recreational opportunities for older people. Activities organised include aquafitness, walking groups, fun festivals, and rest home activities. The Hillary Commission also supports and promotes masters' and veterans' sports.

Non-Government Organisations

Age Concern New Zealand Age Concern New Zealand is a non-governmental organisation which aims to promote the rights and well-being of older people and those who care for them. Its mission is "to work together to promote quality of life for older people" and its key objectives are to:
• empower older people to achieve equality and quality of life;
• ensure the availability of services and opportunities to meet the needs and aspirations of older people;
• promote understanding and positive attitudes towards older people and the ageing process; and
• foster an age-integrated society in which adults acknowledge a shared responsibility for the welfare of people of all ages and work together to achieve that objective.

Age Concern New Zealand comprises 38 Age Concern Councils, which provide a range of services to older people and their carers. Each week, about 4,000 Age Concern volunteers provide services for over 12,000 older people. The Councils also raise awareness about positive ageing and the needs of older people.

Age Concern Hamilton

Age Concern Hamilton has been particularly active in promoting positive ageing and, in Hamilton each year, hosts a major "Age-on-the-Go" public event to demonstrate the many activities undertaken by older people in the community. Age Concern Hamilton has developed a variety of intergenerational programmes with local schools including student visits to house-bound older people and older people's participation in early childhood, primary and secondary school activities. Last year, Age Concern Hamilton launched a positive ageing display, video and educational resource kit called "A Wrinkle in Time". The kit has been purchased by many schools throughout New Zealand, indicating their interest in establishing intergenerational programmes.

Retired Persons Association

The Retired Persons Association of New Zealand developed Senior Achievers' Awards to recognise the considerable voluntary work provided by older New Zealanders. The Senior Citizens Unit provided advice and support to the Retired Persons Association during the establishment of the awards. The annual awards are sponsored by Trustees Executors and the Minister for Senior Citizens has presented the awards since their establishment in 1995.

University of the Third Age

One initiative to promote lifelong learning is the University of the Third Age (U3A), a concept which was first developed in France in 1972 and has since spread around the world. There are twelve U3A groups in New Zealand, six of which are in the Wellington area. Through U3A courses, older people share their knowledge, skills and experiences with their peers. All of the teaching, planning and administration is carried out by U3A members.

New Zealand College for Seniors

The New Zealand College for Seniors offers a programme of live-in courses for people over 50 years of age at universities and polytechnics around the country. In addition, the College organises and promotes tours to other countries. The aim of the College is to provide continuing stimulation in a non-threatening, fun environment with other people of like age and interest.

SeniorNet

SeniorNet is a voluntary non-profit educational and communication service offering older people opportunities to: learn practical computer skills in a friendly enjoyable way; add to the quality of their lives by helping them to learn new practical skills in communication; make new friends; and use modern technologies in communication to help younger members of their families and community services.

Future Directions

The growth in the older population has significant policy implications for all nations throughout the world. In developed nations in particular, there is widespread concern about expected increases in health and retirement income expenditure due to the ageing population. However, improved health status of older people and increased life expectancies means that they are able to continue to contribute to society in ways which may not have been possible for previous older cohorts. It is important that government policies across the range of issues, including employment, health, housing and income support, allow and encourage older people to experience ageing as a positive and productive phenomenon.

The twin concepts of positive ageing and productive ageing are closely inter-related. The benefits of positive ageing for individuals are obvious; good health, independence, intellectual stimulation, self-fulfillment and friendship are just some of the valued outcomes of positive ageing. Society as a whole also has a lot to gain from these outcomes: a healthy, happy, ageing population places less demands on social services; contributes a wealth of expertise and skills to the community and the workforce; and provides positive role models for younger generations.

Changing media images of older people is an important strategy to break down barriers which restrict older people's abilities to continue to contribute to society. The development of intergenerational programmes is essential to dispel the negative myths and stereotypes of ageing.

A stable and secure income in retirement is recognised as an essential prerequisite for people to be able to age in a positive and productive way. A lack of adequate income has negative effects on health and on the ability of older people to remain active participants in society. In New Zealand, the Accord on Retirement Income Policies aims to provide this security and encourage future generations of older people to prepare for their retirement so that they are able maintain a reasonable and secure standard of living.

Employment and labour reforms are another necessary component to encouraging continued contributions of older people in society. From 1 February 1999, compulsory retirement on the basis of age will be prohibited in terms of the Human Rights Act. This change in legislation signals the reforms which are necessary in order to achieve an environment where contributions of older people in the workplace are valued. The choice to work later in life, using flexible part-time arrangements is of central importance to meeting the active ageing challenge. The evidence suggests that those who work longer enjoy better health in their old age. The policy conclusion is clear: it is imperative to maintain people in gainful activity longer. In order to achieve this objective, it will be necessary to ensure that education and training policies are adapted to the specific needs of older workers.

The OECD notes that ageing populations create four fundamental challenges for public policy:

1. Fiscal. Changes are required to fiscal policy to prevent the need for large increases in government spending.
2. Market responsiveness. The need to create a policy framework within which labour and capital markets can be responsive to changes resulting from shifting demographics.
3. Encouraging active ageing. Helping people to stay active, flexible and self-reliant as they age.
4. Balancing collective and individual responsibilities.

These are major inter-related challenges. The Department of Social Welfare has taken a lead in meeting these challenges through its Positive Ageing Strategy. Because of its expertise and its position in the Department of Social Welfare, the Senior Citizens Unit will continue to play a significant role in the Department's Positive Ageing Strategy which is being developed for the next ten years.

The above-mentioned and other policy issues are expected to be raised by the Prime Ministerial Task Force on Positive Ageing when it reports to Government by December 1997. The Task Force is expected to advise Government on a strategy for ensuring a comprehensive policy response so that ageing in New Zealand is a positive experience. It is important that policy developments occur in other agencies and that these are co-ordinated in a coherent way. The Department of Social Welfare has the expertise, experience, commitment and existing interface with other government agencies, community organisations, the private sector and older people to take the lead in government responses to an ageing population. It is expected that the Senior Citizens Unit will have significant involvement in the work that arises from the recommendations from the Task Force.

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